Navy DDG-51 and DDG-1000 Destroyer
Programs: Background and Issues for
Congress

Ronald O'Rourke
Specialist in Naval Affairs
November 6, 2015
Congressional Research Service
7-5700
www.crs.gov
RL32109


Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Summary
The Navy has been procuring Arleigh Burke (DDG-51) class Aegis destroyers since FY1985. The
two DDG-51 class ships requested for procurement in FY2016 are to be the 73rd and 74th ships in
the class. The 10 DDG-51s programmed for procurement in FY2013-FY2017 (in annual
quantities of 3-1-2-2-2) are being procured under a multiyear-procurement (MYP) contract. The
second of the two ships requested for FY2016 is to be the first of a new DDG-51 design variation
called the Flight III design, which is to incorporate a new and more capable radar called the Air
and Missile Defense Radar (AMDR).
The Navy estimates the combined procurement cost of the two DDG-51s requested for
procurement in FY2016 at $3,522.7 million. A comparison with the cost of the two DDG-51s
procured in FY2015 suggests that, within the estimated combined cost of $3,522.7 million for the
two FY2016 DDG-51s, the Flight III DDG-51 might account for, very roughly, $2 billion, while
the other DDG-51 might account for, very roughly, $1.5 billion. The potential difference of, very
roughly, $500 million in cost between the two ships includes one-time design and change-order
costs for modifying the DDG-51 design to the Flight III configuration, additional costs for the
AMDR radar and associated electrical power and cooling equipment, and some loss of shipyard
production learning curve benefits due to the change in the ship’s design.
The two DDG-51s requested for procurement in FY2016 have received a total of $373.0 million
in prior-year advance procurement (AP) funding. The Navy’s proposed FY2016 budget requests
the remaining $3,149.7 million needed to complete the ships’ estimated combined procurement
cost. The Navy’s proposed FY2016 budget also requests $75.0 million in so-called cost-to-
complete procurement funding to replace funding for DDG-51s procured in FY2010-FY2012 that
was canceled by the March 1, 2013, sequester. The Navy’s proposed FY2016 budget also requests
$433.4 million in procurement funding to complete construction of Zumwalt (DDG-1000) class
destroyers procured in prior years, and $241.8 million in research and development funding for
development work on the AMDR.
Potential FY2016 issues for Congress concerning destroyer procurement include the following:
 the potential impact on the DDG-51 program of an extended or full-year
continuing resolution (CR) for FY2016;
 September 2015 press statement indicating that the Department of Defense
(DOD) is considering whether to propose canceling the construction of third
DDG-1000 class ship (i.e., DDG-1002);
 the readiness of the Flight III design for procurement in FY2016;
 cost, schedule, and technical risk in the Flight III DDG-51 program;
 whether the Flight III DDG-51 design would have sufficient growth margin for a
projected 35- or 40-year service life;
 issues raised in a January 2015 report from DOD’s Director of Operational
Testing and Evaluation (DOT&E);
 whether the Flight III DDG-51 would have sufficient air and missile capability to
adequately perform future air and missile defense missions; and
 the lack of an announced Navy roadmap for accomplishing three things in the
cruiser-destroyer force: restoring ship growth margins; introducing large numbers
of ships with integrated electric drive systems or other technologies that could
provide ample electrical power for supporting future electrically powered
weapons (such as high-power solid state lasers); and introducing technologies
Congressional Research Service

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

(such as those for substantially reducing ship crew size) for substantially
reducing ship operating and support (O&S) costs.
Congressional Research Service

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Contents
Introduction ..................................................................................................................................... 1
Background ..................................................................................................................................... 1
Strategic and Budgetary Context............................................................................................... 1
DDG-51 Program ...................................................................................................................... 1
General ................................................................................................................................ 1
Procurement of First Flight III DDG-51 Planned for FY2016 ........................................... 3
Multiyear Procurement (MYP) in FY2013-FY2017 .......................................................... 4
DDG-1000 Program .................................................................................................................. 4
Surface Combatant Construction Industrial Base ..................................................................... 6
FY2016 Funding Request ......................................................................................................... 6
Issues for Congress .......................................................................................................................... 7
Potential Impact of Continuing Resolution (CR) for FY2016 .................................................. 7
Overview ............................................................................................................................. 7
Impact on DDG-51 Program ............................................................................................... 8
Potential DOD Proposal to Cancel Third DDG-1000 Class Ship ............................................. 8
Flight III DDG-51: Readiness of Design for Procurement in FY2016 ..................................... 8
Flight III DDG-51: Cost, Technical, and Schedule Risk ......................................................... 10
October 2015 CBO Report ................................................................................................. 11
March 2015 GAO Report ................................................................................................... 11
Flight III DDG-51: Growth Margin ........................................................................................ 13
Flight III DDG-51: Issues Raised in January 2015 DOT&E Report ...................................... 16
Flight III DDG-51: Adequacy of AAW and BMD Capability ................................................ 19
Lack of Roadmap for Accomplishing Three Things in Cruiser-Destroyer Force ................... 19
Options for Congress ..................................................................................................................... 20
Adjunct Radar Ship ................................................................................................................. 20
Flight III DDG-51 With Increased Capabilities ...................................................................... 21
DDG-1000 Variant with AMDR ............................................................................................. 22
New-Design Destroyer ............................................................................................................ 22
Legislative Activity for FY2016 .................................................................................................... 25
FY2016 Funding Request ....................................................................................................... 25
FY2016 National Defense Authorization Act (H.R. 1735/S. 1376) ........................................ 25
House ................................................................................................................................ 25
Senate ................................................................................................................................ 27
Conference Version (Version Vetoed) ............................................................................... 28
New Version (Following Veto) ......................................................................................... 30
FY2016 DOD Appropriations Act (H.R. 2685/S. 1558) ......................................................... 30
House ................................................................................................................................ 30
Senate ................................................................................................................................ 30

Figures
Figure 1. DDG-51 Class Destroyer ................................................................................................. 2
Figure 2. Navy Briefing Slide on DDG-51 Growth Margins ........................................................ 14
Figure 3. Cobra Judy Replacement Ship ....................................................................................... 22
Congressional Research Service

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress


Tables
Table 1. Change in Estimated Combined Procurement Cost of DDG-1000, DDG-1001,
and DDG-2002 ............................................................................................................................. 5

Appendixes
Appendix A. Additional Background Information on DDG-1000 Program .................................. 32
Appendix B. Additional Background Information on CG(X) Cruiser Program ............................ 40

Contacts
Author Contact Information .......................................................................................................... 43

Congressional Research Service

link to page 7 Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Introduction
This report presents background information and potential oversight issues for Congress on the
Navy’s Arleigh Burke (DDG-51) and Zumwalt (DDG-1000) class destroyer programs. The
Navy’s proposed FY2016 budget requests funding for the procurement of two DDG-51s,
including the first of a new DDG-51 design variant called the Flight III design, which is to carry a
new and more capable radar called the Air and Missile Defense Radar (AMDR). Decisions that
Congress makes concerning destroyer procurement could substantially affect Navy capabilities
and funding requirements, and the U.S. shipbuilding industrial base.
Background
Strategic and Budgetary Context
For an overview of the strategic and budgetary context in which this and other Navy shipbuilding
programs may be considered, see CRS Report RL32665, Navy Force Structure and Shipbuilding
Plans: Background and Issues for Congress
, by Ronald O'Rourke.
DDG-51 Program
General
The DDG-51 program was initiated in the late 1970s.1 The DDG-51 (Figure 1) is a multi-mission
destroyer with an emphasis on air defense (which the Navy refers to as anti-air warfare, or AAW)
and blue-water (mid-ocean) operations. DDG-51s, like the Navy’s 22 Ticonderoga (CG-47) class
cruisers,2 are equipped with the Aegis combat system, an integrated ship combat system named
for the mythological shield that defended Zeus. CG-47s and DDG-51s consequently are often
referred to as Aegis cruisers and Aegis destroyers, respectively, or collectively as Aegis ships. The
Aegis system has been updated several times over the years. Existing DDG-51s (and also some
CG-47s) are being modified to receive an additional capability for ballistic missile defense
(BMD) operations.3
The first DDG-51 was procured in FY1985. A total of 72 have been procured through FY2015,
including 62 in FY1985-FY2005 and 10 in FY2010-2016.4 During the period FY2006-FY2009,
the Navy procured three Zumwalt (DDG-1000) class destroyers (see discussion below) rather

1 The program was initiated with the aim of developing a surface combatant to replace older destroyers and cruisers
that were projected to retire in the 1990s. The DDG-51 was conceived as an affordable complement to the Navy’s
Ticonderoga (CG-47) class Aegis cruisers.
2 A total of 27 CG-47s were procured for the Navy between FY1978 and FY1988; the ships entered service between
1983 and 1994. The first five, which were built to an earlier technical standard, were judged by the Navy to be too
expensive to modernize and were removed from service in 2004-2005.
3 The modification for BMD operations includes, among other things, the addition of a new software program for the
Aegis combat system and the arming of the ship with the SM-3, a version of the Navy’s Standard Missile that is
designed for BMD operations. For more on Navy BMD programs, CRS Report RL33745, Navy Aegis Ballistic Missile
Defense (BMD) Program: Background and Issues for Congress
, by Ronald O'Rourke.
4 The ten DDG-51s procured in FY2010-FY2015 include one in FY2010, two in FY2011, one in FY2012, three in
FY2013, one in FY2014, and two in FY2015.
Congressional Research Service
1


Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

than DDG-51s.5 The first DDG-51 entered service in 1991, and a total of 62 were in service as of
the end of FY2014. DDG-51s are built by General Dynamics Bath Iron Works (GD/BIW) of
Bath, ME, and Ingalls Shipbuilding of Pascagoula, MS, a division of Huntington Ingalls
Industries (HII).
Figure 1. DDG-51 Class Destroyer

Source: Navy file photograph accessed October 18, 2012, at http://www.navy.mil/view_image.asp?id=134605.

5 The Navy had planned to end DDG-51 procurement permanently in FY2005 and procure Zumwalt (DDG-1000) class
destroyers thereafter. In July 2008, however, the Navy announced that it had changed its mind—that it wanted to halt
procurement of DDG-1000s and resume procuring DDG-51s. The Navy announced this change in its plans at a July 31,
2008, hearing before the Seapower and Expeditionary Forces subcommittee of the House Armed Services Committee.
In explaining their proposed change in plans, Navy officials cited a reassessment of threats that Navy forces are likely
to face in coming years. As a result of this reassessment, Navy officials stated, the service decided that destroyer
procurement over the next several years should emphasize three mission capabilities—area-defense AAW, BMD, and
open-ocean ASW. Navy officials also stated that they want to maximize the number of destroyers that can be procured
over the next several years within budget constraints. Navy officials stated that DDG-51s can provide the area-defense
AAW, BMD, and open-ocean ASW capabilities that the Navy wants to emphasize, and that while the DDG-1000
design could also be configured to provide these capabilities, the Navy could procure more DDG-51s than reconfigured
DDG-1000s over the next several years for the same total amount of funding. In addition, the Navy by 2008-2009 no
longer appeared committed to the idea of reusing the DDG-1000 hull as the basis for the Navy’s planned CG(X)
cruiser. If the Navy had remained committed to that idea, it might have served as a reason for continuing DDG-1000
procurement.
The Navy’s FY2010 budget, submitted in May 2009, reflected the Navy’s July 2008 change in plans: the budget
proposed truncating DDG-1000 procurement to the three ships that had been procured in FY2007 and FY2009, and
resuming procurement of Flight IIA DDG-51s. Congress, as part of its action on the FY2010 defense budget, supported
the proposal: The FY2010 budget funded the procurement of one DDG-51, provided advance procurement funding for
two DDG-51s the Navy wants to procure in FY2011, completed the procurement funding for the third DDG-1000
(which was authorized but only partially funded in FY2009), and provided no funding for procuring additional DDG-
1000s.
Congressional Research Service
2

link to page 45 Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

The DDG-51 design has been modified over time. The first 28 DDG-51s (i.e., DDGs 51 through
78) are called Flight I/II DDG-51s. Subsequent ships in the class (i.e., DDGs 79 and higher) are
referred to as Flight IIA DDG-51s. The Flight IIA design, first procured in FY1994, implemented
a significant design change that included, among other things, the addition of a helicopter hangar.
The Flight IIA design has a full load displacement of about 9,500 tons, which is similar to that of
the CG-47.
The Navy is implementing a program for modernizing all DDG-51s (and CG-47s) so as to
maintain their mission and cost effectiveness out to the end of their projected service lives.6 Older
CRS reports provide additional historical and background information on the DDG-51 program.7
Procurement of First Flight III DDG-51 Planned for FY2016
The Navy wants to begin procuring a new version of the DDG-51 design, called the Flight III
design, starting with the second of the two ships scheduled for procurement in FY2016. The
Flight III design is to feature a new and more capable radar called the Air and Missile Defense
Radar (AMDR). The version of the AMDR to be carried by the Flight III DDG-51 is smaller and
less powerful than the version that was envisaged for a cruiser called the CG(X) that the Navy at
one point was planning to procure, but subsequently canceled.8 The Flight III DDG-51’s AMDR
is to have a diameter of 14 feet, while the AMDR envisaged for the CG(X) would have had a
substantially larger diameter.9

6 For more on this program, see CRS Report RS22595, Navy Aegis Cruiser and Destroyer Modernization: Background
and Issues for Congress
, by Ronald O’Rourke.
7 See CRS Report 94-343, Navy DDG-51 Destroyer Procurement Rate: Issues and Options for Congress, by Ronald
O’Rourke (April 25, 1994; out of print and available directly from the author), and CRS Report 80-205, The Navy’s
Proposed Arleigh Burke (DDG-51) Class Guided Missile Destroyer Program: A Comparison With An Equal-Cost
Force Of Ticonderoga (CG-47) Class Guided Missile Destroyers
, by Ronald O’Rourke (November 21, 1984; out of
print and available directly from the author).
8 The Navy’s FY2011 budget, submitted in February 2010, proposed terminating a planned cruiser called the CG(X) in
favor of procuring the Flight III version of the DDG-51. The Navy stated that its desire to terminate the CG(X)
program was “driven by affordability considerations.” (Department of the Navy, Office of Budget, Highlights of the
Department of the Navy FY 2011 Budget
, February 2010, pp. 5-7.) For more on the CG(X) program and its termination
in favor of procuring Flight III DDG-51s, see Appendix B.
9 Government Accountability Office, Arleigh Burke Destroyers[:] Additional Analysis and Oversight Required to
Support the Navy’s Future Surface Combatant Plans
, GAO-12-113, January 2012, pp. 31 and 42. See also Zachary M.
Peterson, “DDG-51 With Enhanced Radar in FY-16, Design Work To Begin Soon,” Inside the Navy, February 8, 2010;
Amy Butler, “STSS Prompts Shift in CG(X) Plans,” Aerospace Daily & Defense Report, December 11, 2010: 1-2;
“[Interview With] Vice Adm. Barry McCullough,” Defense News, November 9, 2009: 38.
The written testimony of the Chief of Naval Operations (CNO) before the House Armed Services Committee on
February 16, 2012, and before the Defense subcommittee of the House Appropriations Committee on March 1, 2012,
stated that the Flight III design would use an all-electric propulsion system, in contrast to the mechanical propulsion
system used on the Flight IIA design and other Navy surface combatants. (See, for example, Statement of Admiral
Jonathan Greenert, Chief of Naval Operations, Before the House Armed Services Committee [hearing] on FY2013
Department of the Navy Posture, February 16, 2012, which stated on page 10: “Our Lewis and Clark class supply ships
now employ an all-electric propulsion system, as will our new Zumwalt and Flight III Arleigh Burke class destroyers
(DDG).”) The written testimony of the CNO before the Defense subcommittee of the Senate Appropriations Committee
on March 7, 2012, and before the Senate Armed Services Committee on March 15, 2012, omitted the reference to the
Flight III DDG-51 being equipped with an all-electric propulsion system. In response to a question from CRS about the
change in the testimony, the Navy informed CRS on March 15, 2012, that the statement in the earlier testimony was an
error, and that the Flight III DDG-51 will likely not be equipped with an all-electric propulsion system.
Congressional Research Service
3

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Multiyear Procurement (MYP) in FY2013-FY2017
As part of its action on the Navy’s FY2013 budget, Congress granted the Navy authority to use a
multiyear procurement (MYP) contract for DDG-51s to be procured FY2013-FY2017.10 The
Navy awarded the contract on June 3, 2013.11 The Navy plans to use an engineering change
proposal (ECP) to shift from the Flight IIA design to the Flight III design during this MYP
contract. If the Flight III design is not ready to support the procurement of the first Flight III ship
in FY2016, the Navy can delay issuing the ECP and shift the start of Flight III procurement to
FY2017.
DDG-1000 Program
The DDG-1000 program was initiated in the early 1990s.12 The DDG-1000 is a multi-mission
destroyer with an emphasis on naval surface fire support (NSFS) and operations in littoral (i.e.,
near-shore) waters. The DDG-1000 is intended to replace, in a technologically more modern
form, the large-caliber naval gun fire capability that the Navy lost when it retired its Iowa-class
battleships in the early 1990s,13 to improve the Navy’s general capabilities for operating in
defended littoral waters, and to introduce several new technologies that would be available for
use on future Navy ships. The DDG-1000 was also intended to serve as the basis for the Navy’s
now-canceled CG(X) cruiser.
The DDG-1000 is to have a reduced-size crew of 142 sailors (compared to roughly 300 on the
Navy’s Aegis destroyers and cruisers) so as to reduce its operating and support (O&S) costs. The
ship incorporates a significant number of new technologies, including an integrated electric-drive
propulsion system14 and automation technologies enabling its reduced-sized crew.
With an estimated full load displacement of 15,482 tons, the DDG-1000 design is roughly 63%
larger than the Navy’s current 9,500-ton Aegis cruisers and destroyers, and larger than any Navy
destroyer or cruiser since the nuclear-powered cruiser Long Beach (CGN-9), which was procured
in FY1957.
The first two DDG-1000s were procured in FY2007 and split-funded (i.e., funded with two-year
incremental funding) in FY2007-FY2008; the Navy’s FY2016 budget submission estimates their
combined procurement cost at $8,797.9 million. The third DDG-1000 was procured in FY2009
and split-funded in FY2009-FY2010; the Navy’s FY2016 budget submission estimates its
procurement cost at $3,490.8 million.

10 For more on MYP contracts, see CRS Report R41909, Multiyear Procurement (MYP) and Block Buy Contracting in
Defense Acquisition: Background and Issues for Congress
, by Ronald O'Rourke and Moshe Schwartz.
11 “DDG 51 Multiyear Procurement Contract Awarded,” Navy News Service, June 3, 2013, accessed July 1, 2013, at
http://www.navy.mil/submit/display.asp?story_id=74583. See also Mike McCarthy, “Navy Awards Multi-Year
Contracts For Destroyers,” Defense Daily, June 4, 2013: 1.
12 The program was originally designated DD-21, which meant destroyer for the 21st Century. In November 2001, the
program was restructured and renamed DD(X), meaning a destroyer whose design was in development. In April 2006,
the program’s name was changed again, to DDG-1000, meaning a guided missile destroyer with the hull number 1000.
13 The Navy in the 1980s reactivated and modernized four Iowa (BB-61) class battleships that were originally built
during World War II. The ships reentered service between 1982 and 1988 and were removed from service between
1990 and 1992.
14 For more on integrated electric-drive technology, see CRS Report RL30622, Electric-Drive Propulsion for U.S. Navy
Ships: Background and Issues for Congress
, by Ronald O’Rourke.
Congressional Research Service
4

link to page 10 link to page 37 Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

As shown in Table 1 below, the estimated combined procurement cost for all three DDG-1000s,
as reflected in the Navy’s annual budget submission, has grown by $3,311.6 million, or 36.9%,
since the FY2009 budget (i.e., the budget for the fiscal year in which the third DDG-1000 was
procured).
Table 1. Change in Estimated Combined Procurement Cost of DDG-1000, DDG-
1001, and DDG-2002
In millions, rounded to nearest tenth, as shown in annual Navy budget submissions
Estimated combined
Change from prior
Cumulative change
procurement cost
year’s budget
from FY2009 budget

(millions of dollars)
submission
submission
FY2009 budget
8,977.1


FY2010 budget
9,372.5
+395.4 (+4.4%)
+395.4 (+4.4%)
FY2011 budget
9,993.3
+620.8 (+6.6%)
+1,016.2 (+11.3%)
FY2012 budget
11,308.8
+1,315.5 (+13.2%)
+2,331.7 (+26.0%)
FY2013 budget
11,470.1
+161.3 (+1.4%)
+2,493.0 (+27.8%)
FY2014 budget
11,618.4
+148.3 (+1.3%)
+2,641.3 (+29.4%)
FY2015 budget
12,069.4
+451.0 (+3.9%)
+3,092.3 (+34.4%)
FY2016 budget
12,288.7
+219.3 (+1.8%)
+3,311.6 (+36.9%)
Source: Table prepared by CRS based on data in annual Navy budget submissions.
Some of the cost growth in the earlier years in the table was caused by the truncation of the DDG-
1000 program from seven ships to three, which caused some class-wide procurement-rated costs
that had been allocated to the fourth through seventh ships to be reallocated to the three remaining
ships.
The Navy states that the cost growth shown in the later years of the table reflects, among other
things, a series of incremental, year-by-year movements away from an earlier Navy cost estimate
for the program, and toward a higher estimate developed by Cost Assessment and Program
Evaluation (CAPE) office within the Office of the Secretary of Defense (OSD). As one
consequence of a Nunn-McCurdy cost breach experienced by the DDG-1000 program in 2010
(see “2010 Nunn-McCurdy Breach, Program Restructuring, and Milestone Recertification” in
Appendix A), the Navy was directed to fund the DDG-1000 program to CAPE’s higher cost
estimate for the period FY2011-FY2015, and to the Navy’s cost estimate for FY2016 and beyond.
The Navy states that it has been implementing this directive in a year-by-year fashion with each
budget submission since 2010, moving incrementally closer each year to CAPE’s higher estimate.
The Navy stated in 2014 that even with the cost growth shown in the table, the DDG-1000
program as of the FY2015 budget submission was still about 3% below the program’s rebaselined
starting point for calculating any new Nunn-McCurdy cost breach on the program.15
All three ships in the DDG-1000 program are to be built at GD/BIW, with some portions of each
ship being built by Ingalls Shipbuilding for delivery to GD/BIW. Raytheon is the prime contractor
for the DDG-1000’s combat system (its collection of sensors, computers, related software,

15 Source: Navy briefing for CRS and the Congressional Budget Office (CBO) on the DDG-1000 program, April 30,
2014.
Congressional Research Service
5

link to page 37 Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

displays, and weapon launchers). The Navy awarded GD/BIW the contract for the construction of
the second and third DDG-1000s on September 15, 2011.16
For additional background information on the DDG-1000 program, see Appendix A.
Surface Combatant Construction Industrial Base
All cruisers, destroyers, and frigates procured since FY1985 have been built at General
Dynamics’ Bath Iron Works (GD/BIW) shipyard of Bath, ME, and Ingalls Shipbuilding of
Pascagoula, MS, a division of Huntington Ingalls Industries (HII).17 Both yards have long
histories of building larger surface combatants. Construction of Navy surface combatants in
recent years has accounted for virtually all of GD/BIW’s ship-construction work and for a
significant share of Ingalls’ ship-construction work. (Ingalls also builds amphibious ships for the
Navy.) Navy surface combatants are overhauled, repaired, and modernized at GD/BIW, Ingalls,
other private-sector U.S. shipyards, and government-operated naval shipyards (NSYs).
Lockheed Martin and Raytheon are generally considered the two leading Navy surface combatant
radar makers and combat system integrators. Northrop Grumman is a third potential maker of
Navy surface combatant radars. Lockheed is the lead contractor for the DDG-51 combat system
(the Aegis system), while Raytheon is the lead contractor for the DDG-1000 combat system, the
core of which is called the Total Ship Computing Environment Infrastructure (TSCE-I). Lockheed
has a share of the DDG-1000 combat system, and Raytheon has a share of the DDG-51 combat
system. Lockheed, Raytheon, and Northrop competed to be the maker of the AMDR to be carried
by the Flight III DDG-51. On October 10, 2013, the Navy announced that it had selected
Raytheon to be the maker of the AMDR.
The surface combatant construction industrial base also includes hundreds of additional firms that
supply materials and components. The financial health of Navy shipbuilding supplier firms has
been a matter of concern in recent years, particularly since some of them are the sole sources for
what they make for Navy surface combatants.
FY2016 Funding Request
The Navy estimates the combined procurement cost of the two DDG-51s requested for
procurement in FY2016 at $3,522.7 million. A comparison with the cost of the two DDG-51s
procured in FY2015 suggests that, within the estimated combined cost of $3,522.7 million for the
two FY2016 DDG-51s, the Flight III DDG-51 might account for, very roughly, $2 billion, while
the other DDG-51 might account for, very roughly, $1.5 billion. The potential difference of, very
roughly, $500 million in cost between the two ships includes one-time design and change-order
costs for modifying the DDG-51 design to the Flight III configuration, additional costs for the
AMDR radar and associated electrical power and cooling equipment, and some loss of shipyard
production learning curve benefits due to the change in the ship’s design.
The two DDG-51s requested for procurement in FY2016 have received a total of $373.0 million
in prior-year advance procurement (AP) funding. The Navy’s proposed FY2016 budget requests
the remaining $3,149.7 million needed to complete the ships’ estimated combined procurement

16 See, for example, Mike McCarthy, “Navy Awards Contract for DDG-1000s,” Defense Daily, September 16, 2011:
3-4.
17 HII was previously owned by Northrop Grumman, during which time it was known as Northrop Grumman
Shipbuilding.
Congressional Research Service
6

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

cost. The Navy’s proposed FY2016 budget also requests $75.0 million in so-called cost-to-
complete procurement funding to replace funding for DDG-51s procured in FY2010-FY2012 that
was canceled by March 1, 2013, sequester. The Navy’s proposed FY2016 budget also requests
$433.4 million in procurement funding to complete construction of Zumwalt (DDG-1000) class
destroyers procured in prior years, and $241.8 million in research and development funding for
development work on the AMDR. The funding request for the AMDR is contained in Program
Element (PE) 0604522N (“Advanced Missile Defense Radar [AMDR] System”), which is line
118 in the Navy’s FY2016 research and development account.
Issues for Congress
Potential Impact of Continuing Resolution (CR) for FY2016
Overview
One issue for Congress concerns the potential impact on the DDG-51 program of an extended
continuing resolution (CR) or a full-year CR for FY2016. Extended or full-year CRs can lead to
challenges in program execution because they typically prohibit the following:
 new program starts (“new starts”), meaning the initiation of new program efforts
that did not exist in the prior year;
 an increase in procurement quantity for a program compared to that program’s
procurement quantity in the prior year; and
 the signing of new multiyear procurement (MYP) contracts.18
In addition, the Navy’s shipbuilding account, known formally as the Shipbuilding and
Conversion, Navy (SCN) appropriation account, is written in the annual Department of Defense
(DOD) appropriations act not just with a total appropriated amount for the entire account (like
other DOD acquisition accounts), but also with specific appropriated amounts at the line-item
level. As a consequence, under a CR (which is typically based on the prior year’s appropriations
act), SCN funding is managed not at the account level (like it is under a CR for other DOD
acquisition accounts), but at the line-item level. For the SCN account—uniquely among DOD
acquisition accounts—this can lead to line-by-line misalignments (excesses and shortfalls) in
funding for SCN-funded programs, compared to the amounts those programs received in the prior
year. The shortfalls in particular can lead to program-execution challenges under an extended or
full-year CR.
In addition to the above impacts, a CR might also require the agency (in this case, the Navy) to
divide a contract action into multiple actions, which can increase the total cost of the effort by
reducing economies of scale and increasing administrative costs.
The potential impacts described above can be avoided or mitigated if the CR includes special
provisions (called anomalies) for exempting individual programs or groups of programs from the
general provisions of the CR, or if the CR includes expanded authorities for DOD for
reprogramming and transferring funds.

18 For more on MYP contracts, see CRS Report R41909, Multiyear Procurement (MYP) and Block Buy Contracting in
Defense Acquisition: Background and Issues for Congress
, by Ronald O'Rourke and Moshe Schwartz.
Congressional Research Service
7

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Impact on DDG-51 Program
The Navy states that an extended or full-year CR for FY2016 would impact the DDG-51 program
because of its effect on a line item in the SCN account, called the completion of prior-year
programs line item, that provides funding to cover cost growth on ships that were procured and
fully funded in prior years, thereby permitting the construction of the ships in question to be
completed. The impact of an extended or full-year CR for FY2016 on this line item, the Navy
states, will affect several ongoing Navy shipbuilding programs, including the DDG-51 program.
In addition, the Navy states, a CR’s typical prohibition on year-to-year quantity increases in a
procurement program will impact the Navy’s ability to procure the first Flight III DDG-51 in
FY2016, because the funding for the new Air and Missile Defense Radar (AMDR) that is to be
carried by the Flight III version would not occur.19
Potential DOD Proposal to Cancel Third DDG-1000 Class Ship
Another potential issue for Congress concerns the third DDG-1000 class ship (i.e., DDG-1002):
In September 2015, it was reported that DOD is considering whether to propose canceling the
construction of DDG-1002.20 The Navy reportedly favors continuing with the construction of the
ship.21
If DOD were to propose cancelling DDG-1002, perhaps as part of its FY2017 budget submission,
Congress would have the opportunity to approve, reject, or modify the proposal, perhaps as part
of its action on DOD’s FY2017 budget. Factors to consider in weighing such a proposal would
include, among other things, sunk costs and remaining costs on DDG-1002; the potential, if any,
for using parts and materials intended for DDG-1002 on other Navy ships; the industrial-base
impact of continuing with or canceling DDG-1002 (including the impact on DDG-51s being built
at GD/BIW); the expected operational value of DDG-1002 over its 35-year life cycle; and the
expected operation and support (O&S) costs of the ship over its 35-year life cycle.22
Flight III DDG-51: Readiness of Design for Procurement in FY2016
Another issue for Congress concerns the readiness of the Flight III design for procurement in
FY2016. As noted earlier, the Navy plans to shift to procurement of the Flight III design with the
second of the two DDG-51s requested for procurement in FY2016.
The Navy argues that the Flight III design will be ready for procurement in FY2016. If it is
judged that the design is not ready, the Navy’s plan allows for procurement of the first Flight III
DDG-51 to be shifted to FY2017 or a later year.

19 Source: Navy point paper, entitled “FY 2016 DON Continuing Resolution (CR) Impact,” undated, provided by Navy
Office of Legislative Affairs to CRS on September 14, 2015. See also Christopher P. Cavas, “US Navy Considers
Impact of a Yearling CR,” Defense News, September 5, 2015.
20 See, for example, Anthony Capaccio, “General Dynamics Destroyer Reviewed by U.S. for Cancellation,” Bloomberg
News
, September 14, 2015; Michael Fabey, “Despite Cancellation Reports, Work Continues On [Third] Zumwalt,”
Aerospace Daily & Defense Report, September 18, 2015: 6.
21 See, for example, Sam LaGrone, “SECNAV Mabus, Maine Delegation Back Third Zumwalt Construction, USNI
News
, September 16, 2015. See also Philip Ewing, “Navy Sticks By New Ships Amid Delays,” Politico, September 7,
2015.
22 See., for example, Sam LaGrone, “Delays in Zumwalt Destroyer Program Hamper Production of DDG-51s at Bath
Iron Works,” USNI News, July 15, 2015; Sydney J. Freedberg, Jr., “Cuts To Zumwalt Destroyer Won’t Save Much,”
Breaking Defense, September 21, 2015.
Congressional Research Service
8

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

At a February 25, 2015, hearing on Department of the Navy acquisition programs before the
Seapower and Projection Forces subcommittee of House Armed Services Committee, Department
of the Navy officials testified that
In October 2013, the Navy awarded the contract for development of the AMDR, with
options for up to nine low rate initial production (LRIP) units. The AMDR radar suite
will be capable of providing simultaneous surveillance and engagement support for long
range BMD and area defense. The program continues to demonstrate maturity in the
design development as shown in successful completion of the AMDR hardware critical
design review (CDR) in December 2014 and is on track for the system CDR in April
2015. Engineering Change Proposal (ECP) detail design efforts for the DDG Flight III
design will continue in FY 2016, ultimately leading to over 90 percent detail design
completion prior to construction on the first Flight III ship.23
In a February 2015 report to Congress on the status of the Flight III design, the Navy stated that
with respect to systems and equipment levels of maturity for Flight III, the AMDR is the
only new development technology. The AMDR has successfully completed Milestone B,
a full system Preliminary Design Review, a hardware Critical Design Review, and will
deliver its first full ship set of production equipment by early FY 2020. The remaining
equipment required to provide power and cooling to the AMDR are all based on currently
existing equipment and therefore induce low technical risk to the program. Given the
tremendous capability improvement AMDR provides to defeat emerging air and ballistic
missile threats over current radars, the low to moderate technical risk associated with
implementing this radar on an FY 2016 DDG 51 justifies execution of the ECP during the
FY 2013-2017 multiyear procurement contract....
All major equipment development is on track to support DDG 51 Class implementation
of the AMDR in FY16....
The Flight III program is supported by appropriate design execution, Systems
Engineering Technical Reviews, and stakeholder relationships consistent with meeting
requirements and overall pro-gram schedule. Major supporting component developments
for AMDR-S [AMDR S band], PCMs [power conversion modules], and SSGTGs [ship
service gas turbine generators] are well underway by the associated Participating
Resource Managers (PARMs) with schedules and milestones that support the overall
Flight III delivery targets. Detail design was started in FY14 with the Program Office
delivering Government Furnished Information (GFI) to the shipyard services to support
continued Flight III development. Continued development of GFI will support detail
design fidelity leading to successful Preliminary Design Review (PDR), Critical Design
Review (CDR), and Production Readiness Review (PRR) targeting 90% design
completion supporting start of construction.... PARM schedules are integrated with
anticipated in-yard need dates for construction and testing resulting in successful light-off
and delivery targeted for FY22. Management approach to supporting construction, test,
and delivery will be consistent with multi-year procedures already in place.
The DDG 51 AEGIS program office employs a risk management plan based on the
guidance pro-vided in applicable Defense Acquisition documents, which were then
tailored specifically to the DDG 51 Flight III program. Risk management occurs in main
areas for Flight III: AMDR/RSC [Radar Suite Control] development, combat system

23 Statement of the Honorable Sean J. Stackley, Assistant Secretary of the Navy (Research, Development and
Acquisition) and Vice Admiral Joseph P. Mulloy, Deputy Chief of Naval Operations for Integration of Capabilities and
Resources and Lieutenant General Kenneth J. Glueck, Jr., Deputy Commandant, Combat Development and Integration
& Commanding General, Marine Corps Combat Development Command, Before the Subcommittee on Seapower and
Projection Forces of the House Armed Services Committee on Department of the Navy Seapower and Projection
Forces Capabilities, February 25, 2015, pp. 9-10.
Congressional Research Service
9

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

development and total ship design, including HM&E [hull, mechanical, and electrical]
modifications necessary to support AMDR and the combat system.
DDG 51 Flight III risk management is tracked internally by a Risk Management Board
(RMB) which meets quarterly. Participants of the RMB include the AEGIS program
office, shipyard representatives, and PARM (AMDR, SSGTG, and PCM) representatives,
along with combat system and ship design team members. The purpose of these meetings
is to discuss and track the status on current risks, along with introducing any additional
risks that may need to be added to the risk register. Once a risk is entered into the risk
register, it is tracked through the life of the program. Quarterly RMB reviews and
numerical rescoring of the risk show trends and effectiveness of mitigation efforts....
With respect to Flight III systems level of maturity, the AMDR is the only new
development technology. The AMDR has successfully completed Milestone B, a full
system Preliminary Design Review, a hardware Critical Design Review, and will deliver
its first full ship set of production equipment by early FY 2020. The remaining equipment
required to provide power and cooling to the AMDR are all based on currently existing
equipment and therefore induce low technical risk to the program. Given the tremendous
capability improvement AMDR provides to defeat emerging air and ballistic missile
threats over current radars, the low to moderate technical risk associated with
implementing this radar on an FY 2016 DDG 51 justifies execution of the ECP
[Engineering Change Proposal] during the FY 2013-2017 multiyear procurement
contract.
This report has assembled the latest available design and integration information based on
the recent design reviews, assumptions, decisions, and sources provided to address the
questions posed. In summary, the AMDR technology has matured, ship impacts are
clearly understood, and design efforts are underway for ECP development. The Navy's
intention, as stated and supported by the contents of this report, is to integrate AMDR-S
into the DDG 51 ARLEIGH BURKE Class ships beginning with the last ship of FY16.24
Flight III DDG-51: Cost, Technical, and Schedule Risk
Another issue for Congress concerns cost, technical, and schedule risk for the Flight III DDG-51.
Some observers have expressed concern about the Navy’s ability to complete development of the
AMDR and deliver the first AMDR to the shipyard in time to support the construction schedule
for a first Flight III DDG-51 procured in FY2016. The Navy could respond to a delay in the
development of the AMDR by shifting the procurement of the first Flight III DDG-51 to FY2017
or a later year, while continuing to procure Flight IIA DDG-51s. (The MYP that the Navy has
awarded for FY2013-FY2017 is structured to accommodate such a shift, should it become
necessary.) Some observers have also expressed concern about the potential procurement cost of
the Flight III DDG-51 design.
A February 2, 2015, press report stated:
The Navy began detailed design work on the Flight III variant... in December and will
conduct a preliminary design review [PDR] of the program in July....
The program completed several significant milestones on schedule in 2014 and is on
track to do the same in 2015, Capt. Mark Vandroff, DDG-51 program manager, said Jan.
14...

24 U.S. Navy, Report to Congress [on] DDG 51 Flight III Ships and Air and Missile Defense Radar Engineering
Change Proposal
, February 2015, pp. 2, 7, 29-30. The report was directed by language on page 14 of S.Rept. 112-173
of June 4, 2012, the Senate Armed Services Committee’s report on S. 3254, the FY2013 National Defense
Authorization Act.
Congressional Research Service
10

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

The capabilities development document for Flight III was validated by the Joint
Requirements Oversight Council on Oct. 28, 2014, Vandroff said, and preliminary design
was completed that same month. Detailed design work was initiated in December and the
program office plans to conduct PDR in July, he added.
The detailed design phase will last about two and a half years, Vandroff estimated.25
October 2015 CBO Report
An October 2015 Congressional Budget Office (CBO) report on the cost of the Navy’s
shipbuilding programs stated:
The Navy’s strategy for meeting the combatant commanders’ goal that future ballistic
missile defense capabilities exceed those provided by existing DDG-51s—and for
replacing 11 Ticonderoga class cruisers when they are retired in the 2020s—is to
substantially modify the design of the DDG-51 Flight IIA destroyer, creating a Flight III
configuration. That change would incorporate the new Air and Missile Defense Radar
(AMDR), now under development, which will be larger and more capable than the radar
on current DDG-51s. The effective operation of the AMDR in the new Flight III
configuration, however, will require an increase in the ships’ capacity to generate
electrical power and their ability to cool major systems.
With those changes and associated increases in the ships’ displacement, CBO expects
that the average cost per ship over the entire production run would be $1.9 billion in 2015
dollars, or about 15 percent more than the Navy’s estimate of $1.7 billion. Costs could be
higher or lower than CBO’s estimate, however, depending on the eventual cost and
complexity of the AMDR and the associated changes in the ship’s design to integrate the
new radar.26
March 2015 GAO Report
A March 2015 Government Accountability Office (GAO) report assessing selected DOD
acquisition programs stated the following in its assessment of the DDG-51 program:
The Navy is undertaking Flight III detail design activities in fiscal 2015 concurrent with
AMDR development—a strategy that could disrupt detail design activities as AMDR
attributes become more defined. The Navy identifies AMDR integration as posing
technical, cost, and schedule risks to the Flight III program. In addition to AMDR, Flight
III changes include upgrades to the ships' cooling and electrical systems and other
configuration changes intended to increase weight and stability margins. The Navy
reports that a prototype of the cooling system is in operation at the vendor's factory and is
undergoing environmental qualification testing. However, the Navy identifies cost and
schedule risks to the Flight III program associated with these cooling upgrades. The
electrical system upgrades include changes to the distribution system to add and modify
switchgear and transformers based on the system installed on LHA 6.
The Navy plans to use engineering change proposals to the existing Flight IIA multiyear
procurement contracts to construct the first three Flight III ships rather than establish new
contracts for detail design and construction. The Navy has allotted 17 months to mature
the Flight III detail design ahead of the planned solicitation for these proposals and plans
to award construction of the first Flight III ship in fiscal 2016, with two follow-on ships
in fiscal 2017. To support this, per DOD policy the Navy sought congressional approval

25 Lara Seligman, “Detailed Design Initiated For Flight III Destroyer, Review Scheduled For July,” Inside the Navy,
February 2, 2015.
26 Congressional Budget Office, An Analysis of the Navy’s Fiscal Year 2016 Shipbuilding Plan, October 2015, p. 27.
Congressional Research Service
11

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

in 2014 to transfer funds and begin detail design in the fourth quarter of fiscal 2014.
However, this request was denied, postponing detail design start by several months. In
September 2014, the Navy notified Congress that a delayed detail design start may
prompt it to delay the introduction of AMDR until fiscal 2017.27
Regarding the AMDR specifically, the report stated:
Technology and Design Maturity
All four of AMDR's critical technologies—digital-beam-forming; transmit-receive
modules; software; and digital receivers/exciters—are approaching full maturity, and
program officials state that AMDR is on pace to meet DDG 51 Flight III's schedule
requirements. In 2015, the contractor is expected to complete an engineering
development model consisting of a single full-sized 14 foot radar array—as opposed to
the final four array configuration planned for installation on DDG 51 Flight III—and
begin testing in the contractor's indoor facilities. Following the critical design review,
scheduled for April 2015, the program plans to install the array in the Navy's land-based
radar test facility in Hawaii for further testing in a more representative environment.
However, the Navy has no plans to test AMDR in a realistic (at-sea) environment prior to
installation on the lead DDG 51 Flight III ship. Though the Navy is taking some risk
reduction measures, there are only 15 months planned to install and test the AMDR
prototype prior to making a production decision. Delays may cause compounding effects
on testing of upgrades to the Aegis combat system since the Navy plans to use the
AMDR engineering development model in combat system integration and testing.
In August 2014, AMDR completed its final preliminary design review, which assessed
both hardware and software. The total number of design drawings required for AMDR
has not yet been determined and will be finalized at the program's critical design review.
However, AMDR officials are confident that the robust technology in the prototype
represents the physical dimensions, weight, and power requirements to support DDG 51
Flight III integration. The AMDR program office provided an initial interface control
document listing AMDR specifications to the DDG 51 Flight III program office.
Ensuring correct AMDR design parameters is important since the available space,
weight, power, and cooling for DDG 51 Flight III is constrained, and design efforts for
the ship will begin before AMDR is fully matured.
The AMDR radar suite controller requires significant software development, with 1.2
million lines of code and four planned builds. The program also plans to apply an open
systems approach to available commercial hardware to decrease development risk and
cost. The program office identified that the first of four planned builds is complete, has
passed the Navy's formal qualification testing and will enter developmental testing next
summer. Each subsequent build will add more functionality and complexity. AMDR will
eventually need to interface with the Aegis combat management system found on DDG
51 destroyers. This interface will be developed in later software builds for fielding in
2020, and the Navy plans on conducting early combat system integration and risk
reduction testing prior to making a production decision.
Other Program Issues
AMDR still lacks a Test and Evaluation Master Plan approved by DOD's Director,
Operational Test and Evaluation (DOT&E), as required by DOD policy. DOT&E
expressed concerns with the lack of a robust live-fire test plan involving AMDR and the
Navy's self-defense test ship. According to program officials, their current test plan's

27 Government Accountability Office, Defense Acquisitions[:] Assessments of Selected Weapon Programs, GAO-15-
342SP, March 2015, p. 138.
Congressional Research Service
12

link to page 19 Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

models will provide sufficient data to support validation and accreditation and thus verify
system performance.
Program Office Comments
According to the Navy, AMDR is on track to deliver a capability 30 times greater than
the radar it will replace. To mitigate development risk and deliver AMDR's software at
the earliest possible delivery date, the contractor is implementing software development
approaches to improve productivity, in coordination with robust testing, modeling, and
live flight test simulations. Further, an AMDR hardware facility—including a fully
functioning portion of AMDR's processing equipment and a software integration lab—is
operating at the contractor's facility to support iterative testing ahead of, and then in
support of, production of the engineering development model. In December 2014, a
hardware specific critical design review was successfully completed demonstrating that
technical performance measures are in compliance with requirements and the hardware
design is sufficiently mature to complete detailed design, and will proceed to engineering
development model array production.28
Flight III DDG-51: Growth Margin
Another issue for Congress is whether the Flight III DDG-51 design would have sufficient growth
margin for a projected 35- or 40-year service life. A ship’s growth margin refers to its capacity for
being fitted over time with either additional equipment or newer equipment that is larger, heavier,
or more power-intensive than the older equipment it is replacing, so as to preserve the ship’s
mission effectiveness. Elements of a ship’s growth margin include interior space, weight-carrying
capacity, electrical power, cooling capacity (to cool equipment), and ability to accept increases in
the ship’s vertical center of gravity. Navy ship classes are typically designed so that the first ships
in the class will be built with a certain amount of growth margin. Over time, some or all of the
growth margin in a ship class may be used up by backfitting additional or newer systems onto
existing ships in the class, or by building later ships in the class to a modified design that includes
additional or newer systems.
Modifying the DDG-51 design over time has used up some of the design’s growth margin. The
Flight III DDG-51 would in some respects have less of a growth margin than what the Navy
would aim to include in a new destroyer design of about the same size. A January 18, 2013, press
report stated, “In making decisions about the [Flight III] ship’s power, cooling, weight and other
margins, [DDG-51 program manager Captain Mark] Vandroff said [in a presentation at a
conference on January 15, 2013, that] the Navy wanted to ensure that there was room to grow in
the future, to allow for modernization as well as capability upgrades when new weapons such as
the electromagnetic railgun enter the fleet. Allowing for growth was balanced with cost, and
Vandroff said he thought the program did a great job of coming up with an affordable solution to
a leap-ahead capability for the fleet.”29 In his presentation, Vandroff showed a slide comparing the
growth margins of the Flight III design to those of Flight IIA DDG-51s procured or scheduled to
be procured in FY2010-FY2014; the slide is reproduced below as Figure 2.

28 Government Accountability Office, Defense Acquisitions[:] Assessments of Selected Weapon Programs, GAO-15-
342SP, March 2015, p. 64.
29 Megan Eckstein, “Flight III DDGs To Cost About $2 Billion, Have Margins For Future Growth,” Inside the Navy,
January 18, 2013.
Congressional Research Service
13






Figure 2. Navy Briefing Slide on DDG-51 Growth Margins
Flight III DDG-51 Design Compared to Flight IIA DDG-51s
FY10 Flt IIA – FY16* Flt III
Service Life Allowance Comparison
Weight SLA
KG SLA (ft)
12%
1.00
0.90
10%
0.80
0.70
8%
B
C
0.60
a
u
6%
s
SPQ
r
A
e
r
0.50
e
M
li
n
n
-
DR
0.40
t
9
B
C
SPQ
4%
e
B
a
u
A
-

S
0.30
s
r
M


e
re
-
l
DR

9

0.20
i
n
n
B
2%
t
e

-

S
0.10

0%
0.00
FY
FY
FY
FY
FY
FY
FY
FY
FY
FY
10
12
13
14
16
10
12
13
14
16
FY14 Flt IIA with SPQ-9B; FY16 Flt III with AMDR-S
FY14 Flt IIA with SPQ-9B; FY16 Flt III with AMDR-S
Electric Power SLA
Cooling SLA - Connected Loads
35%
25%
30%
20%
25%
B
C
4
4
4
4
15%
20%
a
u
5
5
5
1
s
r
0
0
0
6
B
C
5
5
5
5
e
r
VA

VA
0
a
u
x
x
x
x
15%
e
l
VA
i

n
s
2
2
2
3
n
VA
10%
r
0
0
0
0
t
e
r
e
C
C
C
e
0
0
0
0
C
li
n
n
T
T
T
T
10%
t
e




A
A
A
A
5%
C
C
C
C
5%
s
s
s
s
0%
0%
FY
FY
FY
FY
FY
FY
FY
FY
FY
FY
10
12
13
14
16
10
12
13
14
16
FY16 Flt III with change to 3x4MW GTGS & 4160 VAC
FY16 Flt III with change to 5x300T HES-C AC Units
Notes:
1. - * Second ship in FY16 is designated as the DDG 51 Flight III
2. - FY10 values are calculated, out year values are projections based on Not to Exceed Design Budget Estimates

DISTRIBUTION STATEMENT A:
Approved for public release, distribution is unlimited.
15
Source: Presentation of Captain Mark Vandroff to Surface Navy Association, January 15-17, 2013; a copy of the slides was provided to CRS by the Navy Office of
Legislative Affairs on January 28, 2013.
Note: SLA means service life allowance (i.e., growth margin).
CRS-14

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

A June 7, 2013, blog post stated:
The Navy is confident it has enough space, power and cooling onboard the hull of its
planned new line of destroyers to accommodate the planned high-powered Air and
Missile Defense Radar (AMDR), Capt. Mark Vandroff, Naval Sea Systems Command
program manager for the DDG-51 shipbuilding program, told USNI News in an
interview on Thursday.
However, the Arleigh Burke-class destroyer (DDG-51) Flight III would be limited in the
amount of additional weapons the ship could accommodate—including electromagnetic
railguns and high-energy lasers—without removing other capabilities.
“Depending on how heavy that railgun is, could you fit it on a DDG? My answer is what
on that DDG are you willing to live without right now?” Vandroff said.
“You wouldn’t have the space and weight to put on something very large without
something relatively sizable coming off.”30
Supporters of the Navy’s proposal to procure Flight III DDG-51s could argue that the ship’s
growth margin would be comparable to that of recently procured Flight IIA DDG-51s, and would
be adequate because the increase in capability achieved with the Flight III configuration reduces
the likelihood that the ship will need much subsequent modification to retain its mission
effectiveness over its projected service life. They could also argue that, given technology
advances, new systems added to the ship years from now might require no more (and possibly
less) space, weight, electrical power, or cooling capacity than the older systems they replace.
Skeptics could argue that there are uncertainties involved in projecting what types of capabilities
ships might need to have to remain mission effective over a 35- or 40-year life, and that building
expensive new warships with relatively modest growth margins consequently would be
imprudent. The Flight III DDG-51’s growth margin, they could argue, could make it more likely
that the ships would need to be removed from service well before the end of their projected
service lives due to an inability to accept modifications needed to preserve their mission
effectiveness. Skeptics could argue that it might not be possible to fit the Flight III DDG-51 in the
future with a high-power (200 kW to 300 kW) solid state laser (SSL), because the ship would not
have enough available electrical power or cooling capacity to support such a weapon. Skeptics
could argue that high-power SSLs could be critical to the Navy’s ability years from now to
affordably counter large numbers of enemy anti-ship cruise missiles (ASCMs) and anti-ship
ballistic missiles (ASBMs) that might be fielded by a wealthy and determined adversary. Skeptics
could argue that procuring Flight III DDG-51s could delay the point at which high-power SSLs
could be introduced into the cruiser-destroyer force, and reduce for many years the portion of the
cruiser-destroyer force that could ultimately be backfitted with high-power SSLs. This, skeptics
could argue, might result in an approach to AAW and BMD on cruisers and destroyers that might
ultimately be unaffordable for the Navy to sustain in a competition against a wealthy and
determined adversary.31

30 “NAVSEA on Flight III Arleigh Burkes,” USNI News, June 7, 2013, accessed July 1, 2013, at http://news.usni.org/
2013/06/07/navsea-on-flight-iii-arleigh-burkes.
31 For more on potential shipboard lasers, see CRS Report R44175, Navy Lasers, Railgun, and Hypervelocity
Projectile: Background and Issues for Congress
, by Ronald O'Rourke.
Congressional Research Service
15

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Flight III DDG-51: Issues Raised in January 2015 DOT&E Report
Another issue for Congress concerns issues raised in a January 2015 report from DOD’s Director
of Operational Test and Evaluation (DOT&E)—DOT&E’s annual report for FY2014. Regarding
the Flight III DDG-51 program, the report stated:
Executive Summary
• On March 6, 2014, the Deputy Secretary of Defense (DEPSECDEF) issued a Resource
Management Decision memorandum directing the Navy to develop a plan to conduct at-
sea testing of the self-defense capability of the DDG 51 Flight III Destroyer with the Air
and Missile Defense Radar (AMDR) and Aegis Combat System. The plan was to be
approved by DOT&E and then adequately funded by the Navy. However, the Navy has
not provided any plan to DOT&E or planned funding to facilitate the testing.
• On April 23, 2014, DOT&E issued a memorandum to USD(AT&L) [Under Secretary of
Defense for Acquisition, Technoogy, and Logistics—DOD’s acquisition executive]
stating the intention to not approve any operational test plan for an Early Operational
Assessment (EOA) of the AMDR due to non-availability of the required AMDR
hardware and software.
• On September 10, 2014, DOT&E issued a classified memorandum to USD(AT&L)
with a review of the Navy Program Executive Office for Integrated Warfare Systems
Design of Experiments study. The study attempted to provide a technical justification to
show the test program did not require using a Self-Defense Test Ship (SDTS) to
adequately assess the self-defense capability of the DDG 51 Flight III Class Destroyers.
DOT&E found the study presented a number of flawed rationales, contradicted itself, and
failed to make a cogent argument for why an SDTS is not needed for operational
testing....
Activity
• On March 6, 2014, DEPSECDEF issued a Resource Management Decision
memorandum directing the Navy to develop a plan to conduct at-sea testing of the self-
defense capability of the DDG 51 Flight III Destroyer with the AMDR and Aegis Combat
System. The plan was to be approved by DOT&E and then adequately funded by the
Navy. To date, the Navy has not provided any plan to DOT&E or funding in response to
this direction.
• On April 23, 2014, DOT&E issued a memorandum to USD(AT&L) stating the
operational test plan for an EOA of the AMDR could not be approved because the
required AMDR hardware and software were not available as planned, per the 2010
DOT&E- and Navy-approved Test and Evaluation Strategy, and as briefed to the Deputy
Assistant Secretary of Defense (Strategic and Tactical Systems) in 2012. A prototype
AMDR array, coupled to an upgraded radar controller using basic software for radar
control and simple search and track functionality, was expected to be available. The lack
of this hardware and software would have limited the EOA to a “table-top” review of
program documentation, program plans, and available design data, which would, in
DOT&E’s view, not have been a worthwhile use of resources.
• On September 10, 2014, DOT&E issued a classified memorandum to USD(AT&L) that
provided a review of the Navy Program Executive Office for Integrated Warfare Systems
Design of Experiments study. The study attempted to provide a technical justification to
show the test program did not require using an SDTS to adequately assess the self-
defense capability of the DDG 51 Flight III Class Destroyers. DOT&E found the study
presented a number of flawed rationales, contradicted itself, and failed to make a cogent
argument for why an SDTS is not needed for operational testing.
Congressional Research Service
16

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Assessment
• DOT&E’s assessment continues to be that the operational test programs for the AMDR,
Aegis Modernization, and DDG 51 Flight III Destroyer programs are not adequate to
fully assess their self-defense capabilities in addition to being inadequate to test the
following Navy-approved AMDR and DDG 51 Flight III requirements.
- The AMDR Capability Development Document describes AMDR’s IAMD mission,
which requires AMDR to support simultaneous defense against multiple ballistic missile
threats and multiple advanced anti-ship cruise missile (ASCM) threats. The Capability
Development Document also includes an AMDR minimum track range Key Performance
Parameter.
- The DDG 51 Flight III Destroyer has a survivability requirement directly tied to
meeting a self-defense requirement threshold against ASCMs described in the Navy’s
Surface Ship Theater Air and Missile Defense Assessment document of July 2008. It
clearly states that area defense will not defeat all the threats, thereby demonstrating that
area air defense will not completely attrite all ASCM raids and that individual ships must
be capable of defeating ASCM leakers in the self-defense zone.
• Use of manned ships for operational testing with threat representative ASCM surrogates
in the close-in, self- defense battlespace is not possible due to Navy safety restrictions
because targets and debris from intercepts pose an unacceptable risk to personnel at
ranges where some of the engagements will take place. The November 2013 mishap on
the USS Chancellorsville (CG 62) involving an ASCM surrogate target resulted in even
more stringent safety constraints.
- In addition to stand-off ranges (on the order of 1.5 to 5 nautical miles for subsonic and
supersonic surrogates, respectively), safety restrictions require that ASCM targets not be
flown directly at a manned ship, but at some cross- range offset, which unacceptably
degrades the operational realism of the test.
- Similar range safety restrictions will preclude manned ship testing of eight of the nine
ASCM scenarios contained in the Navy-approved requirements document for the Aegis
Modernization Advanced Capability Build 16 Combat System upgrade as well as testing
of the AMDR minimum track range requirement against supersonic, sea-skimming
ASCM threat-representative surrogates at the land-based AMDR Pacific Missile Range
Facility test site.
- To overcome these safety restrictions for the LHA-6, Littoral Combat Ship (LCS), DDG
1000, LPD-17, LSD- 41/49, and CVN-78 ship classes, the Navy developed an Air
Warfare/Ship Self Defense Enterprise modeling and simulation (M&S) test bed that uses
live testing in the close-in battlespace with targets flying realistic threat profiles and
manned ship testing for other battlespace regions and softkill capabilities to validate and
accredit the M&S test bed. The same needs to be done for the DDG 51 Flight III
Destroyer with its AMDR. Side-by-side comparison between credible live fire test results
and M&S test results form the basis for the M&S accreditation. Without an SDTS with
AMDR and an Aegis Combat System, there will not be a way to gather all of the
operationally realistic live fire test data needed for comparison to accredit the M&S.
• The Navy needs to improve its Aegis Weapon System (AWS) models that are currently
provided by Lockheed Martin’s Multi-Target Effectiveness Determined under Simulation
by Aegis (MEDUSA) M&S tool.
- MEDUSA encompasses several components of the AWS including the SPY-1 radar,
Command and Decision, and Weapon Control System. MEDUSA models AWS
performance down to the system specification and the Navy considers it a high-fidelity
simulation of AWS.
Congressional Research Service
17

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

- However, it is not a tactical code model, so its fidelity is ultimately limited to how
closely the specification corresponds to the Aegis tactical code (i.e., the specification is
how the system is supposed to work while the tactical code is how the system actually
works). This adds to the need for realistic live fire shots to support validation efforts.
- Earlier test events highlight the limitations of specification models like MEDUSA.
During Aegis Advanced Capability Build 08 testing in 2011, five AWS software errors
were found during live fire events and tracking exercises. Three software errors
contributed to a failed SM-2 engagement, one to a failed ESSM engagement, and one to
several failed simulated engagements during tracking exercises. Since these problems
involved software coding errors, it is unlikely that a specification model like MEDUSA
(which assumes no software errors in tactical code) would account for such problems and
hence it would overestimate the combat system’s capability.
- By comparison, the Air Warfare/Ship Self Defense Enterprise M&S test bed used for
assessing USS San Antonio’s (LPD-17) self-defense capabilities used re-hosted Ship
Self-Defense System Mk 2 tactical code.
• Since Aegis employs ESSM in the close-in, self-defense battlespace, understanding
ESSM’s performance is critical to understanding the self-defense capabilities of the DDG
51 Flight III Destroyer.
- Past DOT&E annual reports have stated that the ESSM’s operational effectiveness has
not been determined. The Navy has not taken action to adequately test the ESSM’s
operational effectiveness.
- Specifically, because safety limitations preclude ESSM firing in the close-in self-
defense battlespace, there are very little test data available concerning ESSM’s
performance, as installed on Aegis ships, against supersonic ASCM surrogates.
- Any data available regarding ESSM’s performance against supersonic ASCM
surrogates are from a Ship Self-Defense System-based combat system configuration,
using a completely different guidance mode or one that is supported by a different radar
suite.
• The cost of building and operating an Aegis SDTS is small when compared to the total
cost of the AMDR development/ procurement and the eventual cost of the 22 (plus) DDG
51 Flight III ships that are planned for acquisition ($55+ Billion). Even smaller is the cost
of the SDTS compared to the cost of the ships that the DDG 51 Flight III Destroyer is
expected to protect (approximately $450 Billion in new ship construction over the next
30 years).
- If DDG 51 Flight III Destroyers are unable to defend themselves, these other ships are
placed at substantial risk.
- Moreover, the SDTS is not a one-time investment for only the AMDR/DDG 51 Flight
III IOT&E [Initial Operational Test & Evaluation], as it would be available for other
testing that cannot be conducted with manned ships (e.g., the ESSM Block 2) and as the
combat system capabilities are improved.
Recommendations
• Status of Previous Recommendations. There are three previous recommendations that
remain valid. The Navy should:
1. Program and fund an SDTS equipped with the AMDR and DDG 51 Flight III Aegis
Combat System in time for the DDG 51 Flight III Destroyer IOT&E.
2. Modify the AMDR, Aegis Modernization, and DDG 51 Flight III Test and Evaluation
Master Plans to include a phase of IOT&E using an SDTS equipped with the AMDR and
DDG 51 Flight III Combat System.
Congressional Research Service
18

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

3. Modify the AMDR, Aegis Modernization, and DDG 51 Flight III Test and Evaluation
Master Plans to include a credible M&S effort that will enable a full assessment of the
AMDR and DDG 51 Flight III Combat System’s self-defense capabilities.
• FY14 Recommendation.
1. The Navy should comply with the DEPSECDEF direction to develop and fund a plan,
to be approved by DOT&E, to conduct at-sea testing of the self-defense of the DDG 51
Flight III Destroyer with the AMDR and Aegis Combat System.32
Flight III DDG-51: Adequacy of AAW and BMD Capability
Another issue for Congress is whether the Flight III DDG-51 will have sufficient AAW and BMD
capability to adequately perform future AAW and BMD missions. The Flight III DDG-51 would
have more AAW and BMD capability than the current DDG-51 design, but less AAW and BMD
capability than was envisioned for the CG(X) cruiser, in large part because the Flight III DDG-51
would be equipped with a 14-foot-diameter version of the AMDR that would have more
sensitivity than the SPY-1 radar on Flight IIA DDG-51s, but less sensitivity than the substantially
larger version of the AMDR that was envisioned for the CG(X). The CG(X) also may have had
more missile-launch tubes than the Flight III DDG-51.
The Navy argues that while the version of the AMDR on the Flight III DDG-51 will have less
sensitivity than the larger version of the AMDR envisioned for the CG(X), the version of the
AMDR on the Flight III DDG-51 will provide sufficient AAW and BMD capability to address
future air and missile threats. A March 2014 GAO report assessing selected DOD acquisition
programs stated:
The X-band portion of AMDR will be comprised of an upgraded version of an existing
rotating radar (SPQ-9B), instead of the new design initially planned. The new radar will
instead be developed as a separate program at a later date and integrated with the
thirteenth AMDR unit. According to the Navy, the upgraded SPQ-9B radar fits better
within the Flight III’s sea frame and expected power and cooling availability. Program
officials state that the SPQ-9B radar will have capabilities equal to the new design for
current anti-air warfare threats, it will not perform as well against future threats.
The Navy plans to install a 14-foot variant of AMDR on Flight III DDG 51s starting in
2019. According to draft AMDR documents, a 14-foot radar is needed to meet threshold
requirements, but an over 20-foot radar is required to fully meet the Navy’s desired
integrated air and missile defense needs. However, the shipyards and the Navy have
determined that a 14-foot active radar is the largest that can be accommodated within the
existing DDG 51deckhouse. Navy officials stated that AMDR is being developed as a
scalable design but a new ship would be required to host a larger version of AMDR.33
Lack of Roadmap for Accomplishing Three Things in
Cruiser-Destroyer Force
Another issue for Congress concerns the lack of an announced Navy roadmap for accomplishing
three things in the cruiser-destroyer force:

32 Department of Defense, Director, Operational Test and Evaluation, FY 2014 Annual Report, January 2015, pp. 171-
174.
33 Government Accountability Office, Defense Acquisitions[:] Assessments of Selected Weapon Programs, GAO-14-
340SP, March 2014, p. 55.
Congressional Research Service
19

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

 restoring ship growth margins;
 introducing large numbers of ships with integrated electric drive systems or other
technologies that could provide ample electrical power for supporting future
electrically powered weapons (such as high-power solid state lasers); and
 introducing technologies (such as those for substantially reducing ship crew size)
for substantially reducing ship operating and support (O&S) costs. (The potential
importance of high-power solid state lasers is discussed in the previous section
on the Flight III DDG-51’s growth margin.)
The Navy’s pre-2008 plan to procure DDG-1000 destroyers and then CG(X) cruisers based on the
DDG-1000 hull design represented the Navy’s roadmap at the time for restoring growth margins,
and for introducing into the cruiser-destroyer force significant numbers of ships with integrated
electric drive systems and technologies for substantially reducing ship crew sizes. The ending of
the DDG-1000 and CG(X) programs in favor of continued procurement of DDG-51s leaves the
Navy without an announced roadmap to do these things, because the Flight III DDG-51 will not
feature a fully restored growth margin, will not be equipped with an integrated electric drive
system or other technologies that could provide ample electrical power for supporting future
electrically powered weapons, and will not incorporate features for substantially reducing ship
crew size or for otherwise reducing ship O&S costs substantially below that of Flight IIA DDG-
51s.
Options for Congress
In general, options for Congress concerning destroyer acquisition include the following:
 approving, rejecting, or modifying the Navy’s procurement, advance
procurement, and research and development funding requests for destroyers and
their associated systems (such as the AMDR);
 establishing conditions for the obligation and expenditure of funding for
destroyers and their associated systems; and
 holding hearings, directing reports, and otherwise requesting information from
DOD on destroyers and their associated systems.
In addition to these general options, below are some additional acquisition options relating to
destroyers that Congress may wish to consider.
Adjunct Radar Ship
The Navy canceled the CG(X) cruiser program in favor of developing and procuring Flight III
DDG-51s reportedly in part on the grounds that the Flight III destroyer would use data from off-
board sensors to augment data collected by its AMDR.34 If those off-board sensors turn out to be
less capable than the Navy assumed when it decided to cancel the CG(X) in favor of the Flight III
DDG-51, the Navy may need to seek other means for augmenting the data collected by the Flight
III DDG-51’s AMDR.
One option for doing this would be to procure an adjunct radar ship—a non-combat ship
equipped with a large radar that would be considerably more powerful than the Flight III DDG-

34 Amy Butler, “STSS Prompts Shift in CG(X) Plans,” Aerospace Daily & Defense Report, December 11, 2009: 1-2.
Congressional Research Service
20

link to page 27 Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

51’s AMDR. The presence in the fleet of a ship equipped with such a radar could significantly
improve the fleet’s AAW and BMD capabilities. The ship might be broadly similar to (but
perhaps less complex and less expensive than) the new Cobra Judy Replacement missile range
instrumentation ship (Figure 3),35 which is equipped with two large and powerful radars, and
which has an estimated total acquisition cost of about $1.7 billion.36 One to a few such adjunct
radar ships might be procured, depending on the number of theaters to be covered, requirements
for maintaining forward deployments of such ships, and their homeporting arrangements. The
ships would have little or no self-defense capability and would need to be protected in threat
situations by other Navy ships.
Flight III DDG-51 With Increased Capabilities
Another option would be to design the Flight III DDG-51 to have greater capabilities than what
the Navy is currently envisioning. Doing this might well require the DDG-51 hull to be
lengthened—something that the Navy is not envisioning for the Flight III design. Navy and
industry studies on the DDG-51 hull design that were performed years ago suggested that the hull
has the potential for being lengthened by as much as 55 feet to accommodate additional systems.
Building the Flight III DDG-51 to a lengthened configuration could make room for additional
power-generation and cooling equipment, additional vertical launch system (VLS) missile tubes,

35 As described by DOD,
The COBRA JUDY REPLACEMENT (CJR) program replaces the capability of the current United
States Naval Ship (USNS) Observation Island (OBIS), its COBRA JUDY radar suite, and other
mission essential systems. CJR will fulfill the same mission as the current COBRA JUDY/OBIS.
CJR will collect foreign ballistic missile data in support of international treaty verification.
CJR represents an integrated mission solution: ship, radar suite, and other Mission Equipment
(ME). CJR will consist of a radar suite including active S-Band and X-Band Phased Array Radars
(PARs), weather equipment, and a Mission Communications Suite (MCS). The radar suite will be
capable of autonomous volume search and acquisition. The S-Band PAR will serve as the primary
search and acquisition sensor and will be capable of tracking and collecting data on a large number
of objects in a multi-target complex. The X-Band PAR will provide very high-resolution data on
particular objects of interest.…
The OBIS replacement platform, USNS Howard O. Lorenzen (Missile Range Instrumentation Ship
(T-AGM) 25), is a commercially designed and constructed ship, classed to American Bureau of
Shipping standards, certified by the U.S. Coast Guard in accordance with Safety of Life at Sea, and
in compliance with other commercial regulatory body rules and regulations, and other Military
Sealift Command (MSC) standards. The ship will be U.S. flagged, operated by a Merchant Marine
or MSC Civilian Mariner crew, with a minimum of military specifications. The ship is projected to
have a 30-year operating system life-cycle.
The U.S. Navy will procure one CJR for the U.S. Air Force using only Research, Development,
Test and Evaluation funding. CJR will be turned over to the U.S. Air Force at Initial Operational
Capability for all operations and maintenance support….
Program activities are currently focused on installation and final integration of the X and S-band
radars onto the ship at Kiewit Offshore Services (KOS) following completion of radar production
and initial Integration and Test (I&T) at Raytheon and Northrop Grumman (NG). Raytheon and its
subcontractors have completed I&T of the X-band radar and X/S ancillary equipment at KOS. The
S-band radar arrived at KOS on February 19, 2011. The United States Naval Ship (USNS) Howard
O. Lorenzen (Missile Range Instrumentation Ship (T-AGM) 25) completed at-sea Builder’s Trials
(BT) in March 2011. The ship is expected to depart VT Halter Marine (VTHM) and arrive at KOS
in the third quarter of Fiscal Year 2011 (3QFY11).
(Department of Defense, Selected Acquisition Report (SAR), Cobra Judy Replacement, December
31, 2010, pp. 3-5.)
36 Department of Defense, Selected Acquisition Report (SAR), Cobra Judy Replacement, December 31, 2010, p. 13.
Congressional Research Service
21


Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

and larger growth margins. It might also permit a redesign of the deckhouse to support a larger
and more capable version of the AMDR than the 14-foot diameter version currently planned for
the Flight III DDG-51. Building the Flight III DDG-51 to a lengthened configuration would
increase its development cost and its unit procurement cost. The increase in unit procurement cost
could reduce the number of Flight III DDG-51s that the Navy could afford to procure without
reducing funding for other programs.
Figure 3. Cobra Judy Replacement Ship

Source: Naval Research Laboratory (http://www.nrl.navy.mil/PressReleases/2010/image1_74-10r_hires.jpg,
accessed on April 19, 2011).
DDG-1000 Variant with AMDR
Another option would be to design and procure a version of the DDG-1000 destroyer that is
equipped with the AMDR and capable of BMD operations. Such a ship might be more capable in
some regards than the Flight III DDG-51, but it might also be more expensive to develop and
procure. An AMDR-equipped, BMD-capable version of the DDG-1000 could be pursued as either
a replacement for the Flight III DDG-51 or a successor to the Flight III DDG-51 (after some
number of Flight III DDG-51s were procured). A new estimate of the cost to develop and procure
an AMDR-equipped, BMD-capable version of the DDG-1000 might differ from the estimate in
the Navy’s 2009 destroyer hull/radar study (the study that led to the Navy’s decision to stop
DDG-1000 procurement and resume DDG-51 procurement) due to the availability of updated
cost information for building the current DDG-1000 design.
New-Design Destroyer
Another option would be to design and procure a new-design destroyer that is intermediate in size
between the DDG-51 and DDG-1000 designs, equipped with the AMDR, and capable of BMD
operations. This option could be pursued as either a replacement for the Flight III DDG-51 or a
successor to the Flight III DDG-51 (after some number of Flight III DDG-51s were procured).
Such a ship might be designed with the following characteristics:
 either the same version of the AMDR that is envisioned for the Flight III DDG-
51, or a version that is larger (but not as large as the one envisioned for the
CG[X]);
Congressional Research Service
22

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

 enough electrical power and cooling capacity to permit the ship to be backfitted
in the future with a high-power SSL;
 more growth margin than on the Flight III DDG-51;
 producibility features for reducing construction cost per ton that are more
extensive than those on the DDG-51 design;
 automation features permitting a crew that is smaller than what can be achieved
on a Flight III DDG-51, so as to reduce ship O&S costs;
 physical open-architecture features that are more extensive than those on the
Flight III DDG-51, so as to reduce modernization-related life-cycle ownership
costs;
 no technologies not already on, or being developed for, other Navy ships, with
the possible exception of technologies that would enable an integrated electric
drive system that is more compact than the one used on the DDG-1000; and
 DDG-51-like characteristics in other areas, such as survivability, maximum
speed, cruising range, and weapons payload.
Such a ship might have a full load displacement of roughly 11,000 to 12,000 tons, compared to
about 10,000 tons for the Flight III DDG-51, 15,000 or more tons for an AAW/BMD version of
the DDG-1000, and perhaps 15,000 to 23,000 tons for a CG(X).37
A March 18, 2013, press report states that
A recommended reevaluation of the next flights of LCSs [Littoral Combat Ships]38... is
only part of a classified memo, “Vision for the 2025 Surface Fleet,” submitted late last
year by the head of Naval Surface Forces, Vice Adm. Tom Copeman, to Chief of Naval
Operations Adm. Jon Greenert....
Copeman, according to several sources familiar with the document, also recommended
against building the DDG 51 Flight III destroyers, a modification of the Arleigh Burke
class to be fitted with the new Air Missile Defense Radar (AMDR) under development to
replace the SPY-1 radars used in Aegis warships. The AMDR, designed with higher
power and fidelity to handle the complex ballistic-missile defense mission, will require
significantly more electrical power than the current system. And, while the AMDR
apparently will fit into the DDG 51 hull, margins for future growth are severely limited.

37 The cost and technical risk of developing the new destroyer’s hull design could be minimized by leveraging, where
possible, existing surface combatant hull designs. The cost and technical risk of developing its combat system could be
minimized by using a modified version of the DDG-51 or DDG-1000 combat system. Other development costs and
risks for the new destroyer would be minimized by using no technologies not already on, or being developed for, other
Navy ships (with the possible exception of some integrated electric drive technologies). Even with such steps, however,
the cost and technical risk of developing the new destroyer would be greater than those of the Flight III DDG-51. The
development cost of the new destroyer would likely be equivalent to the procurement cost of at least one destroyer, and
possibly two destroyers.
The procurement cost of the new destroyer would be minimized by incorporating producibility features for reducing
construction cost per ton that are more extensive than those on the Flight III DDG-51. Even with such features, the new
destroyer would be more expensive to procure than the Flight III DDG-51, in part because the Flight III DDG-51 would
leverage many years of prior production of DDG-51s. In addition, the new destroyer, as a new ship design, would pose
more risk of procurement cost growth than would the Flight III DDG-51. The procurement cost of the new destroyer
would nevertheless be much less than that of the CG(X), and might, after the production of the first few units, be fairly
close to that of the Flight III DDG-51.
38 For more on the LCS program, see CRS Report RL33741, Navy Littoral Combat Ship (LCS)/Frigate Program:
Background and Issues for Congress
, by Ronald O'Rourke.
Congressional Research Service
23

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Instead, sources said Copeman recommends creating a new, large surface combatant
fitted with AMDR and designed with the power, weight and space to field “top-end
energy weapons” like the electromagnetic rail gun under development by the Navy.
The new ship could also be developed into a replacement for today’s Ticonderoga-class
missile cruisers in the air defense mission of protecting deployed aircraft carriers—a
mission Copeman says needs to be preserved. All flattops have a “shotgun” cruiser that
accompanies them throughout a deployment, but the missile ships are aging and, by 2025,
only four will remain in service to protect the fleet’s 11 carriers.
The Navy prefers cruisers over destroyers for the role because of the bigger ships’ extra
missile fire control channels, their more senior commanders and a better ability to tow the
carrier should it be disabled.
While recommending against the Flight III, Copeman would continue building the
existing DDG 51 Flight IIA variant until a new design is available.39
An April 9, 2014, press report states:
The U.S. Navy is in the very early stages of developing a new destroyer—called the
Future Surface Combatant—which will replace the existing Arleigh Burke-class
destroyers and enter service by the early 2030s, Navy leaders told Military.com.
Navy officials said it is much too early to speculate on hull design or shape for the new
ship but lasers, on-board power-generation systems, increased automation, next-
generation weapons, sensors and electronics are all expected to figure prominently in the
development of the vessel.
The Future Surface Combatant will succeed and serve alongside the Navy’s current
Flight III DDG 51 Arleigh Burke-class destroyer program slated to being construction in
2016. Overall, the Secretary of the Navy’s long-range shipbuilding plan calls for
construction of 22 Flight III DDGs, Navy officials said.
There are a handful of early emerging requirements regarding what admirals want for the
ship, Rear Adm. Tom Rowden, director of surface warfare, told Military.com in an
interview.
“I could not even draw a picture for you,” said Rowden, who went on to explain that
greater automation and integrated electrical power are part of the calculus of early
discussions.
He emphasized that the new ship will leverage successful next-generation technologies
already underway in other platforms such as the DDG 1000 destroyer, Littoral Combat
Ship and Ford-class aircraft carriers.
The Future Surface Combatant may draw from the DDG 1000’s high-tech electric drive
system that propels the ship while generating 58 megawatts of on-board electrical power.
On-board power will be in high demand as lasers and directed energy weapons become
more prominent, Rowden said.
“We are moving all ahead with respect to the development of lasers as a weapon in the
future. You can take the power that is generated on the ship and convert that into a fire
control solution without having to shoot a missile that may cost a million to ten million,”
Rowden explained....
The largest aspect of emphasis for the nascent Future Surface Combatant program is
something Rowden called modularity, a term referring to a technological ability to
rapidly and effectively make adjustments as needed.

39 Christopher P. Cavas, “U.S. Navy Weighs Halving LCS Order,” Defense News, March 18, 2013: 1.
Congressional Research Service
24

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

The new ship design will emphasize flexibility to ensure the platform keeps pace with
fast-moving technological change and threats, he said....
“The modules that we install in the ship may have no bearing or resemblance to what
needs to be there when we decommission the ship. The weapons and sensors will be
different. We have to think about how to move through the design, manufacture and
subsequent upgrades in the most cost-effective and affordable fashion. We need to design
that into the ship,” he said.40
Legislative Activity for FY2016
FY2016 Funding Request
The Navy estimates the combined procurement cost of the two DDG-51s requested for
procurement in FY2016 at $3,522.7 million. The two DDG-51s requested for procurement in
FY2016 have received a total of $373.0 million in prior-year advance procurement (AP) funding.
The Navy’s proposed FY2016 budget requests the remaining $3,149.7 million needed to complete
the ships’ estimated combined procurement cost.
The Navy’s proposed FY2016 budget also requests $75.0 million in so-called cost-to-complete
procurement funding to replace funding for DDG-51s procured in FY2010-FY2012 that was
canceled by March 1, 2013, sequester.
The Navy’s proposed FY2016 budget also requests $433.4 million in procurement funding to
complete construction of Zumwalt (DDG-1000) class destroyers procured in prior years, and
$241.8 million in research and development funding for development work on the AMDR. The
funding request for the AMDR is contained in Program Element (PE) 0604522N (“Advanced
Missile Defense Radar [AMDR] System”), which is line 118 in the Navy’s FY2016 research and
development account.
FY2016 National Defense Authorization Act (H.R. 1735/S. 1376)
House
The House Armed Services Committee, in its report (H.Rept. 114-112 of May 5, 2015) on H.R.
1735, recommends approving the Navy’s FY2016 request for procurement and cost-to-complete
procurement funding for the DDG-51 program and the Navy’s FY2016 request for procurement
funding for the DDG-1000 program (page 422, lines 007, 008, and 025). The report recommends
approving the Navy’s FY2016 request for research and development funding for the AMDR
(page 465, line 118).
Section 121 of H.R. 1735 as reported by the committee states:
SEC. 121. Modification to multiyear procurement authority for Arleigh Burke class
destroyers and associated systems.
Section 123(a) of the National Defense Authorization Act for Fiscal Year 2013 (Public
Law 112–239; 126 Stat. 1655) is amended by inserting “or Flight III” after “Flight IIA”.
Section 123(a) of P.L. 112-239—the provision that would be amended by the above legislation—
currently states:

40 Kris Osborn, “Navy Makes Plans for New Destroyer for 2030s,” Military.com, April 9, 2014.
Congressional Research Service
25

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

SEC. 123. MULTIYEAR PROCUREMENT AUTHORITY FOR ARLEIGH BURKE
CLASS DESTROYERS AND ASSOCIATED SYSTEMS.
(a) Authority for Multiyear Procurement.--Subject to section 2306b of title 10, United
States Code, the Secretary of the Navy may enter into one or more multiyear contracts,
beginning with the fiscal year 2013 program year, for the procurement of up to 10
Arleigh Burke class Flight IIA guided missile destroyers, as well as the Aegis weapon
systems, MK 41 vertical launching systems, and commercial broadband satellite systems
associated with such vessels.
Regarding Section 121, H.Rept. 114-112 states:
Section 121—Modification to Multiyear Procurement Authority for Arleigh Burke Class
Destroyers and Associated Systems
This section would amend section 123(a) of the National Defense Authorization Act for
Fiscal Year 2013 (Public Law 112–239) and provide authority to the Secretary of the
Navy to enter into a multiyear contract for a Flight III destroyer, in addition to the
existing multiyear authority for a Flight IIA destroyer.
The committee supports the changes proposed by the Secretary of the Navy to integrate
the Air and Missile Defense Radar in the Arleigh Burke class destroyer and the inclusion
of the Flight III guided missile destroyer into the current multiyear authority. However,
the committee is concerned about the Secretary of the Navy’s strategy to implement an
Engineering Change Proposal to fundamentally change integral elements of the Arleigh
Burke class destroyer multiyear procurement without congressional authorization. When
the initial multiyear procurement was authorized by section 123 of Public Law 112–239,
the authorization was limited to an ‘‘Arleigh Burke class Flight IIA guided missile
destroyer.’’ The committee includes this provision because it believes that
implementation of a Flight III destroyer without an explicit congressional authorization
would violate section 123 of Public Law 112–239, by constituting a cardinal change in
the scope of the initial authorization. (Page 47)
H.Rept. 114-112 also states:
Air and Missile Defense Radar Testing evaluation
The committee notes that the Navy plans to use the Arleigh Burke-class destroyers (DDG
51) hull form as the platform for the Air and Missile Defense Radar (AMDR), which will
provide integrated air and ballistic missile defense capability for the fleet. The committee
further notes that the Director of Operational Test and Evaluation has disagreed with the
Navy’s plans for AMDR testing and believes that in order to achieve full end-to-end test
results, testing must be performed aboard the self-defense test ship. Considering the
central role that AMDR and DDG 51 Flight III will play in sea-based ballistic missile
defense and the magnitude of the Navy’s planned investment, the committee directs the
Comptroller General of the United States to submit a report to the congressional defense
committees by March 1, 2016, as to the potential use of AMDR on the self-defense test
ship. This report should include, but is not limited to, an analysis of the following:
(1) Maturity of AMDR and the Navy’s plans for developing, testing, and integrating
AMDR, to include a cost benefit of performing AMDR testing aboard the self-defense
test ship versus a manned ship;
(2) Risks associated with the Navy’s planned acquisition strategy for the DDG 51 class
and AMDR; and
(3) Any additional items the Comptroller General deems relevant to the report. (Pages 27-
28)
H.Rept. 114-112 also states:
Congressional Research Service
26

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Air and Missile Defense Radar
The committee understands that the Navy Air and Missile Defense Radar (AMDR) is
designed to be fully scalable and modular to support a variety of shipboard radar
applications on a variety of platforms. The committee further understands that the
flexibility in the design of AMDR could also provide the foundation for land based
applications.
Therefore, the committee directs the Under Secretary of Defense for Acquisition,
Technology, and Logistics to provide a briefing to the House Committee on Armed
Services by February 1, 2016, on the Department of the Navy’s plan to utilize the AMDR
investment across existing and future platforms in the fleet. The briefing shall also
include options that the Secretary is considering to exploit AMDR scalability in other
service radar acquisitions to realize greater affordability through economies of scale.
(Pages 33-34)
Senate
The Senate Armed Services Committee, in its report (S.Rept. 114-49 of May 19, 2015) on S.
1376, recommends increasing by $400 million the Navy’s FY2016 request for procurement
funding for the DDG-51 program, with the increase being for “Incremental funding for one
DDG–51.” The report recommends approving the Navy’s FY2016 request for cost-to-complete
procurement funding for the DDG-51 program and procurement funding for the DDG-1000
program. (Page 363, lines 7, 8, and 25.) The report recommends approving the Navy’s FY2016
request for research and development funding for the AMDR (page 408, line 118).
Section 117 of S. 1376 as reported by the committee states:
SEC. 117. Construction of additional Arleigh Burke destroyer.
(a) In general.—The Secretary of the Navy may enter into a contract beginning with the
fiscal year 2016 program year for the procurement of one Arleigh Burke class destroyer
in addition to the ten DDG–51s in the fiscal year 2013 through 2017 multiyear
procurement contract or for one DDG–51 in fiscal year 2018. The Secretary may employ
incremental funding for such procurement.
(b) Condition on Out-year Contract Payments.—A contract entered into under subsection
(a) shall provide that any obligation of the United States to make a payment under such
contract for any fiscal year after fiscal year 2016 is subject to the availability of
appropriations for that purpose for such fiscal year.
Regarding Section 117, S.Rept. 114-49 states:
Construction of additional Arleigh Burke destroyer (sec. 117)
The committee recommends a provision that would allow the Secretary of the Navy to
enter into a contract beginning with the fiscal year 2016 program year for the
procurement of one Arleigh Burke-class destroyer in addition to the ten DDG–51s in the
fiscal year 2013 through 2017 multiyear procurement contract or for one DDG–51 in
fiscal year 2018. The Secretary may employ incremental funding for such procurement.
Additional funding and incremental funding authority would help relieve pressure on the
shipbuilding budget as funding requirements grow for the Ohio-class replacement
program over the next several years. As a result, the committee recommends incremental
funding authority for 1 Arleigh Burke-class destroyer in addition to the 10 DDG–51s in
the fiscal year 2013–2017 multiyear procurement contract or for a DDG–51 in fiscal year
2018. (Page 11)
S.Rept. 114-49 also states:
Congressional Research Service
27

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Arleigh Burke-class destroyers
The budget request included $3.1 billion in Shipbuilding and Conversion, Navy for
procurement of Arleigh Burke-class destroyers (DDG–51). Additional funding and
incremental funding authority would help relieve pressure on the shipbuilding budget as
funding requirements grow for the Ohio-class replacement program over the next several
years. As a result, the committee recommends an increase of $400.0 million and
incremental funding authority for 1 Arleigh Burke-class destroyer in addition to the 10
DDG–51s in the fiscal year 2013–2017 multiyear procurement contract or for a DDG–51
in fiscal year 2018. (Page 24)
S.Rept. 114-49 also states:
Air and Missile Defense Radar backfit
The Navy designed the Air and Missile Defense Radar (AMDR) to be fully scalable and
modular to support a variety of shipboard radar applications on a variety of platforms.
The first AMDR will be on the second DDG–51 destroyer in the fiscal year 2016
shipbuilding program. As can be seen with the Aegis Ashore program, ship-based radars
such as AMDR also provide the foundation for land-based applications.
The committee directs the Assistant Secretary of the Navy for Research, Development,
and Acquisition (ASN (RDA)) to provide a report to congressional defense committees
on the Navy’s plan to employ AMDR technology in existing and future platforms across
the fleet. Additionally, the committee directs the Under Secretary of Defense for
Acquisition, Technology, and Logistics to report to the congressional defense committees
on whether and to what extent the Department of Defense could exploit the AMDR
scalability across radar acquisitions by the Army, Air Force, and Missile Defense Agency
to realize greater affordability through economies of scale. These reports shall be
provided with the fiscal year 2017 budget submission. (Page 212)
Conference Version (Version Vetoed)
The conference report (H.Rept. 114-270 of September 29, 2015) on H.R. 1735 (which was agreed
to by the House and Senate on October 1 and 7, 2015, respectively, and vetoed by the President
on October 22, 2015) recommends increasing by $400 million the Navy’s FY2016 request for
procurement funding for the DDG-51 program, with the increase being for “Incremental funding
for one DDG–51.” The report recommends approving the Navy’s FY2016 request for cost-to-
complete procurement funding for the DDG-51 program and procurement funding for the DDG-
1000 program. (Page 911, lines 007, 008, and page 912, line 025.) The report recommends
approving the Navy’s FY2016 request for research and development funding for the AMDR
(page 955, line 118).
Section 124 of H.R. 1735 states:
SEC. 124. Modification to multiyear procurement authority for Arleigh Burke class
destroyers and associated systems.
Section 123(a) of the National Defense Authorization Act for Fiscal Year 2013 (Public
Law 112–239; 126 Stat. 1655) is amended by inserting “or Flight III” after “Flight IIA”.
Section 123(a) of P.L. 112-239—the provision that would be amended by the above legislation—
currently states:
SEC. 123. MULTIYEAR PROCUREMENT AUTHORITY FOR ARLEIGH BURKE
CLASS DESTROYERS AND ASSOCIATED SYSTEMS.
(a) Authority for Multiyear Procurement.--Subject to section 2306b of title 10, United
States Code, the Secretary of the Navy may enter into one or more multiyear contracts,
Congressional Research Service
28

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

beginning with the fiscal year 2013 program year, for the procurement of up to 10
Arleigh Burke class Flight IIA guided missile destroyers, as well as the Aegis weapon
systems, MK 41 vertical launching systems, and commercial broadband satellite systems
associated with such vessels.
Regarding Section 124, H.Rept. 114-270 states:
Modification to multiyear procurement authority for Arleigh Burke-class destroyers and
associated systems (sec. 124)

The House bill contained a provision (sec. 121) that would amend section 123(a) of the
National Defense Authorization Act for Fiscal Year 2013 (Public Law 112–239) to
clarify that the Secretary of the Navy has the authority to procure Flight III destroyers as
part of the existing Arleigh Burke-class multiyear procurement authority.
The Senate amendment contained no similar provision.
The Senate recedes.
The Senate report accompanying S. 3254 (S. Rept. 112–173) of the National Defense
Authorization Act for Fiscal Year 2013 described Senate intent regarding the current
multiyear procurement authority for Arleigh Burke-class destroyers and associated
systems. The Senate report supported the change to buying Flight III destroyers through
an engineering change proposal and the inclusion of such ships in the multiyear
procurement authority, following submission of a specified report. The House report
accompanying H.R. 1960 (H. Rept. 113–102) of the National Defense Authorization Act
for Fiscal Year 2014 expressed concern about the physical limitations associated with the
integration of the Air and Missile Defense Radar on the Flight III version of the Arleigh
Burke-class destroyer and requested a report to assess this integration process. Having
received the required reports, the conferees support the changes proposed by the
Secretary of the Navy to integrate the Air and Missile Defense Radar into the Arleigh
Burke-class destroyers and the addition of these Flight III ships to the current Arleigh
Burke-class multiyear procurement contract. (Pages 608-609)
Section 125 of H.R. 1735 states:
SEC. 125. Procurement of additional Arleigh Burke class destroyer.
(a) Procurement authority.—
(1) ADDITIONAL DESTROYER.—The Secretary of the Navy may procure one Arleigh
Burke class destroyer, in addition to any other procurement of such ships otherwise
authorized by law, to be procured either—
(A) as an addition to the contract covering the 10 Arleigh Burke class destroyers
authorized to be procured under section 123 of the National Defense Authorization Act
for Fiscal Year 2013 (Public Law 112–239; 126 Stat. 1655); or
(B) under a separate contract in fiscal year 2018.
(2) INCREMENTAL FUNDING.—The Secretary may employ incremental funding for
the procurement authorized under paragraph (1).
(b) Condition on Out-year Contract Payments.—A contract entered into under subsection
(a) shall provide that any obligation of the United States to make a payment under such
contract for any fiscal year after fiscal year 2016 is subject to the availability of
appropriations for that purpose for such fiscal year.
Congressional Research Service
29

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

New Version (Following Veto)
Following the President’s veto of the conference version of H.R. 1735 (see above), a new version
of the FY2016 National Defense Authorization Act was prepared. S. 1356 is the expected
legislative vehicle for this new version. Compared to the vetoed version of H.R. 1735, this new
version of the FY2016 National Defense Authorization Act recommends increasing by $250
million (rather than $400 million, as in the vetoed version of H.R. 1735) the Navy’s FY2016
request for procurement funding for the DDG-51 program, with the increase being for
“Incremental funding for one DDG–51.” (Section 4101, Shipbuilding & Conversion, Navy, line
008.)
FY2016 DOD Appropriations Act (H.R. 2685/S. 1558)
House
The House Appropriations Committee, in its report (H.Rept. 114-139 of June 5, 2015) on H.R.
2685, recommends reducing by $136.799 million the Navy’s FY2016 request for procurement
funding for the DDG-51 program, with the reduction being for
 “Basic construction cost growth” ($31.488 million);
 “Change orders” ($83.903 million);
 “Main reduction gear contract savings” ($18.855 million); and
 “SPQ-9B [radar] cost growth” ($2.553 million). (Page 161)
The report recommends approving the Navy’s FY2016 request for cost-to-complete procurement
funding for the DDG-51 program procurement funding for the DDG-1000 program (page 160),
and reducing by $18.035 million the Navy’s FY2016 request for research and development
funding for the AMDR, with the reduction being for “Program execution” (page 237, line 118).
Senate
The Senate Appropriations Committee, in its report (S.Rept. 114-63 of June 11, 2015) on S. 1558,
recommends increasing by $1 billion the Navy’s FY2016 request for procurement funding for the
DDG-51 program, with the increase being for “Program increase: Funding to support incremental
funding authorization for an additional DDG-51” (page 100, line 8), approving the Navy’s
FY2016 request for procurement funding for the DDG-1000 program (page 98, line 7), and
approving the Navy’s FY2016 request for research and development funding for the AMDR
(page 160, line 118).
S.Rept. 114-63 states:
Shipbuilding Industrial Base and Workload Allocation.—As expressed in the report
accompanying the Senate version of the fiscal year 2015 Department of Defense
Appropriations Bill (Senate Report 113–211), the Committee remains concerned about
the overall health of the shipbuilding industrial base and specifically about the health of
the non-nuclear surface combatant shipbuilding industry. In compliance with Senate
Report 113–211, the Navy submitted a report to Congress dated February 25, 2015, titled
‘‘Shipbuilding Industrial Base and Workload Allocation’’. The Committee was
disappointed when this report failed to describe how the Navy intended to meet its
remaining obligations under a 2002 workload allocation agreement that the Navy
reaffirmed in 2009 and still considers ‘‘in full force and effect.’’ While Congress is not a
party to this agreement, the Committee finds it unacceptable that the Navy is unable ‘‘to
determine the extent to which its obligations relating to the workload allocation provision
Congressional Research Service
30

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

remain unfulfilled.’’ The Committee also finds it troubling that the Navy communicated
to Congress that it ‘‘has not fully considered all of the options’’ related to the agreement.
Consistent with the intent of the agreement signed by the Navy, funding for an additional
DDG–51 Arleigh Burke-class destroyer would preserve options for maintaining an
efficient and stable nonnuclear shipbuilding industrial base. It would also mitigate
unfulfilled combatant commander requirements for large surface combatants. In addition,
according to section 117 of S. 1376, the National Defense Authorization Act for Fiscal
Year 2016, as reported, the Secretary of the Navy is authorized to incrementally fund an
additional DDG–51 Arleigh Burke-class destroyer. Therefore, the Committee
recommends an increase of $1,000,000,000 in incremental funding for one Arleigh
Burke-class destroyer in addition to the ten DDG–51s in the fiscal year 2013–2017
multiyear procurement contract. (Page 101)
Congressional Research Service
31

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Appendix A. Additional Background Information
on DDG-1000 Program
This appendix presents additional background information on the DDG-1000 program.
Program Origin
The program known today as the DDG-1000 program was announced on November 1, 2001,
when the Navy stated that it was replacing a destroyer-development effort called the DD-21
program, which the Navy had initiated in the mid-1990s, with a new Future Surface Combatant
Program aimed at developing and acquiring a family of three new classes of surface
combatants:41
a destroyer called DD(X) for the precision long-range strike and naval gunfire
mission;
a cruiser called CG(X) for the air defense and ballistic missile mission; and
a smaller combatant called the Littoral Combat Ship (LCS) to counter
submarines, small surface attack craft (also called “swarm boats”), and mines in
heavily contested littoral (near-shore) areas.42
On April 7, 2006, the Navy announced that it had redesignated the DD(X) program as the DDG-
1000 program. The Navy also confirmed in that announcement that the first ship in the class,
DDG-1000, is to be named the Zumwalt, in honor of Admiral Elmo R. Zumwalt, the Chief of
Naval operations from 1970 to 1974. The decision to name the first ship after Zumwalt was made
by the Clinton Administration in July 2000, when the program was still called the DD-21
program.43
New Technologies
The DDG-1000 incorporates a significant number of new technologies, including a wave-
piercing, tumblehome hull design for reduced detectability,44 a superstructure made partly of large
sections of composite (i.e., fiberglass-like) materials rather than steel or aluminum, an integrated
electric-drive propulsion system,45 a total-ship computing system for moving information about

41 The DD-21 program was part of a Navy surface combatant acquisition effort begun in the mid-1990s and called the
SC-21 (Surface Combatant for the 21st Century) program. The SC-21 program envisaged a new destroyer called DD-21
and a new cruiser called CG-21. When the Navy announced the Future Surface Combatant Program in 2001,
development work on the DD-21 had been underway for several years, while the start of development work on the CG-
21 was still years in the future. The current DDG-1000 destroyer CG(X) cruiser programs can be viewed as the
descendants, respectively, of the DD-21 and CG-21. The acronym SC-21 is still used in the Navy’s research and
development account to designate the line item (i.e., program element) that funds development work on both the DDG-
1000 and CG(X).
42 For more on the LCS program, see CRS Report RL33741, Navy Littoral Combat Ship (LCS)/Frigate Program:
Background and Issues for Congress
, by Ronald O'Rourke.
43 For more on Navy ship names, see CRS Report RS22478, Navy Ship Names: Background for Congress, by Ronald
O’Rourke.
44 A tumblehome hull slopes inward, toward the ship’s centerline, as it rises up from the waterline, in contrast to a
conventional flared hull, which slopes outward as it rises up from the waterline.
45 For more on integrated electric-drive technology, see CRS Report RL30622, Electric-Drive Propulsion for U.S. Navy
Ships: Background and Issues for Congress
, by Ronald O’Rourke.
Congressional Research Service
32

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

the ship, automation technologies enabling its reduced-sized crew, a dual-band radar, a new kind
of vertical launch system (VLS) for storing and firing missiles, and two copies of a 155mm gun
called the Advanced Gun System (AGS). The AGS is to fire a new rocket-assisted 155mm shell,
called the Long Range Land Attack Projectile (LRLAP), to ranges of more than 60 nautical miles.
The DDG-1000 can carry 600 LRLAP rounds (300 for each gun), and additional rounds can be
brought aboard the ship while the guns are firing, creating what Navy officials call an “infinite
magazine.”
Planned Quantity
When the DD-21 program was initiated, a total of 32 ships was envisaged. In subsequent years,
the planned total for the DD(X)/DDG-1000 program was reduced to 16 to 24, then to 7, and
finally to 3.
Construction Shipyards
Under a DDG-1000 acquisition strategy approved by the Under Secretary of Defense for
Acquisition, Technology, and Logistics (USD AT&L) on February 24, 2004, the first DDG-1000
was to have been built by HII/Ingalls, the second ship was to have been built by GD/BIW, and
contracts for building the first six were to have been equally divided between HII/Ingalls46 and
GD/BIW.
In February 2005, Navy officials announced that they would seek approval from USD AT&L to
instead hold a one-time, winner-take-all competition between HII/Ingalls and GD/BIW to build
all DDG-1000s. On April 20, 2005, the USD AT&L issued a decision memorandum deferring this
proposal, stating in part, “at this time, I consider it premature to change the shipbuilder portion of
the acquisition strategy which I approved on February 24, 2004.”
Several Members of Congress also expressed opposition to Navy’s proposal for a winner-take-all
competition. Congress included a provision (§1019) in the Emergency Supplemental
Appropriations Act for 2005 (H.R. 1268/P.L. 109-13 of May 11, 2005) prohibiting a winner-take-
all competition. The provision effectively required the participation of at least one additional
shipyard in the program but did not specify the share of the program that is to go to the additional
shipyard.
On May 25, 2005, the Navy announced that, in light of Section 1019 of P.L. 109-13, it wanted to
shift to a “dual-lead-ship” acquisition strategy, under which two DDG-1000s would be procured
in FY2007, with one to be designed and built by HII/Ingalls and the other by GD/BIW.
Section 125 of the FY2006 defense authorization act (H.R. 1815/P.L. 109-163) again prohibited
the Navy from using a winner-take-all acquisition strategy for procuring its next-generation
destroyer. The provision again effectively requires the participation of at least one additional
shipyard in the program but does not specify the share of the program that is to go to the
additional shipyard.
On November 23, 2005, the USD AT&L granted Milestone B approval for the DDG-1000,
permitting the program to enter the System Development and Demonstration (SDD) phase. As
part of this decision, the USD AT&L approved the Navy’s proposed dual-lead-ship acquisition

46 At the time of the events described in this section, HII was owned by Northrop Grumman and was called Northrop
Grumman Shipbuilding (NGSB).
Congressional Research Service
33

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

strategy and a low rate initial production quantity of eight ships (one more than the Navy
subsequently planned to procure).
On February 14, 2008, the Navy awarded contract modifications to GD/BIW and HII/Ingalls for
the construction of the two lead ships. The awards were modifications to existing contracts that
the Navy has with GD/BIW and HII/Ingalls for detailed design and construction of the two lead
ships. Under the modified contracts, the line item for the construction of the dual lead ships is
treated as a cost plus incentive fee (CPIF) item.
Until July 2007, it was expected that HII/Ingalls would be the final-assembly yard for the first
DDG-1000 and that GD/BIW would be the final-assembly yard for the second. On September 25,
2007, the Navy announced that it had decided to build the first DDG-1000 at GD/BIW, and the
second at HII/Ingalls.
On January 12, 2009, it was reported that the Navy, HII/Ingalls, and GD/BIW in the fall of 2008
began holding discussions on the idea of having GD/BIW build both the first and second DDG-
1000s, in exchange for HII/Ingalls receiving a greater share of the new DDG-51s that would be
procured under the Navy’s July 2008 proposal to stop DDG-1000 procurement and restart DDG-
51 procurement.47
On April 8, 2009, it was reported that the Navy had reached an agreement with HII/Ingalls and
GD/BIW to shift the second DDG-1000 to GD/BIW, and to have GD/BIW build all three ships.
HII/Iingalls will continue to make certain parts of the three ships, notably their composite
deckhouses. The agreement to have all three DDG-1000s built at GD/BIW was a condition that
Secretary of Defense Robert Gates set forth in an April 6, 2009, news conference on the FY2010
defense budget for his support for continuing with the construction of all three DDG-1000s
(rather than proposing the cancellation of the second and third).
Procurement Cost Cap
Section 123 of the FY2006 defense authorization act (H.R. 1815/P.L. 109-163 of January 6, 2006)
limited the procurement cost of the fifth DDG-1000 to $2.3 billion, plus adjustments for inflation
and other factors. Given the truncation of the DDG-1000 program to three ships, this unit
procurement cost cap appears moot.
2010 Nunn-McCurdy Breach, Program Restructuring, and
Milestone Recertification
On February 1, 2010, the Navy notified Congress that the DDG-1000 program had experienced a
critical cost breach under the Nunn-McCurdy provision. The Nunn-McCurdy provision (10
U.S.C. 2433a) requires certain actions to be taken if a major defense acquisition program exceeds
(i.e., breaches) certain cost-growth thresholds and is not terminated. Among other things, a
program that experiences a cost breach large enough to qualify under the provision as a critical
cost breach has its previous acquisition system milestone certification revoked. (In the case of the
DDG-1000 program, this was Milestone B.) In addition, for the program to proceed rather than be
terminated, DOD must certify certain things, including that the program is essential to national

47 Christopher P. Cavas, “Will Bath Build Second DDG 1000?” Defense News, January 12, 2009: 1, 6.
Congressional Research Service
34

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

security and that there are no alternatives to the program that will provide acceptable capability to
meet the joint military requirement at less cost.48
The Navy stated in its February 1, 2010, notification letter that the DDG-1000 program’s critical
cost breach was a mathematical consequence of the program’s truncation to three ships.49 Since
the DDG-1000 program has roughly $9.3 billion in research and development costs, truncating
the program to three ships increased to roughly $3.1 billion the average amount of research and
development costs that are included in the average acquisition cost (i.e., average research and
development cost plus procurement cost) of each DDG-1000. The resulting increase in program
acquisition unit cost (PAUC)—one of two measures used under the Nunn-McCurdy provision for
measuring cost growth50—was enough to cause a Nunn-McCurdy critical cost breach.
In a June 1, 2010, letter (with attachment) to Congress, Ashton Carter, the DOD acquisition
executive (i.e., the Under Secretary of Defense for Acquisition, Technology and Logistics), stated
that he had restructured the DDG-1000 program and that he was issuing the certifications
required under the Nunn-McCurdy provision for the restructured DDG-1000 program to
proceed.51 The letter stated that the restructuring of the DDG-1000 program included the
following:
 A change to the DDG-1000’s design affecting its primary radar.
 A change in the program’s Initial Operational Capability (IOC) from FY2015 to
FY2016.
 A revision to the program’s testing and evaluation requirements.
Regarding the change to the ship’s design affecting its primary radar, the DDG-1000 originally
was to have been equipped with a dual-band radar (DBR) consisting of the Raytheon-built X-
band SPY-3 multifunction radar (MFR) and the Lockheed-built S-band SPY-4 Volume Search
Radar (VSR). (Raytheon is the prime contractor for the overall DBR.) Both parts of the DBR
have been in development for the past several years. An attachment to the June 1, 2010, letter
stated that, as a result of the program’s restructuring, the ship is now to be equipped with “an
upgraded multifunction radar [MFR] and no volume search radar [VSR].” The change eliminates
the Lockheed-built S-band SPY-4 VSR from the ship’s design. The ship might retain a space and
weight reservation that would permit the VSR to be backfitted to the ship at a later point. The
Navy states that
As part of the Nunn-McCurdy certification process, the Volume Search Radar (VSR)
hardware was identified as an acceptable opportunity to reduce cost in the program and
thus was removed from the current baseline design....
Modifications will be made to the SPY-3 Multi-Function Radar (MFR) with the focus of
meeting ship Key Performance Parameters. The MFR modifications will involve

48 For more on the Nunn-McCurdy provision, see CRS Report R41293, The Nunn-McCurdy Act: Background,
Analysis, and Issues for Congress
, by Moshe Schwartz.
49 Source: Letter to congressional offices dated February 1, 2010, from Robert O. Work, Acting Secretary of the Navy,
to Representative Ike Skelton, provided to CRS by Navy Office of Legislative Affairs on February 24, 2010.
50 PAUC is the sum of the program’s research and development cost and procurement cost divided by the number of
units in the program. The other measure used under the Nunn-McCurdy provision to measure cost growth is average
program unit cost (APUC), which is the program’s total procurement cost divided by the number of units in the
program.
51 Letter dated June 1, 2010, from Ashton Carter, Under Secretary of Defense (Acquisition, Technology and Logistics)
to the Honorable Ike Skelton, with attachment. The letter and attachment were posted on InsideDefense.com
(subscription required) on June 2, 2010.
Congressional Research Service
35

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

software changes to perform a volume search functionality. Shipboard operators will be
able to optimize the SPY-3 MFR for either horizon search or volume search. While
optimized for volume search, the horizon search capability is limited. Without the VSR,
DDG 1000 is still expected to perform local area air defense....
The removal of the VSR will result in an estimated $300 million net total cost savings for
the three-ship class. These savings will be used to offset the program cost increase as a
result of the truncation of the program to three ships. The estimated cost of the MFR
software modification to provide the volume search capability will be significantly less
than the estimated procurement costs for the VSR.52
Regarding the figure of $300 million net total cost savings in the above passage, the Navy during
2011 determined that eliminating the SPY-4 VSR from the DDG-1000 increased by $54 million
the cost to integrate the dual-band radar into the Navy’s new Gerald R. Ford (CVN-78) class
aircraft carriers.53 Subtracting this $54 million cost from the above $300 million savings figure
would bring the net total cost savings to about $246 million on a Navy-wide basis.
A July 26, 2010, press report quotes Captain James Syring, the DDG-1000 program manager, as
stating: “We don’t need the S-band radar to meet our requirements [for the DDG-1000],” and
“You can meet [the DDG-1000’s operational] requirements with [the] X-band [radar] with
software modifications.”54
An attachment to the June 1, 2010, letter stated that the PAUC for the DDG-1000 program had
increased 86%, triggering the Nunn-McCurdy critical cost breach, and that the truncation of the
program to three ships was responsible for 79 of the 86 percentage points of increase. (The
attachment stated that the other seven percentage points of increase are from increases in
development costs that are primarily due to increased research and development work content for
the program.)
Carter also stated in his June 1, 2010, letter that he had directed that the DDG-1000 program be
funded, for the period FY2011-FY2015, to the cost estimate for the program provided by the Cost
Assessment and Program Evaluation (CAPE) office (which is a part of the Office of the Secretary
of Defense [OSD]), and, for FY2016 and beyond, to the Navy’s cost estimate for the program.
The program was previously funded to the Navy’s cost estimate for all years. Since CAPE’s cost
estimate for the program is higher than the Navy’s cost estimate, funding the program to the
CAPE estimate for the period FY2011-FY2015 will increase the cost of the program as it appears
in the budget for those years. The letter states that DOD “intends to address the [resulting]
FY2011 [funding] shortfall [for the DDG-1000 program] through reprogramming actions.”
An attachment to the letter stated that the CAPE in May 2010 estimated the PAUC of the DDG-
1000 program (i.e., the sum of the program’s research and development costs and procurement
costs, divided by the three ships in the program) as $7.4 billion per ship in then-year dollars
($22.1 billion in then-year dollars for all three ships), and the program’s average procurement unit
cost (APUC), which is the program’s total procurement cost divided by the three ships in the
program, as $4.3 billion per ship in then-year dollars ($12.8 billion in then-year dollars for all
three ships). The attachment stated that these estimates are at a confidence level of about 50%,

52 Source: Undated Navy information paper on DDG-51 program restructuring provided to CRS and CBO by Navy
Office of Legislative Affairs on July 19, 2010.
53 Source: Undated Navy information paper on CVN-78 cost issues, provided by Navy Office of Legislative Affairs to
CRS on March 19, 2012.
54 Cid Standifer, “Volume Radar Contracted For DDG-1000 Could Be Shifted To CVN-79,” Inside the Navy, July 26,
2010.
Congressional Research Service
36

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

meaning that the CAPE believes there is a roughly 50% chance that the program can be
completed at or under these cost estimates, and a roughly 50% chance that the program will
exceed these cost estimates.
An attachment to the letter directed the Navy to “return for a Defense Acquisition Board (DAB)
review in the fall 2010 timeframe when the program is ready to seek approval of the new
Milestone B and authorization for production of the DDG-1002 [i.e., the third ship in the
program].”
On October 8, 2010, DOD reinstated the DDG-1000 program’s Milestone B certification and
authorized the Navy to continue production of the first and second DDG-1000s and commence
production of the third DDG-1000.55
Under Secretary of Defense Ashton Carter’s June 1, 2010, letter and attachment restructuring the
DDG-1000 program and DOD’s decision on October 8, 2010, to reinstate the DDG-1000
program’s Milestone B certification raise the following potential oversight questions for
Congress:
 Why did DOD decide, as part of its restructuring of the DDG-1000 program, to
change the primary radar on the DDG-1000?
 What are the potential risks to the DDG-1000 program of changing its primary
radar at this stage in the program (i.e., with the first ship under construction, and
preliminary construction activities underway on the second ship)?
 How will the upgraded MFR differ in cost, capabilities, and technical risks from
the baseline MFR included in the original DDG-1000 design?
 What is the net impact on the capabilities of the DDG-1000 of the change to the
DDG-1000’s primary radar (i.e., of removing the VSR and upgrading the MFR)?
 Given change to the DDG-1000’s primary radar and the May 2010 CAPE
estimates of the program’s program acquisition unit cost (PAUC) and average
program unit cost (APUC), is the DDG-1000 program still cost effective?
 What impact on cost, schedule, or technical risk, if any, will the removal of the
VSR from the DDG-1000 design have on the Navy’s plan to install the dual-band
radar (DBR), including the VSR, on the Ford (CVN-78) class aircraft carriers
CVN-78 and CVN-79?56
March 2014 GAO Report
A March 2014 GAO report assessing selected major DOD weapon acquisition programs stated
the following of the DDG-1000 program:
Technology Maturity
The DDG-1000 program has made progress in developing its critical technologies.
However, only 3 of 11 are mature and the remaining 8 will not be demonstrated in a
realistic environment until after installation on the lead ship. Guided flight tests of the
gun system’s long-range land-attack projectile were successfully completed in October

55 Christopher J. Castelli, “Pentagon Approves Key Milestone For Multibillion-Dollar Destroyer,” Inside the Navy,
November 22, 2010.
56 For more on these aircraft carriers, see CRS Report RS20643, Navy Ford (CVN-78) Class Aircraft Carrier Program:
Background and Issues for Congress
, by Ronald O'Rourke.
Congressional Research Service
37

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

2013. After significant cost growth and development challenges, all six software releases
for the total ship computing environment have been completed and certified to support
lead ship activation and delivery and a software spiral update is under contract timed to
support initial operating capability. Following a critical Nunn-McCurdy unit-cost breach
in 2010, DOD restructured the program and removed the volume search radar from the
ship’s design. A modified multifunction radar is expected to begin land based testing in
2014, followed by at- sea testing in 2015.
Design and Production Maturity
The DDG 1000 design is largely mature. According to the program manager and ship
builder, as of October 2013, production and test efforts for the first two ships were 88 and
70 percent complete, respectively. While few design changes have resulted from lead
ship construction, shipbuilders have experienced challenges with the manufacture and
integration of the composite deckhouse for the first and second ships, resulting in rework
and schedule delays particularly on the first ship. The Navy has emphasized a joint
inspection process whereby the prime contractors and the Navy validate product quality
and completeness prior to integration with the hull. After assessing alternatives and
conducting a competition, the Navy decided to build the third ship’s deckhouse and
hangar with steel as a cost saving measure as the program manager noted that the Navy
has better cost insights into the long-term maintenance of steel compared to composite
materials.
Other Program Issues
Delivery of the lead ship (hull, mechanical and electrical systems) may slip past the
currently scheduled date of September 2014 and the Navy is in the process of assessing
the delivery date. If delivery slips past October 2014, the program will breach its
acquisition program baseline schedule requirements. According to the Navy, the delay is
the result of difficulties in completing the ship’s electrical systems, which is impacting
test and activation events.
The program has awarded all major contracts for the three ships in the DDG 1000 class
among four prime contractors. As the integrator, the Navy is responsible for ensuring on-
time delivery of products and bears the costs of schedule delays that affect another
contractor. Bath Iron Works is now producing the hull for all three ships. In August 2013,
the Navy awarded a fixed price contract to Bath Iron Works for a steel deckhouse,
hangar, and aft peripheral vertical launching system for the third ship. According to the
program manager, the shipbuilder negotiated a 5- and 10-month delivery delay for the
second and third ship, respectively.
Program officials also reported that the program absorbed sequestration reductions of $70
million in fiscal year 2013 by delaying testing and the award of contracts for mission-
related equipment. The program is also incorporating technical configuration changes
resulting from the configuration steering board and Nunn-McCurdy annual cost review
aimed at maintaining capability and minimizing costs. For example, the program
manager told us the program assessed alternatives to the close in gun system and chose a
legacy system that met requirements with about half the weight and cost.
Program Office Comments
In commenting on a draft of this assessment the Navy noted that the DDG 1000 lead ship
was successfully launched in October 2013, a christening is scheduled for April 2014,
and activation activities continue. For the second ship, keel laying and hangar erection
have occurred, hull integration is underway, and deckhouse delivery is scheduled for
spring 2014. The Navy noted that significant integration efforts between four prime
Congressional Research Service
38

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

contractors continue with a focus on cost reduction and schedule performance. The Navy
also provided technical comments, which were incorporated where deemed appropriate.57


57 Government Accountability Office, Defense Acquisitions[:] Assessments of Selected Weapon Programs, GAO-14-
340SP, March 2014, p. 60.
Congressional Research Service
39

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Appendix B. Additional Background Information
on CG(X) Cruiser Program

Background Information on CG(X) Program
The CG(X) cruiser program was announced by the Navy on November 1, 2001.58 The Navy
wanted to procure as many as 19 CG(X)s as replacements for its 22 CG-47s, which are projected
to reach the end of their 35-year service lives between 2021 and 2029. The CG-47s are multi-
mission ships with an emphasis on AAW and (for some CG-47s) BMD, and the Navy similarly
wanted the CG(X) to be a multi-mission ship with an emphasis on AAW and BMD. The CG(X)
was to carry the Air and Missile Defense Radar (AMDR), a new radar that was to be considerably
larger and more powerful than the SPY-1 radar carried on the Navy’s Aegis ships. Some press
reports suggested that a nuclear-powered version of the CG(X) might have had a full load
displacement of more than 20,000 tons and a unit procurement cost of $5 billion or more.59
The Navy’s FY2009 budget called for procuring the first CG(X) in FY2011. Beginning in late
2008, however, it was reported that the Navy had decided to defer the procurement of the first
CG(X) by several years, to about FY2017.60 Consistent with these press reports, on April 6, 2009,

58 The Navy on that date announced that that it was launching a Future Surface Combatant Program aimed at acquiring
a family of next-generation surface combatants. This new family of surface combatants, the Navy stated, would include
three new classes of ships:

a destroyer called the DD(X)—later redesignated DDG-1000—for the precision long-range strike and naval
gunfire mission,

a cruiser called the CG(X) for the AAW and BMD mission, and

a smaller combatant called the Littoral Combat Ship (LCS) to counter submarines, small surface attack craft,
and mines in heavily contested littoral (near-shore) areas.
The Future Surface Combatant Program replaced an earlier Navy surface combatant acquisition effort, begun in the
mid-1990s, called the Surface Combatant for the 21st Century (SC-21) program. The SC-21 program encompassed a
planned destroyer called DD-21 and a planned cruiser called CG-21. When the Navy announced the Future Surface
Combatant Program in 2001, development work on the DD-21 had been underway for several years, but the start of
development work on the CG-21 was still years in the future. The DD(X) program, now called the DDG-1000 or
Zumwalt-class program, is essentially a restructured continuation of the DD-21 program. The CG(X) might be
considered the successor, in planning terms, of the CG-21. After November 1, 2001, the acronym SC-21 continued for
a time to be used in the Navy’s research and development account to designate a line item (i.e., program element) that
funded development work on the DDG-1000 and CG(X).
59 For a discussion of nuclear power for Navy surface ships other than aircraft carriers, see CRS Report RL33946, Navy
Nuclear-Powered Surface Ships: Background, Issues, and Options for Congress
, by Ronald O’Rourke.
60 Zachary M. Peterson, “Navy Awards Technology Company $128 Million Contract For CG(X) Work,” Inside the
Navy
, October 27, 2008. Another press report (Katherine McIntire Peters, “Navy’s Top Officer Sees Lessons in
Shipbuilding Program Failures,” GovernmentExecutive.com, September 24, 2008) quoted Admiral Gary Roughead, the
Chief of Naval Operations, as saying: “What we will be able to do is take the technology from the DDG-1000, the
capability and capacity that [will be achieved] as we build more DDG-51s, and [bring those] together around 2017 in a
replacement ship for our cruisers.” (Material in brackets in the press report.) Another press report (Zachary M.
Peterson, “Part One of Overdue CG(X) AOA Sent to OSD, Second Part Coming Soon,” Inside the Navy, September 29,
2008) quoted Vice Admiral Barry McCullough, the Deputy Chief of Naval Operations for Integration of Capabilities
and Resources, as saying that the Navy did not budget for a CG(X) hull in its proposal for the Navy’s budget under the
FY2010-FY2015 Future Years Defense Plan (FYDP) to be submitted to Congress in early 2009.
An earlier report (Christopher P. Cavas, “DDG 1000 Destroyer Program Facing Major Cuts,” DefenseNews.com, July
14, 2008) stated that the CG(X) would be delayed until FY2015 or later. See also Geoff Fein, “Navy Likely To Change
CG(X)’s Procurement Schedule, Official Says,” Defense Daily, June 24, 2008; Rebekah Gordon, “Navy Agrees CG(X)
By FY-11 Won’t Happen But Reveals Little Else,” Inside the Navy, June 30, 2008.
Congressional Research Service
40

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

Secretary of Defense Robert Gates announced—as part of a series of recommendations for the
then-forthcoming FY2010 defense budget—a recommendation to “delay the CG-X next
generation cruiser program to revisit both the requirements and acquisition strategy” for the
program.61 The Navy’s proposed FY2010 budget deferred procurement of the first CG(X) beyond
FY2015.
Cancellation of CG(X) Program
The Navy’s FY2011 budget proposed terminating the CG(X) program as unaffordable. The
Navy’s desire to cancel the CG(X) and instead procure Flight III DDG-51s apparently took shape
during 2009: at a June 16, 2009, hearing before the Seapower Subcommittee of the Senate Armed
Services Committee, the Navy testified that it was conducting a study on destroyer procurement
options for FY2012 and beyond that was examining design options based on either the DDG-51
or DDG-1000 hull form.62 A January 2009 memorandum from the Department of Defense
acquisition executive had called for such a study.63 In September and November 2009, it was
reported that the Navy’s study was examining how future requirements for AAW and BMD
operations might be met by a DDG-51 or DDG-1000 hull equipped with a new radar.64 On
December 7, 2009, it was reported that the Navy wanted to cancel its planned CG(X) cruiser and
instead procure an improved version of the DDG-51.65 In addition to being concerned about the
projected high cost and immature technologies of the CG(X),66 the Navy reportedly had
concluded that it does not need a surface combatant with a version of the AMDR as large and
capable as the one envisaged for the CG(X) to adequately perform projected AAW and BMD
missions, because the Navy will be able to augment data collected by surface combatant radars
with data collected by space-based sensors. The Navy reportedly concluded that using data
collected by other sensors would permit projected AAW and BMD missions to be performed
adequately with a radar smaller enough to be fitted onto the DDG-51.67 Reports suggested that the

61 Source: Opening remarks of Secretary of Defense Robert Gates at an April 6, 2009, news conference on DOD
recommendations for the then-forthcoming FY2010 defense budget.
62 Source: Transcript of spoken remarks of Vice Admiral Bernard McCullough at a June 16, 2009, hearing on Navy
force structure shipbuilding before the Seapower subcommittee of the Senate Armed Services Committee.
63 A January 26, 2009, memorandum for the record from John Young, the then-DOD acquisition executive, stated that
“The Navy proposed and OSD [the Office of the Secretary of Defense] agreed with modification to truncate the DDG-
1000 Program to three ships in the FY 2010 budget submission.” The memo proposed procuring one DDG-51 in
FY2010 and two more FY2011, followed by the procurement in FY2012-FY2015 (in annual quantities of 1, 2, 1, 2) of
a ship called the Future Surface Combatant (FSC) that could be based on either the DDG-51 design or the DDG-1000
design. The memorandum stated that the FSC might be equipped with a new type of radar, but the memorandum did
not otherwise specify the FSC’s capabilities. The memorandum stated that further analysis would support a decision on
whether to base the FSC on the DDG-51 design or the DDG-1000 design. (Memorandum for the record dated January
26, 2009, from John Young, Under Secretary of Defense [Acquisition, Technology and Logistics], entitled “DDG 1000
Program Way Ahead,” posted on InsideDefense.com [subscription required].)
64 Zachary M. Peterson, “Navy Slated To Wrap Up Future Destroyer Hull And Radar Study,” Inside the Navy,
September 7, 2009. Christopher P. Cavas, “Next-Generation U.S. Warship Could Be Taking Shape,” Defense News,
November 2, 2009: 18, 20.
65 Christopher J. Castelli, “Draft Shipbuilding Report Reveals Navy Is Killing CG(X) Cruiser Program,” Inside the
Navy
, December 7, 2009.
66 Christopher J. Castelli, “Draft Shipbuilding Report Reveals Navy Is Killing CG(X) Cruiser Program,” Inside the
Navy
, December 7, 2009.
67 Amy Butler, “STSS Prompts Shift in CG(X) Plans,” Aerospace Daily & Defense Report, December 11, 2009: 1-2.
Congressional Research Service
41

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

new smaller radar would be a scaled-down version of the AMDR originally intended for the
CG(X).68
The Navy’s February 2010 report on its FY2011 30-year (FY2011-FY2040) shipbuilding plan,
submitted to Congress in conjunction with the FY2011 budget, states that the 30-year plan:
Solidifies the DoN’s [Department of the Navy’s] long-term plans for Large Surface
Combatants by truncating the DDG 1000 program, restarting the DDG 51 production
line, and continuing the Advanced Missile Defense Radar (AMDR) development efforts.
Over the past year, the Navy has conducted a study that concludes a DDG 51 hull form
with an AMDR suite is the most cost-effective solution to fleet air and missile defense
requirements over the near to mid-term....
The Navy, in consultation with OSD, conducted a Radar/Hull Study for future destroyers.
The objective of the study was to provide a recommendation for the total ship system
solution required to provide Integrated Air and Missile Defense (IAMD) (simultaneous
ballistic missile and anti-air warfare (AAW) defense) capability while balancing
affordability with capacity. As a result of the study, the Navy is proceeding with the Air
and Missile Defense Radar (AMDR) program....
As discussed above, the DDG 51 production line has been restarted. While all of these
new-start guided missile destroyers will be delivered with some BMD capability, those
procured in FY 2016 and beyond will be purpose-built with BMD as a primary mission.
While there is work to be done in determining its final design, it is envisioned that this
DDG 51 class variant will have upgrades to radar and computing performance with the
appropriate power generation capacity and cooling required by these enhancements.
These upgraded DDG 51 class ships will be modifications of the current guided missile
destroyer design that combine the best emerging technologies aimed at further increasing
capabilities in the IAMD arena and providing a more effective bridge between today’s
capability and that originally planned for the CG(X). The ships reflected in this program
have been priced based on continuation of the existing DDG 51 re-start program. Having
recently completed the Hull and Radar Study, the Department is embarking on the
requirements definition process for these AMDR destroyers and will adjust the pricing
for these ships in future reports should that prove necessary.69
In testimony to the House and Senate Armed Services Committees on February 24 and 25, 2010,
respectively, Admiral Gary Roughead, the Chief of Naval Operations, stated:
Integrated Air and Missile Defense (IAMD) incorporates all aspects of air defense against
ballistic, anti-ship, and overland cruise missiles. IAMD is vital to the protection of our
force, and it is an integral part of our core capability to deter aggression through
conventional means....
To address the rapid proliferation of ballistic and anti-ship missiles and deep-water
submarine threats, as well as increase the capacity of our multipurpose surface ships, we
restarted production of our DDG 51 Arleigh Burke Class destroyers (Flight IIA series).
These ships will be the first constructed with IAMD, providing much-needed Ballistic
Missile Defense (BMD) capacity to the Fleet, and they will incorporate the hull,
mechanical, and electrical alterations associated with our mature DDG modernization

68 Cid Standifer, “NAVSEA Plans To Solicit Contracts For Air And Missile Defense Radar,” Inside the Navy,
December 28, 2009; “Navy Issues RFP For Phase II of Air And Missile Defense Radar Effort,” Defense Daily,
December 24, 2009: 4.
69 U.S. Navy, Report to Congress on Annual Long-Range Plan for Construction of Naval Vessels for FY 2011,
February 2010, pp. 12, 13, 19. The first reprinted paragraph, taken from page 12, also occurs on page 3 as part of the
executive summary.
Congressional Research Service
42

Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress

program. We will spiral DDG 51 production to incorporate future integrated air and
missile defense capabilities....
The Navy, in consultation with the Office of the Secretary of Defense, conducted a
Radar/Hull Study for future surface combatants that analyzed the total ship system
solution necessary to meet our IAMD requirements while balancing affordability and
capacity in our surface Fleet. The study concluded that Navy should integrate the Air and
Missile Defense Radar program S Band radar (AMDR-S), SPY-3 (X Band radar), and
Aegis Advanced Capability Build (ACB) combat system into a DDG 51 hull. While our
Radar/Hull Study indicated that both DDG 51 and DDG 1000 were able to support our
preferred radar systems, leveraging the DDG 51 hull was the most affordable option.
Accordingly, our FY 2011 budget cancels the next generation cruiser program due to
projected high cost and risk in technology and design of this ship. I request your support
as we invest in spiraling the capabilities of our DDG 51 Class from our Flight IIA
Arleigh Burke ships to Flight III ships, which will be our future IAMD-capable surface
combatant. We will procure the first Flight III ship in FY 2016.70

Author Contact Information

Ronald O'Rourke

Specialist in Naval Affairs
rorourke@crs.loc.gov, 7-7610


70 Statement of Admiral Gary Roughead, Chief of Naval Operations, before the House Armed Services Committee on
24 February, 2010, pp. 10-11; and Statement of Admiral Gary Roughead, Chief of Naval Operations, before the Senate
Armed Services Committee on 25 February 2010, pp. 10-11.
Congressional Research Service
43