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National Defense > Blog > Posts > Navy's No. 2 Civilian Chronicles Missteps in Littoral Combat Ship
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1/28/2013By Sandra I. Erwin
 Few Navy ships have been as doggedly assailed by naysayers as the Littoral Combat Ship, laments Navy Undersecretary Robert O. Work.
It’s been called the wrong ship at the wrong time. Critics compare LCS to a guided missile frigate and find it wanting. Other contend that there are better, longer-legged ships for global maritime operations. Another camp has argued that the Navy would be better served by fast-attack craft or small corvettes armed with anti-ship missiles.
Work, who has for years been one of the Navy’s most ardent defenders of LCS, contends in a new white paper that although critics are entitled to their opinions, they continue to miss the point about LCS.
The ship will never satisfy anyone who still dreams of the 600-ship Cold War Navy and views LCS as a retreat, Work suggests. These critics should stop living in denial about the Navy’s future and see LCS as the beginning of a new era that conforms to fiscal and political realities.
Work’s 64-page paper, “The Littoral Combat Ship: How We Got Here, and Why,” was recently published by the U.S. Naval War College, in Newport, R.I.
The school’s dean of the center for naval warfare studies, Robert C. “Barney” Rubel, says Work’s paper is not a “sales brochure” or an apologia for the LCS but rather an objective account of the decisions — both good and bad — that propelled the ship from concept to production over the past 12 years.
“The Littoral Combat Ship has been a controversial program from its inception,” Rubel writes in the paper’s foreword. “To date, Navy attempts to defend the program have not succeeded in quieting the criticism, and the various technical and operational difficulties experienced by the first two vessels [LCS 1 and LCS 2] have not helped matters,” Rubel adds. “Perhaps the most serious objection is that the Navy charged into series production without having a clear idea of how the ship would be used.”
Work is known to be a meticulous researcher who has a comprehensive grasp of Navy force structure and fleet issues, Rubel says. And is aware that LCS does not fit easily into the existing Navy mindset and is being judged by traditional criteria.
Work for years has sought to convince detractors that LCS was not a substitute for larger warships and was designed to be part of a “networked battle force,” a concept that in recent years has fallen out of vogue. The Navy currently organizes deployed forces in autonomous battle groups positioned around aircraft carriers or amphibious ships. And it is not yet clear how LCS would fit into that structure.
The LCS class consists of two variants: Freedom and Independence. Each hull will be outfitted with warfare systems that can be changed out quickly. The Navy launched the program in November 2001. Twenty ships — 10 of each variant — will be purchased over the next five years. The long-term goal is to acquire 55.
Work asserts that LCS is intended to fill a unique role that no other ship currently satisfies. “Introduction of the LCS, assuming the surface warfare community opens its mind to the full range of potential roles for smaller combatants, provides a practical basis for the development of a new naval operational art, oriented on combined arms,” he writes. “The U.S. Navy needs a different component for its battle force: an affordable, self-deployable and reconfigurable multirole warship designed for naval battle network operations in contested littorals.”
A key justification for LCS, Work contends, is its price tag. Even if ship costs have escalated to more than double its original estimates, LCS is the only ship the Navy can afford to buy in numbers, he says. With a combat fleet that has shrunk over the past two decades from nearly 600 to 288 ships, LCS is the Navy’s best hope to get back to 300 vessels in the coming decade, he suggests.
If the Navy still believes that there is a valid need for a small combatant like LCS, he says, “It is past time for the Navy to focus on the ship’s transition to fleet service, which has been too long ignored.”
Work does lay some blame on Navy leaders for not being transparent from the beginning about the purpose of LCS. The seemingly “abrupt adoption” of the ship only four months after Chief of Naval Operations Adm. Vernon Clark took office came “without any of the supporting material typically associated with a new shipbuilding program, such as a formal, rigorous analysis of alternatives or analysis of alternative concepts,” Work says.
To this day, critics continue to complain about the ship’s “analytical virgin birth,” Work says. “Even if true, this is a moot argument. … There was a compelling programmatic need for an affordable warship that could be built in numbers, and a pressing battle force requirement to defeat mines, fast attack craft and boats, and diesel submarines” in water close to the shore that require small vessels.
The sudden inclusion of the ship in Navy strategic plans “caught many inside and outside the department of the Navy by surprise, causing some to question the justification for such a ship,” Work adds. “Admiral Clark didn’t need any analysis to tell him the Navy desperately needed an affordable ship it could build in numbers in order to maintain the size of the surface combatant fleet. … LCS would be his answer.”
In 2001, the Navy faced the impending retirement of more than 50 destroyers and frigates. The Pentagon then assumed the Navy would be able to buy no fewer than three mission-equipped LCSs for the price of one Arleigh Burke DDG. That meant each LCS would cost about $400 million. Clark upped the ante by promising LCS for $250 million.
“Navy leaders knew there was no way to build a ‘multi-warfare capable ship’ with the unconstrained capabilities desired by war game players for $400 million, much less $250 million,” Work says.
Even more alarming than the price tag was the ship’s perceived vulnerability against enemy weapons. Critics’ fears were reaffirmed by the conclusions of the Pentagon’s director of weapons testing, who characterized the LCS as “not survivable” if it were hit by an anti-ship missile.
CNO Clark “sought the most survivable ship possible within the program’s aggressive cost targets,” Work writes. “In practical terms, this meant LCS sea frames could be built to no more than Level I survivability standards, the lowest of three levels then assigned to U.S. Navy warships.”
Level I represents the least severe environment anticipated, so LCS “would not be expected to continue fighting after taking a hit,” Work says. “It was not as robust as the Perry-class FFG, with its Level II standards, designed to allow the ship to conduct sustained combat operations following weapons impact, much less the Level III standards used for large multi-mission ships” than are built to endure hits by anti-ship cruise missiles, torpedoes and mines.
Even though they specified Level I survivability, LCS managers got into trouble because they had based their cost estimates on ship designs that used American Bureau of Shipping commercial standards. The Navy reversed that decision and had the ship redesigned to military standards for crew survivability.
“Designers simply did not believe they could hit the LCS cost targets with more stringent standards,” Work says. “The Navy began to address LCS survivability in a more proactive manner. … In the case of LCS, the ship would forego armor and extensive compartmentalization in favor of speed, agility, stealth and maneuver with organic sensors and weapons plus networked force capability.”
The shift to Naval Vessel Rules and other changes made in the middle of the design and early production phase disrupted the schedule and contributed to spiraling costs for the first two ships, Work says. The threshold target went from $250 million to $370 million.
Including design, program management, engineering support costs, and the cost for all three mission packages, the average projected cost of a each LCS over the current 10-ship production run is $500.8 million.
“The department of the Navy is well aware of the mistakes it made in the early stages of the LCS program,” he acknowledges. “While getting the LCS into service quickly may have been a worthy goal, the mistakes made and problems encountered in building the ships, and the department’s resulting inability to restrain program costs, tell a cautionary tale to all current and future leaders,” he asserts. “Simply put, the department should never again repeat the short cuts or questionable shipbuilding approaches taken in the LCS program. Objective cost targets and imposed cost caps are simply no substitute for reasonable performance requirements, detailed planning, a stable design at the start of production, a well-thought out production schedule, a ruthless attention to change orders and the impacts they have on costs, and good internal controls with strict monitoring of performance.”
Work worries that many in the active and retired surface warfare communities are still skeptical of small combatants of any kind. “This attitude is quite striking given the U.S. Navy’s history, which, up until World War II, demonstrated a widespread appreciation for the contributions of small warships in fleet operations.” In the post-war demobilization, these ships were scrapped in favor of smaller numbers of larger, multi-mission combatants.
Photo Credit: Navy
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