Aligning the Navy’s Fleet Experimentation With Capability Development

Introduction

Amidst the crashing surf of a remote coastline, two U.S. Navy sailors clad in black wetsuits and protective helmets carry the MK18 Mod 1 Swordfish unmanned underwater vehicle (UUV) toward the open ocean (Figure 1). With minimal support equipment, they navigate the surf zone, demonstrating the expeditionary capability of deploying UUVs virtually anywhere in the world. Nearby, another sailor hunches over a rugged laptop, programming the UUV’s mission parameters in the open air—a testament to the simplicity and flexibility of operating these advanced systems in austere environments.

This scene unfolded during UNITAS LXV, the world’s longest-running multinational maritime exercise (Figure 2), highlighting the tactical proficiency of America’s warfighting Navy. The deployment of the MK18 Mod 1 Swordfish by Explosive Ordnance Disposal Mobile Unit 2 not only showcased cutting-edge technology but also emphasized the importance of interoperability with allies and partners such as Canada, France, and Germany. Such exercises promote peace, stability, and prosperity by fostering collaboration and enhancing collective maritime capabilities (Figure 3).

The MK18 Mod 1 Swordfish’s successful deployment underscores the transformative potential of UUVs in modern naval operations. Their ability to be rapidly deployed and operated with minimal logistical support makes them ideal assets for a wide range of missions, from mine countermeasures to intelligence gathering. This agility is critical in today’s fast-paced, evolving threat environment.

This article explores how leveraging contractor-owned, contractor-operated (COCO) services, in combination with fleet experimentation like that demonstrated during UNITAS LXV, can accelerate Programs of Record (PoRs) and better align capabilities with fleet needs. By tightening the feedback loop between sailors and program managers, the Navy ensures an active role in advancing operational requirements. This approach fosters innovation, enhances operational effectiveness, and positions the Navy to meet current and future challenges with agility and precision.

Evolving Needs in Capability Development

The U.S. Department of the Navy has a longstanding tradition of innovation and excellence in fielding critical systems that safeguard the nation’s interests. Its traditional acquisition processes have been instrumental in delivering robust and reliable capabilities that have served well over the years. These processes ensure thorough evaluation, accountability, and adherence to high standards, which are essential for mission success and the safety of Navy personnel.

However, the rapidly changing technological landscape and emergence of new threats presents an opportunity to enhance existing processes. As technology evolves at an unprecedented pace, the methods for developing and deploying new capabilities must also evolve. By building upon the strong foundation of the current acquisition framework, more agile and responsive approaches can be integrated to effectively meet today’s challenges.

One area that can be advanced is optimizing development timelines. While thoroughness is crucial, exploring ways to streamline certain aspects of the acquisition process can help bring cutting-edge technologies to sailors more quickly. This does not mean compromising on quality or safety but finding efficiencies that allow faster integration of new solutions without sacrificing rigor.

Additionally, introducing greater flexibility into the processes can enhance the ability to adapt to emerging technologies and evolving operational requirements. By complementing structured acquisition methods with more dynamic strategies, response to new opportunities can be swift and capabilities remaining at the forefront of innovation can be ensured.

Strengthening the alignment between program development and fleet needs is another avenue for positive growth. By fostering closer collaboration and open communication between program managers, industry partners, and the sailors who will ultimately employ these systems, the capabilities developed to address the most pressing operational challenges can also be ensured.

In embracing these enhancements, maintaining the excellence of these acquisition processes while making them more agile and responsive is the goal. This balanced approach allows continued deliverance of superior capabilities that empower sailors and keep them ahead in an ever-changing global landscape.

The Need for Agility in Modern Warfare

Modern warfare is evolving at an unprecedented pace, driven by rapid advancements in technology and shifting battlefield dynamics. Unmanned systems and artificial intelligence (AI) are at the forefront of this transformation, redefining how conflicts are conducted and highlighting the critical need for agility in capability development.

As drone technology evolves, so do the strategies employed on the battlefield. Unmanned systems offer significant advantages, including reduced risk to personnel, enhanced surveillance capabilities, and the ability to respond rapidly to emerging threats. The statement “the future of warfare is here, and it’s unmanned” resonates strongly in this context, emphasizing the immediate impact of these technologies on modern conflicts.

This evolving landscape underscores the importance for the Navy to adopt more agile approaches to capability development. By embracing flexibility and innovation, the Navy can ensure that it remains ahead of emerging threats and continues to provide sailors with the most advanced tools available. Agile development processes allow quicker integration of new technologies like unmanned systems and AI, ensuring operational readiness and maintaining technological superiority.

Incorporating lessons from real-world examples, such as the use of drones in Ukraine, highlights the necessity of adapting our acquisition strategies. By fostering agility, the Navy can better align its capabilities with the fast-paced nature of modern warfare, ensuring that it is prepared to meet current and future challenges with confidence and precision.

The Role of Fleet Experimentation

Testing, learning, and improving are crucial for advancing naval capabilities, thus allowing the following:

• Real-World Testing:  Operational environments provide valuable data on system performance, usability, and reliability.
• Rapid Feedback Loops:  Direct input from sailors enables program managers to make informed decisions quickly.
• Iterative Improvement:  Continuous testing and learning lead to refined systems that better meet operational needs.

By integrating experimentation into the capability development process, the Navy can provide the following benefits:

• Accelerate Innovation:  Quickly identify and adopt emerging technologies.
• Enhance Relevance:  Ensure that capabilities are directly aligned with fleet needs.
• Reduce Risk:  Validate concepts and technologies before full-scale acquisition.

Leveraging COCO Services

COCO services represent a collaborative model where contractors own and operate equipment or provide services, delivering capabilities directly to the Navy without the need for the government to procure the assets outright. This approach offers the following key advantages:

• Flexibility:  Contractors can rapidly design, experiment, and test ideas independently, allowing swift adaptation to emerging technologies and operational needs.
• Cost Efficiency:  With reduced government oversight, timelines accelerate and administrative costs decrease, leading to more efficient use of resources.
• Innovation:  By encouraging industry partners to bring forward cutting-edge solutions, the Navy benefits from the latest advancements without bearing the full burden of development risks.

COCO services provide the following advantages:

• Speed of Implementation:  Vendors can iterate quickly without being hindered by lengthy government approval processes. This agility enables the Navy to field new capabilities more rapidly in response to evolving threats.
• Reduced Costs:  Lower requirements for government-funded testing and oversight translate into significant cost savings. Funds can be redirected toward other critical areas without compromising capability development.
• Enhanced Collaboration:  Strong partnerships between the Navy and industry are fostered, leveraging external expertise and promoting a shared commitment to advancing naval capabilities.

Case Study:  Unmanned Underwater Vehicles in BALTOPS 24 [2]

A recent example highlighting the effectiveness of COCO services occurred during BALTOPS 24, the world’s longest-running multinational maritime exercise. The Royal Netherlands Navy deployed a yellow UUV from one of their ships to investigate underwater contacts as part of mine countermeasure training (Figure 4).

• Operational Value:  The UUV operated effectively in a real-world training environment, demonstrating its capability to enhance mine detection and clearance operations.
• Rapid Deployment:  The ability to launch the UUV swiftly during an international exercise underscored the flexibility and speed that COCO services could provide.
• Industry and International Collaboration:  The exercise highlighted how contractors, allied navies, and partners were willing and able to collaborate, bringing forward innovative technologies that enhanced collective maritime security.

By integrating COCO services into such exercises, the Navy and its partners can evaluate new technologies in operational settings without the need for immediate procurement. This approach allows assessing capabilities, identifying any limitations, and gathering valuable feedback from operators.

The Triton UUV and Combined Task Force (CTF) 59 Operations

Another compelling example is the Triton UUV’s operations in the Arabian Gulf. Despite the government not purchasing Tritons specifically for these activities, Ocean Aero demonstrated the UUV’s capabilities through fleet exercises and demonstrations coordinated by CTF 59 [3]. This collaboration showcased the following:

• Proven Endurance:  The Triton UUV operated for extended periods, validating that long-duration unmanned systems could function reliably in challenging maritime environments.
• Unified Control Systems:  CTF 59 successfully integrated multiple unmanned platforms, controlling various UUVs from a single interface. This capability enhanced operational efficiency and situational awareness.
• Industry Engagement:  Contractors proactively participated to prove the potential value of their technologies, reinforcing the benefits of COCO services in advancing naval capabilities.

Integrating COCO Services With PoRs

It is a connection most glossed over, but when COCO services are viewed as a path to rapid PoR advances, new and useful opportunities are presented. Understanding the flexibility of COCO services is key to using these services to rapidly advance PoRs.

Bridging the Gap Between Experimentation and Acquisition

To fully harness the benefits of COCO services, it is crucial to understand how they can transition into formal PoRs. The REMUS 300 UUV serves as an excellent example of a commercial system that bridges this gap. Developed by Huntington Ingalls Industries (HII), the REMUS 300 is being used to establish a PoR and could further benefit from COCO services to implement incremental improvements [4].

Key considerations in this transition include the following:

• Data Rights:  Ensuring that the Navy has access to essential data generated during COCO operations is vital. This data supports evaluation, informs future development, and ensures that any enhancements align with Navy requirements.
• Test and Evaluation Requirements:  Establishing clear protocols for testing and validating performance is necessary to ensure that systems meet operational standards and are suitable for deployment.
• Quality Evidence Requirements:  Gathering objective and quantifiable data provides the evidence needed to support acquisition decisions and justifies the integration of new capabilities into PoRs.

Enhancing the Acquisition Process

Integrating COCO services with PoRs offers several advantages that enhance the traditional acquisition process:

• Informing PoRs:  COCO services provide real-world operational data and direct fleet feedback. For instance, using the REMUS 300 in COCO arrangements allows sailors to operate the system in various missions such as mine countermeasures, data collection, and search and rescue. Their experiences help shape requirements and specifications for PoRs.
• Reducing Risks:  Early identification and mitigation of potential issues are possible when systems are tested extensively in operational environments. Incremental improvements made through COCO services can be evaluated before formal incorporation into PoRs, reducing development risks.
• Accelerating Timelines:  By utilizing commercial systems, which are already operationally viable, the Navy can shorten the path from concept to deployment. COCO services facilitate rapid iteration and integration of new technologies without the delays often associated with traditional procurement processes.

Ensuring Alignment With Fleet Needs

Direct involvement of the fleet in experimentation ensures that the following capabilities developed are precisely what sailors require:

• Operational Relevance:  Systems are tested and validated by end users in real-world scenarios. For example, during mine countermeasure operations, sailors can assess the UUV’s effectiveness and suggest enhancements based on firsthand experience.
• Responsive Development:  Feedback from sailors operating COCO systems can lead to quick adjustments and incremental improvements. HII’s recent unveiling of the REMUS 130, built on the same platform as the REMUS 300, exemplifies how industry can respond to operational feedback by offering vehicles with reduced cost and risk while maintaining high capability.
• Active Navy Role:  By engaging directly with contractors through COCO services, the Navy maintains ownership of capability development priorities. This active role ensures that advancements align with strategic objectives and operational requirements.

Case Study:  The REMUS 300 and PoR Establishment

The REMUS 300’s journey from a commercial UUV to its role in establishing a PoR illustrates the effective integration of COCO services as follows:

• Commercial Foundation:  The REMUS 300, a small UUV measuring between 6 to 12 ft long and 7 1/2 inches in diameter, is designed for versatility in missions like data collection, offshore exploration, search and rescue, and mine countermeasures.
• Incremental Improvements:  HII’s introduction of the REMUS 130, based on the proven REMUS 300 platform, demonstrates how incremental enhancements can be developed in response to customer needs.
• Establishing the Lionfish UUV:  The REMUS 300 is also the commercial system being utilized by HII to develop and manufacture the Navy’s new Lionfish UUV. This progression from a commercial product to a tailored military asset underscores the potential of leveraging COCO services for capability development.

Benefits of a Combined Approach

Integrating COCO services with traditional PoRs offers a multitude of benefits that enhances the Navy’s capability development process. This combined approach leverages the strengths of both models to deliver advanced capabilities more efficiently and effectively.

Increased Agility and Responsiveness

• Adapts to Emerging Threats:  By utilizing COCO services, the Navy can rapidly develop and deploy new technologies to address evolving challenges. For example, the deployment of unmanned systems like the MK18 Mod 1 Swordfish during UNITAS LXV and the REMUS 300 UUV allows for swift integration of advanced capabilities to counter modern threats.
• Facilitates Flexible Contracting:  COCO services enable the Navy to adopt diverse contracting strategies tailored to specific needs. This flexibility facilitates quicker procurement and deployment of essential technologies, ensuring that operational units have access to the tools they require without delay.

Improved Alignment and Relevance

• Directly Addresses Fleet Needs:  Involving sailors directly in the experimentation and development process ensures that capabilities are closely aligned with actual operational requirements. The hands-on use of UUVs like the REMUS 300 and the MK18 Mod 1 by fleet personnel provides immediate feedback, allowing adjustments that meet the specific needs of the fleet.
• Enhances Effectiveness:  Systems developed through this collaborative approach are more likely to perform as required in real-world scenarios. The practical experience gained from exercises like BALTOPS 24, where unmanned underwater vehicles were deployed for mine countermeasure training, demonstrates the operational effectiveness of these systems.

Cost Savings and Efficiency

• Reduces Development Costs:  Streamlined processes inherent in COCO services eliminate unnecessary expenses associated with traditional acquisition methods. By leveraging commercial off-the-shelf technologies and industry expertise, the Navy can reduce research and development costs significantly.
• Efficiently Uses Resources:  Focusing funding on high-impact areas ensures that resources are utilized where they can make the most difference. The incremental improvements made to systems like the REMUS 300, leading to the development of the REMUS 130, exemplify efficient resource allocation that meets mission needs without excessive expenditure.

Enhanced Collaboration and Innovation

• Partners With Industry:  COCO services foster strong partnerships between the Navy and private sector companies. By leveraging advancements and expertise from industry leaders like HII, the Navy benefits from cutting-edge technologies and innovative solutions that might not be readily available through traditional procurement channels.
• Fosters an Innovation Culture:  Encouraging creative problem-solving and adopting new technologies becomes a natural outcome of this combined approach. The agile development seen in the use of first-person-view drones by operators in Ukraine highlights how embracing new methodologies can lead to significant tactical advantages.

Addressing Challenges and Mitigating Risks

While the combined approach of integrating COCO services with PoRs offers substantial benefits, it is essential to recognize potential challenges and implement strategies to mitigate risks effectively. Such challenges include the following:

• Misappropriation Concerns:  Ensuring the proper use of funds and resources is crucial. Without adequate oversight, there is a risk of misaligned priorities or inefficient use of financial resources.
• Unfunded Requirements:  Successful demonstrations and experiments may lead to identifying capabilities that lack allocated budgets for full-scale implementation, potentially causing gaps in operational readiness.
• Testing Considerations:  Robust protocols are necessary to validate the effectiveness and reliability of new systems. Without standardized testing, there may be inconsistencies in performance or unforeseen issues during deployment.
• Program Configuration Management:  Maintaining consistency with broader program objectives is vital. Changes or improvements made through COCO services must be carefully managed to ensure they align with the overall goals and do not disrupt existing configurations.

Strategies for mitigation are as follows:

• Clear Guidelines and Oversight Mechanisms:  Implementing comprehensive frameworks for accountability ensures that all parties understand their responsibilities. Establishing clear contracts and expectations with industry partners helps maintain focus and proper use of resources.
• Phased Funding Approaches:  Allocating resources based on milestones and performance allows better financial control. By tying funding to specific achievements, the Navy can ensure that investments lead to tangible results without overcommitting resources prematurely.
• Collaboration With Program Managers:  Close coordination between COCO service providers and program managers ensures alignment with overall program goals. Regular communication and joint planning help integrate new capabilities smoothly into existing structures.
• Standardized Testing Protocols:  Establishing consistent evaluation methods guarantees that all new systems meet required standards. Developing and adhering to rigorous testing procedures reduces the risk of deploying unproven technologies and enhances overall reliability.

Conclusions

The landscape of modern warfare is rapidly evolving, driven by technological advancements and emerging threats that demand agility, innovation, and swift adaptation. The Navy stands at a pivotal juncture where embracing new methodologies can significantly enhance its operational effectiveness and maintain its strategic edge.

By integrating COCO services with traditional PoRs, the Navy can leverage the best of both worlds—harnessing industry innovation and flexibility while maintaining the rigorous standards and oversight that ensure mission success and safety of its personnel. This combined approach offers the following benefits:

• Increased Agility and Responsiveness:  The ability to rapidly develop and deploy new technologies allows the Navy to address emerging challenges promptly. Flexible contracting strategies enable tailored solutions that meet specific operational needs without unnecessary delays.
• Improved Alignment and Relevance:  Direct involvement of sailors in experimentation ensures that capabilities are developed with immediate operational input. This hands-on engagement enhances the likelihood that systems will perform as required in real-world scenarios, directly addressing the fleet’s needs.
• Cost Savings and Efficiency:  Streamlined processes inherent in COCO services reduce development costs and focus funding on high-impact areas. Efficient use of resources ensures that the Navy can invest in critical capabilities without excessive expenditure.
• Enhanced Collaboration and Innovation:  Strong partnerships with industry leverage private sector advancements and expertise. Fostering a culture of innovation encourages creative problem-solving and the adoption of cutting-edge technologies.

The examples discussed—from the deployment of the MK18 Mod 1 Swordfish during UNITAS LXV to the incremental improvements of the REMUS 300 UUV—illustrate the tangible benefits of this integrated approach. These cases highlight how the Navy can rapidly field advanced capabilities, improve operational readiness, and stay ahead of adversaries who are also leveraging technology to their advantage.

However, it is essential to recognize and address potential challenges associated with this approach. Implementing clear guidelines, robust oversight mechanisms, phased funding, and standardized testing protocols ensures that risks are mitigated effectively. Close collaboration between program managers, industry partners, and operational units maintains alignment with broader objectives and sustains the integrity of capability development efforts.

The Path Forward

Embracing the integration of COCO services with PoRs represents a strategic imperative for the Navy. This approach not only accelerates capability development but also strengthens the Navy’s active role in advancing operational requirements. By fostering agility, enhancing collaboration, and prioritizing innovation, the Navy positions itself to meet the demands of modern warfare confidently and effectively.

Moving forward, the Navy should continue to do the following:

• Promote Agile Development Practices:  Encourage the adoption of flexible methodologies that allow rapid iteration and deployment of new technologies.
• Strengthen Industry Partnerships:  Cultivate relationships with industry leaders to leverage expertise and stay abreast of technological advancements.
• Enhance Fleet Engagement:  Involve sailors directly in the development and experimentation process to ensure capabilities align with operational realities.
• Implement Robust Governance:  Establish frameworks that balance innovation with accountability, ensuring that resources are used efficiently and effectively.

By committing to these principles, the Navy can navigate the complexities of today’s security environment, maintaining technological superiority and operational excellence. The integration of COCO services with traditional acquisition processes is not just an opportunity but a necessity to ensure that the Navy remains agile, responsive, and prepared to face the challenges of the future.

References

1. Defense Visual Information Distribution Service (DVIDS). “Unmanned Underwater Vehicle Land Operations.” Photo by Petty Officer 1st Class Hunter Harwell, U.S. Naval Forces Southern Command/U.S. 4th Fleet, https://www.dvidshub.net/image/8628508/unmanned-underwater-vehicle-land-operations, 2024.
2. DVIDS. “Sea Scan Underwater Drone Used for Training During BALTOPS 24.” Courtesy photo by Royal Netherlands Navy Senior Chief Petty Officer Jan Eenling, U.S. Naval Forces Europe-Africa/U.S. 6th Fleet, https://www.dvidshub.net/image/8469011/sea-scan-underwater-drone-used-training-during-baltops-24, 2024.
3. U.S. Department of Defense. “U.S., UAE Naval Forces Complete First-Ever Bilateral Unmanned Exercise.” U.S. Naval Forces Central Command Public Affairs, U.S., UAE Naval Forces Complete First-Ever Bilateral Unmanned Exercise > U.S. Naval Forces Central Command > Display, 20 February 2023.
4. HII. “HII’s REMUS 300 Selected as U.S. Navy’s Next Generation Small UUV Program of Record.” https://hii.com/news/hiis-remus-300-selected-as-u-s-navys-next-generation-small-uuvprogram-of-record/, 20 March 2022.

Biography

Jonathan Haase is the program manager of the U.S. Navy’s Expeditionary Missions program office (PMS 408), an acquisition and project management professional, an explosive ordnance disposal (EOD) officer, and a registered SCRUM trainer. His work at PMS 408 focuses on UUVs, remotely operated vehicles, and EOD equipment. He has also published on AI and decision making and metacognition and AI. Capt. Haase holds degrees from the U.S. Naval Academy, University of Maryland College Park, and professional certificates from Harvard.