Updated March 22, 2024
DOD Replicator Initiative: Background and Issues for Congress

would need to use a countermeasure, such as an
Introduction
interceptor missile, that has a much higher cost than the
Replicator, unveiled on August 28, 2023, is a Department
Replicator system against which it is directed.
of Defense (DOD) initiative, led by DOD’s Defense
Innovation Unit (DIU), to field thousands of uncrewed
Some observers have stated that, depending on the
systems by August 2025. Replicator’s first line of effort
capabilities of Replicator systems, the Replicator initiative
(“Replicator 1”) is to field all-domain, attritable
could lead to the development of new military concepts of
autonomous (ADA2) systems. Attritable systems are
operation, such as swarming. Swarming is a form of
comparatively low-cost systems with which DOD tolerates
cooperative behavior in a group of uncrewed systems, in
a greater degree of risk of system loss. DOD officials state
which the uncrewed systems autonomously coordinate with
that future lines of effort may focus on other types of
one another to accomplish a mission. Swarming would
uncrewed systems. A key issue facing Congress is whether
likely require further advancements in artificial intelligence
to approve, reject, or modify DOD’s funding requests for
and/or networked communications to be deployed.
Replicator, and whether Congress has adequate information
about Replicator to assess its merits and conduct effective
DOD officials state that, in contrast to large and
oversight of the initiative.
individually expensive systems such as aircraft carriers,
Replicator systems are intended to be built and deployed
Background
more quickly, and to be used for significantly shorter
DOD officials state that the Replicator initiative draws from
periods of time before being replaced by successor designs.
lessons learned in the ongoing Ukraine-Russia conflict, in
(They emphasize, however, that Replicator is intended to
which Ukraine has leveraged large numbers (estimated by
supplement—not replace—more exquisite systems.) These
observers to be as many as 10,000 per month) of low-cost
officials state that Replicator is thus intended to improve
attritable systems to counter the Russian military’s
DOD’s processes for rapidly scaling, fielding, and
advantage in force strength. Deputy Secretary of Defense
innovating new capabilities. They note that Replicator is
Kathleen Hicks—who, with the Vice Chairman of the Joint
also intended to accelerate the development of the U.S.
Chiefs of Staff, oversees Replicator—has stated that
drone industrial base.
Replicator is intended to “help [the United States]
overcome [the Chinese military’s] advantage in mass: more
Specific Replicator Capabilities and Systems
ships, more missiles, more forces.”
To date, DOD has declined to publicly identify specific
Replicator capabilities or systems due to what DOD states
DOD officials describe Replicator as an all-domain
are operational security concerns. Deputy Secretary Hicks
initiative that could include autonomous aerial, ground,
has stated that DOD intends to reveal details about the
surface, sub-surface, and/or space systems representing a
Replicator initiative, including information about specific
range of capabilities and mission sets. For example, Deputy
capabilities and systems, “at a time and place and manner
Secretary Hicks stated that Replicator could include
of our choosing.”
“distributed pods of self-propelled ADA2 [sensor] systems”
to provide near-real time intelligence, “fleets of ground-
Status
based ADA2 systems delivering novel logistics support …
DOD officials stated in January 2024, that they had selected
or securing DOD infrastructure,” or space-based ADA2
a first tranche of Replicator systems from among competing
systems to provide resilient communications.
proposals and, as of February, were reportedly finalizing
proposals for a second tranche. These two tranches, one
Intent
official stated, are likely to focus on software to enable
Replicator is to deploy uncrewed systems en masse,
system collaboration “to create lethal effects and respond to
allowing the U.S. military to disperse combat power over a
a very dynamic environment against different threats and …
large number of relatively inexpensive systems. Replicator
different adversary platforms.”
is intended to
•
As the lead for the Replicator initiative, DIU hosted a
avoid concentrating U.S. combat power into a smaller
technology summit in February 2024 “to provide industry
number of individually more expensive platforms (i.e.,
with more detail about broad Replicator opportunities, and
help avoid putting too many eggs into one basket);
include workshops on how dual-use technology solutions
• make it harder for an adversary to target and neutralize
can be repurposed toward supporting warfighting needs.”
U.S. capabilities; and
• create an unfavorable cost-exchange ratio for the
adversary, meaning a situation in which the adversary
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DOD Replicator Initiative: Background and Issues for Congress
Issues for Congress
consideration affecting effectiveness is the ability of
Potential issues for Congress regarding the Replicator
selected systems to operate in adverse weather conditions
initiative include but are not necessarily limited to the
unique to potential theaters of operation.
following.
Technical, Schedule, and Cost Risk
Adequacy of Information Available to Congress
Another issue concerns technical, schedule, and cost risk in
One key issue is whether Congress has adequate
the Replicator initiative. Military analyst Bill Greenwalt
information about Replicator to assess its merits and
testified before a House Armed Services Committee
conduct effective oversight of the initiative. Some Members
hearing on October 19, 2023, that “the Pentagon’s
of Congress have stated that it has been difficult for them to
acquisition system is simply not capable of acting on the
obtain information about Replicator, and have asked DOD
proposed timelines contemplated in the Replicator program,
to brief them with further details about Replicator
except in very limited circumstances … and then only when
capabilities, systems, and concepts of operation. DOD
conducted outside the normal rules of acquisition
reportedly has promised to provide such briefings.
budgeting.”
Lack of information on Replicator, either in the classified or
Skeptics might argue that DOD historically has often
unclassified realms, has the potential to raise doubts about
struggled to overcome the so-called “valley of death”
whether DOD has adequately analyzed the initiative in
between the development of a system prototype and the
terms of capabilities and costs. Congress has the option, as
deployment of that system in the field. Although DOD
part of its action on annual DOD budget requests, to
states that it is currently refining its acquisition strategy for
legislate reporting requirements for the Replicator initiative
Replicator, some potential industry partners have expressed
or direct the Government Accountability Office (GAO) to
concerns about DOD’s approach, calling it “very
review and evaluate DOD’s Replicator activities.
disorganized and confusing.”
Cost and Sources of Funding
Ethical Principles and International Commitments
Another issue is how much the Replicator initiative might
Another issue is whether Replicator efforts would be
cost, and how DOD intends to finance that cost. In a
executed in a manner consistent with DOD’s ethical
September 6, 2023, speech, Deputy Secretary Hicks stated
principles and international commitments, which are
that “Replicator is not a new program of record … and
outlined in DOD documents such as Responsible Artificial
[DOD] will not be asking for new money in FY[20]24.”
Intelligence Strategy and Implementation Pathway;
DOD submitted a classified FY2023 reprogramming
Political Declaration on Responsible Military Use of
request to Congress in January 2024, suggesting that DOD
Artificial Intelligence and Autonomy; and DOD Directive
intends to fund FY2024 Replicator activities by reducing
3000.09, Autonomy in Weapon Systems.
funding for other DOD programs. DOD requested $500
million for Replicator in FY2025 and is to submit an
Military Personnel and Force Structure
additional $500 million FY2024 reprogramming request for
Another issue concerns the potential implications of
Replicator, if Congress does not appropriate those funds in
Replicator systems for military personnel and force
the FY2024 budget.
structure. Within this issue, specific matters include the
number of personnel that might be needed to operate
Little information is available publicly about Replicator’s
thousands of uncrewed systems (and the resulting impact on
potential total cost and the impact that funding requirements
numbers of personnel available for meeting other DOD
for Replicator could have on funding for other DOD
needs), the training requirements for personnel operating
programs. Some observers have expressed concern that
Replicator systems, and whether fielding Replicator
funding Replicator could reduce funding for other Indo-
systems would require making changes in DOD and service
Pacific Command (INDOPACOM) priorities, such as
organization. For example, some observers have proposed
munitions and long-range anti-ship missiles.
the establishment of specialized drone branches within the
services.
Some observers have argued to Congress that providing
funding that is not tied to a single fiscal year would be
critical to Replicator’s success
CRS Products
, as doing so would expand
the number of funding sources available to the initiative.
CRS Report R47188, Unmanned Aircraft Systems: Roles,
Others might argue that providing such funding could
Missions, and Future Concepts, by Kelley M. Sayler and Michael
weaken Congress’s constitutional power of the purse by
E. DeVine.
reducing Congress’s control over annual DOD spending.
CRS Report R46458, Emerging Military Technologies: Background
and Issues for Congress, by Kelley M. Sayler.
Effectiveness of Selected Systems
CRS In Focus IF11150, Defense Primer: U.S. Policy on Lethal
Another issue is whether specific systems selected for
Autonomous Weapon Systems, by Kelley M. Sayler.
Replicator are likely to meet DOD’s stated objectives for
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
Global Security
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DOD Replicator Initiative: Background and Issues for Congress

IF12611


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