Op-Ed: U.S. Navy Needs an Unmanned-Systems Squadron
[By Dustin League and LCDR Daniel Justice]
The U.S. Navy faces a future where large portions of its fleet will be composed of non-traditional assets. Specifically, unmanned systems comprise a significant portion of the CNO’s “key platforms and payloads” which the Navy seeks to acquire. That direction from the top is further born out in the Navy’s most recent shipbuilding plan which includes 10 large unmanned surface vessels and 191 unmanned undersea vehicles of various sizes. These numbers contrast with the total of 55 “battle force ships” planned to be built over the same period. Tonnage obviously also plays a role in this type of comparison, but by sheer numbers the Navy is moving toward unmanned vice manned platforms. The Navy must think past the engineering hurdles and determine how to effectively employ these new assets. To do so, we propose that the Navy revisit history and revitalize the complex learning system it used to exploit an earlier set of new capabilities prior to World War II. Specifically, we call for the Navy to accelerating standing up a dedicated experimental squadron with the purpose of exploring advanced tactics for employing unmanned systems in a series of tactically challenging, objective-based exercises.
Unmanned systems create new tactical and operational opportunities for the U.S. Navy and adversaries. But this is not the first time in the Navy’s history where technological advances have called into question old operating patterns. The Navy has come through similar transitions, with varying levels of success. Sometimes the Navy stayed ahead of transitions, taking advantage of technology before war (effectively employing naval air power) and sometimes it learned more slowly and at greater cost (for example, night-time battles in the Solomon Islands). What allowed the Navy to successfully adapt in these circumstances – whether fast or slow – was, as Trent Hone discusses in his book Learning War, its complex learning system.
Hone identifies the basic four-part pattern the Navy employed between 1898-1945 to adapt its tactics and doctrine and incorporate a host of new technologies:
- Identify the problem
- Establish constraints
- Encourage parallel experimentation
- Exploit the best-fitting solution
These components formed a complex system that allowed the Navy to transform after the Spanish-American War, provide support to the British during World War I, and eventually defeat the Imperial Japanese Navy in World War II. These four components were, to various degrees, embodied by different organizations within the Navy. The Naval War College was a key component in this structure and utilized war games to explore tactical innovations. However, the Navy’s success relied on operationalizing the concepts through actual fleet maneuvers. It accomplished this through various means like the Atlantic Fleet Torpedo Flotilla under Sims and Knox and the Fleet Problems of the 1920s and 1930s. Today, as it grapples with UxV employment, the Navy first needs to ensure it still functions as a complex learning system similar to what its predecessors designed.
Identify the problem. The Navy is introducing a host of new unmanned systems to the fleet, but what is the problem? Perhaps the Navy doesn’t know how to best use all these new systems and employing them poorly imposes opportunity costs. Should swarms of UxVs be sent separately and autonomously ahead of a battle fleet? Would they be better used as autonomous “wingmen” to manned systems? How do we get the best robot bang for our AI buck? Money spent on deploying a highly capable UxV in a way which utilizes only a fraction of its capability is money that could be better spent on systems the Navy knows how to use to full effect.
Establish constraints. Unmanned systems are not magic. They have significant limitations, not all of which are yet understood. In the undersea realm particularly, energy storage and sensing will continue to impose far greater restrictions on UUVs than have been seen on UAVs. Other constraints will emerge over time as more experience is gained operating with these systems. Hard limits on autonomous behaviors, on clandestine recovery, or on communications may yet be discovered and which may eventually drive system CONOPs. Rules of Engagement and associated human-in-the-loop requirements also pose considerable constraints. Efforts will continue to overcome these issues, but solving any limitation will be less important than understanding the constraints. Understanding and characterizing constraints allows for the simulation of a system—a method the Navy has long embraced.
Encourage parallel experimentation. To determine how to use a new system, the Navy has to try and be willing to fail. Hone describes the development of long-range gunnery techniques as an example of parallel experimentation in a safe-to-fail environment. In that process, the Navy allowed the ships and squadrons of its fleet to trial new systems, technologies, and tactics without forcing the entire Navy to adopt a single solution too early. This flexible approach, where systems were incorporated into the existing architecture of combatants, prevented the Navy from making a selection too early in the development process. It also prevented a “race to the bottom” solution where every ship was forced to implement the lowest common denominator option. UxV experimentation should utilize the same methodology and safe-to-fail mentality.
Exploit the best-fitting solution. Fleet-wide adoption of solutions present its own challenge. Here the Navy’s learning system of the early 20th century can be augmented by more recent research on innovation and adaptation. Since the mid-1980s academics studying business innovation have understood that there is a distinction between “invention,” the act of coming up with a new idea, and “innovation,” the act of causing a new idea to be widely accepted in an organization. It is not a given that a large, complex organization will naturally pick up and start using the best solutions to its problems, even after they are identified. Deliberate effort needs to be taken on the part of leadership to ensure the organization adopts the new methods.
In The Innovator’s Way, Peter Denning and Robert Dunham compiled and analyzed the results of two decades of innovation research. Their work helps to understand the challenges the Navy will face in exploiting new solutions—what Denning and Dunham refer to as “Third Adoption” or “Sustainment.” First, large organizations can be resistant to new approaches. This phenomenon has been recognized in naval circles for some time, often referred to as the “frozen middle.” Denning recommends leaders overcome resistance by adopting allies inside the network they seek to influence and continually reshaping the narrative about the new tactics to improve their “innovation story.” Second, once new ideas are spread through the Navy, leadership will have to ensure they do not drop out of use before they are truly obsolete. To ensure this, Navy leadership must ensure UxV CONOPs are enabled and supported. This entails continued training, material support, and continued value communication.
Adopting the process for unmanned systems
Many of the pieces required to replicate the success of the early 1900s are already understood by today’s Navy leaders. The Navy has already recognized the need for a squadron devoted to exploring how new systems are best employed. Vice Admiral Richard Brown, Commander, Naval Surface Forces and Naval Surface Forces Pacific, has called out the need for an experimental squadron to test new technologies, systems, and CONOPs for surface warfare. His assessment that the Navy needs “aggressive experimentation” is spot on. The Navy needs to move from saying the right things to committing to an actual organization to implement the modern-day equivalent of Hone’s parallel experimentation using real-world forces.
The best-fit platform for an experimental squadron will be one that is good enough, not perfect. A perfect experimental squadron will never exist. It is easy to imagine an experimental squadron made up of all our best and most capable new systems. One should also be able to imagine the horrendous cost, not only in terms of paying for and maintaining those systems but also the opportunity cost. A destroyer assigned to an experimental squadron is one that can’t be supporting the Navy’s vital needs elsewhere, imposing more strain on already thin force structure. So, rather than the ideal, the Navy must work with “good-enough.”
The Littoral Combat Ship was never meant to be the ideal solution to any kind of naval warfare, it was meant to be a good-enough solution to several. It is apt then, that its very organization provides a good-enough solution to a Navy problem it was never explicitly designed to fit all. In 2016, responding to a host of issues, the LCS program was reorganized to include a test division within LCSRON 1. The first four LCS’s grouped together with a mandate to “focus solely on testing hardware, software and concepts of operations to support bringing new mission module equipment into the fleet.” This is the mission description of an experimental squadron—only it is a single division of a single unit class of dubiously capable ships. Still, it is good enough.
The employment of an experimental squadron provides the Navy with a test-bed for unmanned systems. Designed with mission adaptability in mind, the LCS should serve as an excellent platform for employing a wide range of unmanned systems across a variety of missions. Echoes of this approach, using small ships in conjunction with unmanned systems to test and develop tactics and techniques, can been seen in previous Navy efforts such as the Center for Asymmetric Warfare’s (CAW) efforts with the small patrol craft CSW-1. It is also feasible to combine this suggested LCSRON test squadron approach to the “concept development hubs” whose formation is directed in the second iteration of the Chief of Naval Operations’ Design for Maintaining Maritime Superiority. Having multiple ships dedicated to employing UxVs to solve common operational challenges promotes creative and competitive problem solving. Having a single unit (such as UUVRON) devoted to the logistic and engineering challenges of the family of unmanned systems makes sense, but exploring new tactics is a task better suited to a diversified organization. The four-ship experimental squadron should be seen not as the sole solution for perfecting UxV tactics, it can only serve as a hotbed to be backed by follow-on fleet experimentation. The entire fleet should be involved. We add two precepts for how the Navy can best employ this learning system as embodied by the experimental squadron.
Objectives-based exercises. The test squadron must focus on real experimentation, which brings with it the opportunity for failure. The Navy must accept the likelihood that many of their experiments will fail. Deriving lessons from failure through hotwashes and critiques is not a new concept in the Navy. Tightly-scripted evolutions which showcase the ability of a system to complete specified tasks provide minimal insight, especially when they are devoid of capable opposition forces. They are demonstrations, not real...
The opinions expressed herein are the author's and not necessarily those of The Maritime Executive.
The opinions expressed herein are the author's and not necessarily those of The Maritime Executive.