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October 29, 2020
Navy Next-Generation Logistics Ship (NGLS) Program:
Background and Issues for Congress
Introduction
on a relatively small number of large, high-value U.S. Navy
The Navy’s Next-Generation Logistics Ship (NGLS)
ships. Under EABO, relatively small Marine Corps units
program envisages procuring a new class of medium-sized
armed with anti-ship cruise missiles and other weapons
at-sea resupply ships for the Navy. The Navy’s proposed
would hop on and off islands in the Western Pacific to
FY2021 budget requests $30.0 million in research and
conduct “shoot-and-scoot†operations against adversary
development (R&D) funding for the program. The issue for
ships. For more on DMO, EABO, and the Navy’s more
Congress is whether to approve, reject, or modify the
distributed fleet architecture, see CRS Report RL32665,
Navy’s proposed FY2021 funding request and emerging
Navy Force Structure and Shipbuilding Plans: Background
acquisition strategy for the NGLS program. Congress’s
and Issues for Congress, by Ronald O'Rourke, and CRS
decisions on this issue could affect Navy capabilities and
Report R46374, Navy Light Amphibious Warship (LAW)
funding requirements, and the U.S. shipbuilding industrial
Program: Background and Issues for Congress, by Ronald
base.
O'Rourke.
Terminology
Logistics Ships Currently Being Procured
The Navy’s Combat Logistics Force (CLF) ships, also
The Navy is currently procuring new John Lewis (TAO-
called underway replenishment (UNREP) ships, are
205) class oilers (Figure 1), which are large CLF ships. For
logistics ships that resupply the Navy’s combatant ships
more on the TAO-205 program, see CRS Report R43546,
(e.g., aircraft carries, surface combatants, and amphibious
Navy John Lewis (TAO-205) Class Oiler Shipbuilding
ships) at sea, so that the combatant ships can continue
Program: Background and Issues for Congress, by Ronald
operating without having to return to port. The Navy’s
O'Rourke.
current CLF ships include oilers (TAOs), dry cargo and
ammunition ships (TAKEs), and fast combat support ships
Figure 1. John Lewis (TAO-205) Class Oiler
(TAOEs). In these designations, T means the ship is
Artist’s rendering
operated by the Military Sealift Command (MSC) with a
mostly civilian crew, A means auxiliary ship, O means
oiler, K means cargo, and E means ammunition (i.e.,
explosives). These CLF ships are large auxiliary ships.
Anti-access/area-denial (A2/AD) capabilities aim to create a
defended area around a country that in time of conflict
would be a “no-go zone†for opposing military forces.
Source: General Dynamics/National Steel and Shipbuilding Company
Operational concepts are general approaches for how to use
(GD/NASSCO) of San Diego, CA, the builder of TAO-205s.
military forces for achieving certain objectives. Fleet
architecture refers to the types and mix of ships that make
up a navy.
Next-Generation Logistics Ship
New Fleet Architecture and
(NGLS) Program
Operational Concepts
Basic Concept for Ship
To more effectively counter the improving A2/AD
The NGLS program, also known as the Next-Generation
capabilities of China in particular, the Navy wants to begin
Medium Logistics Ship program, is a new initiative in the
shifting to a new fleet architecture that is to be more
Navy’s FY2021 budget submission. The program envisages
distributed than the Navy’s current fleet architecture. This
building a new class of CLF ships that would be medium-
is because it is to include a reduced proportion of larger
sized and thus smaller and individually less expensive to
ships and an increased proportion of smaller ships. This
procure than the Navy’s current CLF ships. NGLSs might
more distributed fleet architecture is intended to support a
be built in two variants to perform specific missions. Like
new Navy and Marine Corps operational concept for
the Navy’s current CLF ships, NGLSs would be operated
countering adversary A2/AD forces, called Distributed
by MSC with mostly civilian crews. The Navy states that
Maritime Operations (DMO), and an associated new
Marine Corps operational concept called Expeditionary
[t]he NGLS will enable refueling, rearming, and
Advanced Base Operations (EABO).
resupply of Naval assets—afloat and ashore—in
DMO aims at avoiding a situation in which an adversary
support of Distributed Maritime Operations,
could defeat U.S. naval forces by concentrating its attacks
Littoral Operations Contested Environment, and
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Navy Next-Generation Logistics Ship (NGLS) Program: Background and Issues for Congress
Expeditionary Advanced Base Operations. The
designing and constructing or converting the first NGLS
NGLS is envisioned to be smaller than existing
would be awarded in the second quarter of FY2023, and
ships in the Combat Logistics Force, and will
construction or conversion of additional NGLSs would
operate near contested environments, sustaining
follow in FY2024 and subsequent years.
afloat (Surface Action Group) and ashore
(Expeditionary Advanced Base) requirements. The
FY2021 Funding Request
Navy believes that there are several types of
As mentioned earlier, the Navy’s proposed FY2021 budget
commercial vessels that may be able to perform
requests $30.0 million in R&D funding for the program.
these missions (including, but not limited to:
Most of this funding would be used for initial industry and
Navy studies on the ship. The funding is requested in
Platform Supply Vessels, Fast Supply Vessels, or
Project 4045, Next Generation Medium Logistics Ship,
other types of Offshore Support Vessels). The Navy
within Program Element (PE) 0603563N, Ship Concept
is considering conversion of existing vessels, new
Advanced Design, which is line 45 in the Navy’s FY2021
construction, or a combination of conversions and
research and development account.
new construction in order to acquire the required
number of Next Generation Logistics Ships.
Legislative Activity for FY2021
(Source: Department of the Navy, Naval Sea
Systems Command [NAVSEA], “Industry Day
FY2021 National Defense Authorization Act
Announcement for the Next Generation Logistics
The House Armed Services Committee, in its report
Ship (NGLS),†Beta.sam.gov, May 15 [updated
(H.Rept. 116-442 of July 9, 2020) on the FY2021 National
Defense Authorization Act (H.R. 6395), recommended
July 20], 2020.)
approving the Navy’s FY2021 funding request for the
There are various types of Platform Supply Vessels, Fast
NGLS program (page 392).
Supply Vessels, and other Offshore Support Vessels, but in
general, such ships can be considerably smaller (and
The Senate Armed Services Committee, in its report
therefore individually less expensive to procure) than the
(S.Rept. 116-236 of June 24, 2020) on the FY2021 National
Navy’s current CLF ships.
Defense Authorization Act (S. 4049), stated that it “lacks
sufficient clarity on the capability requirements to supportâ€
Industry Day
design efforts for certain new ships, including NGLS (pages
The Navy held an industry day for the NGLS program on
98-99), and recommended rejecting the Navy’s FY2021
June 25, 2020, the purpose of which was to introduce the
request for the program (page 505).
program to potential industry participants and give them a
chance to ask initial questions about the program. Attendees
FY2021 DOD Appropriations Act
included representatives from shipyards, ship-design firms,
The House Appropriations Committee, in its report
and component suppliers.
(H.Rept. 116-453 of July 16, 2020) on the FY2021 DOD
Appropriations Act (H.R. 7617), recommended reducing by
Potential Procurement Quantity and Cost
$10.0 million the Navy’s FY2021 funding request for the
The Navy has not yet determined how many NGLSs it
program (page 266). Section 8129 of H.R. 7617 as reported
wants to procure. Press reports about the Navy’s new fleet
by the committee states that none of the funds provided in
architecture have suggested that the Navy might want to
the act for initial acquisition activities for certain new Navy
procure between 18 and 30. The procurement cost for an
ships, including NGLS, “may be used to award a new
NGLS is to be substantially less than that of the larger
contract for such activities unless these contracts include
TAO-205 design, which is about $525 million.
specifications that all hull, mechanical, and electrical
components are manufactured in the United States.â€
Program Schedule
Under a schedule shown in the Navy’s industry day
Ronald O'Rourke, Specialist in Naval Affairs
briefing, contracts for NGLS industry studies would be
awarded in the third quarter of FY2021, the contract for
IF11674
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Navy Next-Generation Logistics Ship (NGLS) Program: Background and Issues for Congress
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