March 12, 2024
DOD Replicator Initiative: Background and Issues for Congress

Some observers have stated that, depending on the
Introduction
capabilities of Replicator systems, the Replicator initiative
Replicator, unveiled on August 28, 2023, is a Department
could lead to the development of new military concepts of
of Defense (DOD) initiative, led by DOD’s Defense
operation, such as swarming. Swarming is a form of
Innovation Unit (DIU), to field thousands of all-domain,
cooperative behavior in a group of uncrewed systems, in
attritable autonomous (ADA2) systems by August 2025.
which the uncrewed systems autonomously coordinate with
(Attritable systems are comparatively low-cost systems
one another to accomplish a mission. Swarming would
with which DOD tolerates a greater degree of risk of system
likely require further advancements in artificial intelligence
loss.) A key issue facing Congress is whether to approve,
and/or networked communications to be deployed.
reject, or modify DOD’s funding requests for Replicator,
and whether Congress has adequate information about
DOD officials state that, in contrast to large and
Replicator to assess its merits and conduct effective
individually expensive systems such as aircraft carriers,
oversight of the initiative.
Replicator systems are intended to be built and deployed
more quickly, and to be used for significantly shorter
Background
periods of time before being replaced by successor designs.
DOD officials state that the Replicator initiative draws from
These officials state that Replicator is thus intended to
lessons learned in the ongoing Ukraine-Russia conflict, in
improve DOD’s processes for rapidly scaling, fielding, and
which Ukraine has leveraged large numbers (estimated by
innovating new capabilities. They note that Replicator is
observers to be as many as 10,000 per month) of low-cost
also intended to accelerate the development of the U.S.
attritable systems to counter the Russian military’s
drone industrial base.
advantage in force strength. Deputy Secretary of Defense
Kathleen Hicks—who, with the Vice Chairman of the Joint
Specific Replicator Capabilities and Systems
Chiefs of Staff, oversees Replicator—has stated that
To date, DOD has declined to publicly identify specific
Replicator is intended to “help [the United States]
Replicator capabilities or systems due to what DOD states
overcome [the Chinese military’s] advantage in mass: more
are operational security concerns. Deputy Secretary Hicks
ships, more missiles, more forces.”
has stated that DOD intends to reveal details about the
Replicator initiative, including information about specific
DOD officials describe Replicator as an all-domain
capabilities and systems, “at a time and place and manner
initiative that could include autonomous aerial, ground,
of our choosing.”
surface, sub-surface, and/or space systems representing a
range of capabilities and mission sets. For example, Deputy
Status
Secretary Hicks stated that Replicator could include
DOD officials stated in January 2024 that they had selected
“distributed pods of self-propelled ADA2 [sensor] systems”
a first tranche of Replicator systems from among competing
to provide near-real time intelligence, “fleets of ground-
proposals and, as of February, were reportedly finalizing
based ADA2 systems delivering novel logistics support …
proposals for a second tranche. These two tranches, one
or securing DOD infrastructure,” or space-based ADA2
official stated, are likely to focus on software to enable
systems to provide resilient communications.
system collaboration “to create lethal effects and respond to
a very dynamic environment against different threats and …
Intent
different adversary platforms.”
Replicator is to deploy ADA2 systems en masse, allowing
the U.S. military to disperse combat power over a large
As the lead for the Replicator initiative, DIU states that it
number of relatively inexpensive systems. Replicator is
intends to host a technology summit in 2024 “to provide
intended to
industry with more detail about broad Replicator
•
opportunities, and include workshops on how dual-use
avoid concentrating U.S. combat power into a smaller
technology solutions can be repurposed toward supporting
number of individually more expensive platforms (i.e.,
warfighting needs.”
help avoid putting too many eggs into one basket);
• make it harder for an adversary to target and neutralize
Issues for Congress
U.S. capabilities; and
Potential issues for Congress regarding the Replicator
•
initiative include but are not necessarily limited to the
create an unfavorable cost-exchange ratio for the
following.
adversary, meaning a situation in which the adversary
would need to use a countermeasure, such as an
interceptor missile, that has a much higher cost than the
Replicator system against which it is directed.
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DOD Replicator Initiative: Background and Issues for Congress
Adequacy of Information Available to Congress
Technical, Schedule, and Cost Risk
One key issue is whether Congress has adequate
Another issue concerns technical, schedule, and cost risk in
information about Replicator to assess its merits and
the Replicator initiative. Military analyst Bill Greenwalt
conduct effective oversight of the initiative. Some Members
testified before a House Armed Services Committee
of Congress have stated that it has been difficult for them to
hearing on October 19, 2023, that “the Pentagon’s
obtain information about Replicator, and have asked DOD
acquisition system is simply not capable of acting on the
to brief them with further details about Replicator
proposed timelines contemplated in the Replicator program,
capabilities, systems, and concepts of operation. DOD
except in very limited circumstances … and then only when
reportedly has promised to provide such briefings.
conducted outside the normal rules of acquisition
budgeting.”
Lack of information on Replicator, either in the classified or
unclassified realms, has the potential to raise doubts about
Skeptics might argue that DOD historically has often
whether DOD has adequately analyzed the initiative in
struggled to overcome the so-called “valley of death”
terms of capabilities and costs. Congress has the option, as
between the development of a system prototype and the
part of its action on annual DOD budget requests, to
deployment of that system in the field. Although DOD
legislate reporting requirements for the Replicator initiative
states that it is currently refining its acquisition strategy for
or direct the Government Accountability Office (GAO) to
Replicator, some potential industry partners have expressed
review and evaluate DOD’s Replicator activities.
concerns about DOD’s approach, calling it “very
disorganized and confusing.”
Cost and Sources of Funding
Another issue is how much the Replicator initiative might
Ethical Principles and International Commitments
cost, and how DOD intends to finance that cost. In a
Another issue is whether Replicator efforts would be
September 6, 2023, speech, Deputy Secretary Hicks stated
executed in a manner consistent with DOD’s ethical
that “Replicator is not a new program of record … and
principles and international commitments, which are
[DOD] will not be asking for new money in FY[20]24.”
outlined in DOD documents such as Responsible Artificial
DOD submitted a classified FY2023 reprogramming
Intelligence Strategy and Implementation Pathway;
request to Congress in January 2024, suggesting that DOD
Political Declaration on Responsible Military Use of
intends to fund FY2024 Replicator activities by reducing
Artificial Intelligence and Autonomy; and DOD Directive
funding for other DOD programs. DOD requested $500
3000.09, Autonomy in Weapon Systems.
million for Replicator in FY2025 and is to submit an
additional $500 million FY2024 reprogramming request for
Military Personnel and Force Structure
Replicator, if Congress does not appropriate those funds in
Another issue concerns the potential implications of
the FY2024 budget.
Replicator systems for military personnel and force
structure. Within this issue, specific matters include the
Little information is available publicly about Replicator’s
number of personnel that might be needed to operate
potential total cost and the impact that funding requirements
thousands of ADA2 systems (and the resulting impact on
for Replicator could have on funding for other DOD
numbers of personnel available for meeting other DOD
programs. Some observers have expressed concern that
needs), the training requirements for personnel operating
funding Replicator could reduce funding for other Indo-
Replicator systems, and whether fielding Replicator
Pacific Command (INDOPACOM) priorities, such as
systems would require making changes in DOD and service
munitions and long-range anti-ship missiles.
organization. For example, some observers have proposed
the establishment of specialized drone branches within the
Some observers have argued to Congress that providing
services.
funding that is not tied to a single fiscal year would be
critical to Replicator’s success, as doing so would expand
CRS Products
the number of funding sources available to the initiative.
Others might argue that providing such funding could
CRS Report R47188, Unmanned Aircraft Systems: Roles,
weaken Congress’s constitutional power of the purse by
Missions, and Future Concepts, by Kelley M. Sayler and Michael
reducing Congress’s control over annual DOD spending.
E. DeVine.
CRS Report R46458, Emerging Military Technologies: Background
Effectiveness of Selected Systems
and Issues for Congress, by Kelley M. Sayler.
Another issue is whether specific systems selected for
CRS In Focus IF11150, Defense Primer: U.S. Policy on Lethal
Replicator are likely to meet DOD’s stated objectives for
Autonomous Weapon Systems, by Kelley M. Sayler.
the initiative. Within this issue, one question concerns the
ability of Replicator systems to meet the operational needs

of INDOPACOM, particularly in terms of systems
operating at the extended ranges needed to contribute to
Kelley M. Sayler, Specialist in Advanced Technology and
combat operations in the Indo-Pacific. Another
consideration affecting effectiveness is the ability of
Global Security
selected systems to operate in adverse weather conditions
IF12611
unique to potential theaters of operation.


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DOD Replicator Initiative: Background and Issues for Congress


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