Contents

• Introduction
• Bill Overview
• Summary of Funding Authorizations
• Legislative Activity
• Funding Authorizations for Selected Weapons Systems
• Aircraft and Related Systems
• Communications Systems
• Ground Systems
• Missile Defense Programs
• Missiles and Munitions
• Shipbuilding and Maritime Systems
• Space-Based Systems
• Nuclear Modernization Programs (Subset of Programs in Previous Tables)
• Military Personnel End-Strengths
• Summary of Selected Provisions

Summary

The National Defense Authorization Act (NDAA) sets policy and authorizes appropriations for U.S. Department of Defense (DOD) activities and U.S. Department of Energy (DOE) national security programs. While the NDAA itself does not provide funding (i.e., budget authority), historically the legislation has served as an indicator of congressional views on funding for such activities. Fiscal Year (FY) 2025 marked the 64^th consecutive fiscal year for which Congress enacted an annual defense authorization.

On March 11, 2024, President Joe Biden submitted to Congress a budget request for FY2025 that included a total of $895.2 billion in discretionary funding for national defense-related activities. Of that amount, approximately $883.7 billion fell within the scope of proposed and enacted versions of a National Defense Authorization Act for Fiscal Year 2025 (FY2025 NDAA; H.R. 8070; S. 4638; H.R. 5009; P.L. 118-159).

During consideration of an FY2025 NDAA, various Members of Congress proposed authorizing more funding, the same amount, or less funding than the President requested for such activities. The House-passed H.R. 8070 would have authorized the level of funding the President requested—consistent with the defense discretionary spending cap for FY2025 established in the Fiscal Responsibility Act of 2023 (FRA; P.L. 118-5)—though with varying amounts for certain categories of funding. The SASC-reported S. 4638 would have authorized $25.1 billion more than requested for DOD.

The enacted version of the legislation, known as the Servicemember Quality of Life Improvement and National Defense Authorization Act for Fiscal Year 2025 (H.R. 5009; P.L. 118-159), authorized $883.7 billion—the level of funding the President requested consistent with the FY2025 defense spending cap in the FRA. The act authorized more funding than requested for additional Air Force F-15 Eagle fighter aircraft and an additional America Class Amphibious Assault Ship for the Navy, as well as more funding than requested for the Air Force E-7A Wedgetail electronic attack aircraft and Navy Sea-Launched Cruise Missile-Nuclear. The act authorized less funding than requested for the Constellation Class Guided Missile Frigate and for the F-35 Joint Strike Fighter, as well as for the Joint Light Tactical Vehicle, among other changes. The act also authorized more Air Force Air National Guard personnel than requested, as well as an increase in junior enlisted pay, among other policy provisions.

Introduction

The National Defense Authorization Act (NDAA) is a policy bill typically introduced and reported each year by the House and Senate Committees on Armed Services (also known as the House Armed Services Committee, or HASC, and the Senate Armed Services Committee, or SASC). Unlike an appropriations act, the NDAA generally does not provide funding (i.e., budget authority).¹ Rather, the legislation sets policy and authorizes appropriations for the U.S. Department of Defense (DOD), U.S. Department of Energy (DOE) atomic energy defense activities, and certain other defense-related activities.

The NDAA is a vehicle through which Congress may fulfill its responsibility as mandated in Article I, Section 8, of the U.S. Constitution. This section provides Congress the authority to "provide for the common Defence," "raise and support Armies," "provide and maintain a Navy," and "make Rules for the ... Regulation of the land and naval Forces," among other powers.²

As an authorizing measure, the legislation establishes or amends defense programs, projects, or activities, and provides guidance on how appropriated funds are to be used in carrying out those efforts.³ While the NDAA does not provide budget authority, historically it has provided an indicator of congressional views on funding for particular programs. The NDAA authorizes funding for DOD activities at the same level of detail at which budget authority is provided by the corresponding defense, military construction, and other appropriations acts. Despite a statutory requirement for annual authorization of appropriations for defense programs (i.e., 10 U.S.C. §114, "Annual authorization of appropriations"),⁴ the U.S. Government Accountability Office (GAO) has concluded that Congress may deviate from authorized amounts in subsequent appropriations.⁵ According to GAO, "If Congress appropriates money to the Defense Department in violation of 10 U.S.C. §114, there are no practical consequences. The appropriation is just as valid, and just as available for obligation, as if section 114 had been satisfied or did not exist."⁶ As defense authorization and appropriations legislation can differ on a line-item level, an authorization of appropriations in the NDAA may be considered a funding indicator rather than a floor or ceiling.⁷

The NDAA has a history of regular enactment. FY2025 marked the 64^th consecutive fiscal year for which Congress enacted an annual defense authorization.⁸ Because of this history of regular enactment,⁹ the bill sometimes serves as a vehicle for legislation originating in committees other than HASC or SASC that might not otherwise be considered.¹⁰

This report provides an overview of defense budget-related funding authorizations, legislative activity, and provisions associated with proposed and enacted versions of the FY2025 NDAA (i.e., Divisions A through D). It presents amounts and quantities authorized for certain types of weapons systems, including aircraft and related systems, communications systems, ground systems, missile defense programs, missiles and munitions, shipbuilding and maritime systems, space-based systems, and nuclear modernization programs. It also provides, where applicable, references to other CRS reports that provide in-depth analysis and contextual information on certain defense and foreign policy issues. Detailed analysis of policy provisions associated with individual programs, projects, and activities in the bill is beyond the scope of this report. For a list of related CRS products on the FY2025 NDAA, see the Appendix.

Bill Overview

Summary of Funding Authorizations¹¹

The majority of discretionary funding requested in the national defense budget function for FY2025 fell within the scope of the NDAA.¹² The national defense budget function, identified by the numerical notation 050, is one of 20 major budget functions used by the White House Office of Management and Budget (OMB) to organize budget data and is the government's broadest measure of defense-related funding.¹³ The legislation typically authorizes discretionary funding for programs in the DOD-military subfunction (051) and atomic energy defense activities subfunction (053), and certain programs in the defense-related activities (054) subfunction.¹⁴ Of the $895.2 billion in discretionary funding for national defense-related activities in the FY2025 President's budget request,¹⁵ $883.7 billion fell within the scope of the FY2025 NDAA.¹⁶

The enacted NDAA, known as the Servicemember Quality of Life Improvement and National Defense Authorization Act for Fiscal Year 2025, authorized the level of funding the President requested, consistent with the FY2025 defense spending cap in the Fiscal Responsibility Act (FRA).¹⁷ The legislation did not authorize the SASC-reported proposal to authorize $25.1 billion more than the President requested for DOD.

The legislation authorized funding for certain DOD accounts that differed from the request (see Table 1). It authorized $1.5 billion more than requested for procurement accounts (e.g., aircraft, missiles, and other equipment), $0.9 billion more than requested for MILPERS accounts (e.g., 14.5% pay raise for certain enlisted personnel at the rank of E-4 and below), and $0.6 billion more than requested for research, development, test and evaluation (RDT&E) accounts (e.g., shipbuilding programs).¹⁸ The legislation authorized the requested level of funding for military construction (MILCON) accounts.¹⁹ It authorized $1.9 billion less than requested for operation and maintenance (O&M) accounts and $0.7 billion less than requested for the Defense Health Program.²⁰ The net increases of $0.4 billion to funding authorizations for DOD activities and $0.1 billion to funding authorizations for certain other defense activities were offset by a net decrease of $0.5 billion to funding authorizations for atomic energy defense activities.²¹

Table 1 summarizes requested, proposed, and enacted funding authorizations in the FY2025 NDAA. The amounts are organized by budget subfunction and, for DOD, by major funding category.

Figure 1 summarizes funding authorization changes in proposed and enacted versions of the FY2025 NDAA compared with amounts in the FY2025 President's budget request and the enacted FY2024 NDAA.²² The changes are organized by budget subfunction and, for DOD, by major funding categories.

Figure 1. Congressional Changes to President's Requested Funding Authorizations in the FY2025 NDAA (in billions of current dollars of discretionary budget authority)

Source: CRS analysis of H.Rept. 118-529, pp. 402-407; S.Rept. 118-188, pp. 418-422; and H.Prt. 119-2, pp. 1205-1210. Notes: RDT&E is research, development, test, and evaluation; O&M is operation and maintenance; MILPERS is military personnel; and MILCON is military construction, family housing, and base realignment and closure (BRAC). SASC typically does not authorize appropriations for the Department of Transportation Maritime Administration Maritime Security Program and Tanker Security Program in the defense-related activities (054) function.

Legislative Activity²³

Table 2 summarizes legislative activity and documentation associated with proposed and enacted versions of the FY2025 NDAA.

Funding Authorizations for Selected Weapons Systems²⁴

This section details funding amounts and quantities for selected defense acquisition programs that DOD requested as part of President Biden's FY2025 budget and that Congress authorized in the enacted FY2025 NDAA.²⁵ CRS based its analysis of line items associated with such programs in part on the "major weapons system summary" table published in an annual DOD budget document, Program Acquisition Cost by Weapon System,²⁶ as well as on selected congressional debates. The amounts presented in this report may not include all costs associated with such programs. For example, amounts associated with military construction (MILCON) and operation and maintenance (O&M) to house and sustain such programs are not included. In some cases, CRS included certain programmatic funding that was not included in the DOD document.

Aircraft and Related Systems

In its FY2025 budget submission to Congress, DOD requested $61.2 billion in procurement and RDT&E funding for aircraft and related systems, including fighters, bombers, tankers and cargo aircraft, attack and utility helicopters, and uncrewed aircraft systems (UAS, commonly known as drones).²⁷ Of this amount, DOD requested $43.6 billion for the selected aircraft detailed in Table 3.²⁸

In the enacted NDAA, Congress authorized $44.3 billion for the selected aircraft, approximately $682.3 million more than requested. The act authorized $709.2 million more than requested for six additional F-15 Eagle fighter aircraft²⁹ and $644.2 million more than requested for the C-130J Hercules family of transport aircraft for six additional aircraft.³⁰ The act authorized $496.9 million less than requested for the F-35 Joint Strike Fighter and made other changes.³¹ The act did not authorize the SASC-reported proposal to procure five HH-60W Combat Rescue Helicopters for the Air Force,³² or the House-passed proposal to authorize two additional CH-47 Chinook helicopters for the Army.³³

Table 3 summarizes requested, proposed, and authorized funding for selected aircraft and related systems in the FY2025 NDAA.

Communications Systems

In its FY2025 budget submission to Congress, DOD requested $21.1 billion in procurement and RDT&E funding for command, control, communications, computers, and intelligence (C4I) systems.³⁴ Of this amount, DOD requested $989.2 million for the selected C4I systems detailed in Table 4.³⁵

In the enacted NDAA, Congress authorized $969.7 million for the selected C4I systems. The act authorized $19.5 million less than requested for the Army Handheld, Manpack, and Small Form Fit (HMS) Radios program, matching a change in the House-passed version of the NDAA.³⁶

Table 4 summarizes requested, proposed, and authorized funding for selected Army C4I systems in the FY2025 NDAA.

Ground Systems

In its FY2025 budget submission to Congress, DOD requested $13.0 billion in procurement and RDT&E funding for tactical vehicles, tracked combat vehicles, and weapon systems.³⁷ Of this amount, DOD requested $6.2 billion for the selected ground systems detailed in Table 5.³⁸

In the enacted NDAA, Congress authorized $6.2 billion for the selected ground systems, approximately $44.3 million less than requested. The act authorized $135.8 million less than requested for the Joint Light Tactical Vehicle (JLTV) program³⁹ and $75 million more than requested for the M-1 Abrams Tank modification program, among other changes.⁴⁰ The act did not authorize the House-passed proposal to procure eight additional Armored Multi-Purpose Vehicles (AMPVs) for the Army.⁴¹

Table 5 summarizes requested, proposed, and authorized funding for selected ground systems in the FY2025 NDAA.

Missile Defense Programs

In its FY2025 budget submission to Congress, DOD requested $13.5 billion in procurement and RDT&E funding for ground- and sea-based tactical and ballistic missile defense systems.⁴² Of this amount, DOD requested $6.4 billion for the selected missile defense systems detailed in Table 6.⁴³

In the enacted NDAA, Congress authorized $6.9 billion for the selected missile defense systems, approximately $485.9 million more than requested. The act authorized approximately $405.4 million more than requested for the Sea-Based Weapons System (Aegis).⁴⁴ The act also authorized $145.0 million more than requested for the Army Phased Array Tracking Radar to Intercept of Target (PATRIOT) missile defense program⁴⁵ and $60.2 million less than requested for the Terminal High Altitude Area Defense (THAAD) program.⁴⁶

Table 6 summarizes requested, proposed, and authorized funding for selected missile defense programs in the FY2025 NDAA.

Missiles and Munitions

In its FY2025 budget submission to Congress, DOD requested $29.8 billion in procurement and RDT&E funding for ground-, air-, and sea-launched missiles and munitions.⁴⁷ Of this amount, DOD requested $22.0 billion for the selected missiles and munitions detailed in Table 7.⁴⁸

In the enacted NDAA, Congress authorized $22.5 billion for the selected missiles and munitions, approximately $466.3 million more than requested. The act authorized $114.0 million more than requested for the Army Precision Strike Missile (PrSM), as well as 70 more missiles than requested.⁴⁹ The act also authorized $252.0 million for the Navy Sea-Launched Cruise Missile-Nuclear (SLCM-N), a nuclear-armed version of the Tomahawk land-attack cruise missile, for which DOD did not request any funding.⁵⁰ The act did not include the House-passed proposal to authorize $360.6 million less than DOD requested for the Army Guided Multiple Launch Rocket System (GMLRS),⁵¹ or the SASC-reported proposal to authorize $336.4 more than DOD requested to increase production of the Air Force Joint Air-Surface Standoff Missile (JASSM).⁵²

Table 7 summarizes requested, proposed, and authorized funding for selected missiles and munitions in the FY2025 NDAA.

Shipbuilding and Maritime Systems

In its FY2025 budget submission to Congress, DOD requested $48.1 billion in procurement and RDT&E funding for shipbuilding and maritime systems.⁵³ Of this amount, DOD requested $33.1 billion for the selected shipbuilding and maritime systems detailed in Table 8.⁵⁴

In the enacted NDAA, Congress authorized $33.9 billion for the selected shipbuilding and maritime systems, approximately $175.0 million less than requested. The act authorized $1.1 billion less than requested for the Constellation Class Guided Missile Frigate FFG(X) program⁵⁵ and $330.0 million less than requested for the San Antonio Class Amphibious Ship.⁵⁶ The act authorized $741.5 million more than requested for the Arleigh Burke Class Destroyer⁵⁷ and $499.9 million more than requested for the America Class Amphibious Assault Ship (LHA),⁵⁸ among other changes.

Table 8 summarizes requested, proposed, and authorized funding for selected shipbuilding and maritime systems in the FY2025 NDAA.

Space-Based Systems

In its FY2025 budget submission to Congress, DOD requested $25.2 billion in procurement and RDT&E funding for space-based systems.⁵⁹ Of this amount, DOD requested $8.5 billion for the selected space-based systems detailed in Table 9.⁶⁰

In the enacted NDAA, Congress authorized $7.9 billion for the selected space-based systems, approximately $571.4 million less than requested. The act authorized $152.6 million less than requested for the Space-based Missile Warning System (OPIR),⁶¹ $140.1 million less than requested for the Launch Enterprise (NSSL and RSLP),⁶² and $278.7 million less than requested for the GPS Enterprise (GPS III and projects).⁶³

Table 9 summarizes requested, proposed, and authorized funding for selected space-based systems in the FY2025 NDAA.

Nuclear Modernization Programs (Subset of Programs in Previous Tables)

In its FY2025 budget submission to Congress, DOD requested approximately $22.3 billion in procurement and RDT&E funding for programs to modernize the nuclear enterprise.⁶⁴ These programs, funding for which is detailed in the above sections and in Table 10, are the Columbia-class ballistic missile submarine, B-21 long-range stealth bomber, Trident II submarine-launched ballistic missile, Sentinel/Ground Based Strategic Deterrent (GBSD) intercontinental ballistic missile (ICBM), F-35 Dual Capable Aircraft, and Long-Range Stand-Off Weapon (LRSO) cruise missile.

The enacted NDAA authorized $200.0 million more than requested for the selected nuclear modernization programs, entirely for the LGM-35A Sentinel.⁶⁵ The act did not authorize the SASC-reported proposal to authorize $201.5 million more than DOD requested for the B-21 Raider.⁶⁶

Table 10 summarizes requested, proposed, and authorized funding for selected nuclear modernization programs in the FY2025 NDAA.

Military Personnel End-Strengths⁶⁷

The FY2025 DOD budget requested a total military end-strength of 2,042,400 personnel, including 1,276,700 personnel in the services' active component (i.e., Army, Navy, Marine Corps, Air Force, and Space Force),⁶⁸ and 765,700 personnel in the reserve components (i.e., Army National Guard, Army Reserve, Navy Reserve, Marine Corps Reserve, Air National Guard, and Air Force Reserve).⁶⁹ The total requested end-strength was 5,700 personnel (0.3%) less than the levels enacted in the FY2024 NDAA.⁷⁰

The enacted FY2025 NDAA authorized a total military end-strength of 2,043,000 personnel, including 1,276,700 personnel in the active components and 766,300 personnel in the reserve components. The enacted bill authorized 600 more Air National Guard personnel end-strength than requested, a provision that was also in the SASC-reported version of the NDAA.⁷¹ See Table 11.

Summary of Selected Provisions

Table 12 provides a summary of policy matters in the FY2025 NDAA that were the subject of debate between the House and Senate, or Congress and the Biden Administration.⁷²

Appendix. Related CRS Products

Summary

CRS Insight IN12404, FY2025 NDAA: Summary of Funding Authorizations, by Brendan W. McGarry

CRS Insight IN12405, FY2025 NDAA: Status of Legislative Activity, by Brendan W. McGarry and Valerie Heitshusen

Defense Technology

CRS Insight IN12435, FY2025 NDAA: Accelerating Technology Transitions, by Alexandra G. Neenan and Marcy E. Gallo

CRS Insight IN12418, FY2025 NDAA: Countering Uncrewed Aircraft Systems, by Daniel M. Gettinger

CRS Insight IN12382, Proposal to Create a U.S. Army Drone Corps, by Daniel M. Gettinger and Andrew Feickert

Military Personnel

CRS Insight IN12449, FY2025 NDAA: Active Component End-Strength, by Nicholas M. Munves

CRS Insight IN12448, FY2025 NDAA: Reserve Component End-Strength, by Nicholas M. Munves

CRS Insight IN12367, FY2025 NDAA: Military Basic Pay Reform Proposal, by Kristy N. Kamarck

CRS Insight IN12380, FY2025 NDAA: Basic Needs Allowance for Military Families, by Kristy N. Kamarck

CRS Insight IN12436, FY2025 NDAA: Military Child Care Proposals, by Kristy N. Kamarck

CRS Insight IN12450, FY2025 NDAA: Selective Service Registration Proposals, by Kristy N. Kamarck

Defense Management and Acquisition

CRS Insight IN12397, FY2025 NDAA: Department of Defense Acquisition Policy, by Alexandra G. Neenan

CRS Insight IN12416, FY2025 NDAA: Department of Defense Small Business Contracting, by R. Corinne Blackford and Alexandra G. Neenan

Security Cooperation

CRS Insight IN12430, FY2025 NDAA: Security Cooperation, by Christina L. Arabia

Defense Health Care

CRS Insight IN12400, FY2025 NDAA: Reproductive Health Care Provisions, by Bryce H. P. Mendez

CRS Insight IN12401, FY2025 NDAA: TRICARE Coverage of Gender-Affirming Care, by Bryce H. P. Mendez

CRS Insight IN12428, FY2025 NDAA: Medical Standards to Join the Military, by Bryce H. P. Mendez

Defense Infrastructure

CRS Insight IN12411, FY2025 NDAA: Military Construction and Housing Authorizations, by Andrew Tilghman

Providing work on this topic and peer review of this report were Jennifer DiMascio, Analyst in U.S. Defense Policy; Anya L. Fink, Analyst in U.S. Defense Policy; Emily M. McCabe, Specialist in Foreign Assistance and Foreign Policy; Cameron M. Keys, Analyst in Defense Logistics and Resource Management Policy; Nicholas M. Munves, Analyst in U.S. Defense Policy; and Andrew Tilghman, Analyst in U.S. Defense Infrastructure Policy.

Footnotes