U.S. Air Force Bomber Sustainment and Modernization: Background and Issues for Congress

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U.S. Air Force Bomber Sustainment and

Modernization: Background and Issues

for Congress

(name redacted)

Specialist in Military Aviation

June 4, 2014

Congressional Research Service

7-....

www.crs.gov

R43049

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Summary

The United States’ existing long-range bomber fleet of B-52s, B-1s, and B-2s are at a critical

point in their operational life span. With the average age of each airframe being 50, 28, and 20

years old, respectively, military analysts are beginning to question just how long these aircraft can

physically last and continue to be credible weapon systems. As potential adversaries acquire 21st

century defense systems designed to prevent U.S. access to the global commons (sea, air, space,

and cyberspace) and to limit U.S. forces’ freedom of action within an operational area, the ability

of these Cold War era bombers to get close enough to targets to be effective will continue to

deteriorate. Although the Air Force is committed to the development and acquisition of its

proposed Long-Range Strike-Bomber (LRS-B), it is anticipated that flight-testing of the new

bomber will not start until the mid-2020s, with initial operational capability near 2030. With this

timeline in mind, the Air Force has extended the operational lives of the B-52 and B-1 out to 2040

and the B-2 out to 2058. Air Force and aerospace industry experts insist that with sufficient

funding for sustainment and modernization over their expected lifespans, all three of the existing

bombers can physically last and continue to remain credible weapon systems. However,

appropriations decisions made by Congress based on required military capabilities to meet

national security objectives will ultimately determine how long the B-52, B-1, and B-2 will

remain in service.

The central issue for Congress is how much funding should be appropriated for the continued

sustainment and modernization of the B-52, B-1, and B-2 bombers over the remainder of their

service lives. Interest in this subject stems from Congress’s authority to approve, reject, or modify

Air Force funding requests for bomber sustainment and modernization as well as its oversight of

the nation’s long-range strike requirements and capabilities. In addition, sustainment,

modernization, and size of the bomber force have been perennial legislative topics since the early

1990s. As the Air Force progresses through development and acquisition of the LRS-B and begins

the gradual phase-out of 50-year-old bombers, it is anticipated Congress will continue dealing

with bomber sustainment and modernization legislation. Congress’s decisions on appropriations

for the bomber force could affect the nation’s long-range strike capabilities and have unintended

consequences on U.S. national security as well as the U.S. aerospace industry.

The context through which Congress will make these decisions includes U.S. national security

and defense strategies and the expectation of the role the B-52, B-1, and B-2 will play in

executing those strategies. Some of the many global and strategic variables that could become

central in Congress’s decision making on the bomber force include the following:

•

the Obama Administration’s 2012 rebalance in national security strategy toward

the Asia-Pacific region and the military implications applicable to the bomber

force;

•

the expected contribution of bombers in accomplishing the critical missions of

U.S. forces as outlined in the Department of Defense’s strategic guidance,

Sustaining U.S. Global Leadership: Priorities for the 21st Century Defense;

•

the effectiveness and sustainability of the Air Force’s continuous bomber

presence operation—based in the Pacific at Anderson Air Force Base, Guam—

and corresponding displays of worldwide power projection missions by all three

bombers;

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

•

the anti-access/area denial (A2/AD) challenge presented by potential adversaries

and the developments related to bombers’ employment in an A2/AD threat

environment; and

•

the bombers’ role in nuclear deterrent operations and the impact of the New

Strategic Arms Reduction Treaty on the B-52 and B-2.

The starting point for Congress’s debate on bomber modernization and sustainment is the existing

Air Force bomber force, which includes

•

76 B-52H Stratofortress bombers capable of both conventional and nuclear

operations and capable of employing long-range standoff weapons. The B-52H

first entered service on May 9, 1961.

•

63 B-1B Lancer bombers capable of supersonic and low-level flight,

conventional only operations, and employing long-range standoff weapons. The

B-1B became operational in 1986.

•

20 B-2A Spirit, low observable (stealth) bombers capable of both conventional

and nuclear operations. The B-2A entered service in December 1993 and became

fully operational capable (FOC) on December 17, 2003.

Potential congressional oversight and appropriations concerns for the sustainment and

modernization of the U.S. Air Force’s bomber force may include the following:

•

the potential for a shortfall in the nation’s long-range strike capabilities as

development of the Air Force’s proposed LRS-B continues;

•

the feasibility and affordability of Air Force bomber sustainment and

modernization plans and whether those plans bridge any potential long-range

strike capabilities gap until the LRS-B becomes operational;

•

the amount of money Congress and the nation should continue spending on 28and 50-year-old bombers;

•

the sufficiency of acquisition plans for the 80 to 100 LRS-Bs to backfill U.S.

long-range strike requirements as the legacy bomber force ages out of service;

•

the possibility of further delaying development and acquisition of the proposed

LRS-B given sufficient levels of funding for sustainment and modernization of

the current bomber force;

•

the modernization, sustainment, and development of the weapons employed by

the bomber force that affect the bombers’ effectiveness and ability to operate in

advanced, 21st century A2/AD threat environment;

•

the potential implications of reduced bomber sustainment and modernization, and

subsequent diminishing numbers of airframes, on any future rounds of base

realignment and closure efforts; and

•

the ability of the nation’s industrial base to sustain an aging bomber force.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Contents

Introduction...................................................................................................................................... 1

Background ...................................................................................................................................... 2

United States’ Military Strategy Shift: Do the Bombers’ Capabilities Meet Strategic

Requirements? ........................................................................................................................ 2

Potential Strategic Influence of Bombers on the Administration’s Strategy Shift..................... 4

Bomber Expectations: Employment in DOD’s Strategic Guidance .......................................... 5

Bomber Contribution to Critical Missions .......................................................................... 5

Forward Deployed Diplomacy: Continuous Bomber Presence and Worldwide

Power Projection .............................................................................................................. 8

Meeting the Anti-Access/Area Denial (A2/AD) Challenge .............................................. 10

Bomber Employment in an A2/AD Environment ............................................................. 12

Nuclear Deterrent Operations............................................................................................ 14

New Strategic Arms Reduction Treaty: Impact on Bombers ............................................ 15

Existing U.S. Bomber Force .................................................................................................... 15

B-52H Stratofortress ................................................................................................................ 16

Current B-52 Sustainment and Modernization Efforts ............................................................ 17

B-1B Lancer ............................................................................................................................ 19

Current B-1 Sustainment and Modernization Efforts .............................................................. 20

B-2A Spirit............................................................................................................................... 22

Current B-2 Sustainment and Modernization Efforts .............................................................. 22

Issues for Congress ........................................................................................................................ 25

Potential for Inducing a Shortfall in Long-Range Strike Capabilities ..................................... 25

Will Current Air Force Bomber Sustainment and Modernization Plans Get Us to the

LRS-B? ................................................................................................................................. 26

To Fund or Not to Fund: What Are DOD and Air Force Priorities? ........................................ 27

As Legacy Bombers Phase Out, Are 80-100 LRS-Bs Sufficient? ........................................... 29

If Legacy Bombers are Modernized, Can the Air Force Further Delay Development

of the LRS-B? ....................................................................................................................... 30

Modernization of Bomber-Launched Weapons ....................................................................... 31

Potential Implications of Bomber Modernization on Air Force Basing and any Future

Base Realignment and Closures (BRAC)............................................................................. 32

Industrial Base Concerns Associated with Bomber Sustainment ............................................ 33

Historical Appropriations for Bomber Sustainment and Modernization, FY2002-2012 ............... 34

Legislative Activity FY2011-FY2013 ........................................................................................... 37

FY2011 National Defense Authorization Act (P.L. 111-383) .................................................. 37

FY2012 Department of Defense Appropriations (H.Rept. 112-331) ....................................... 37

FY2012 National Defense Authorization Act (P.L. 112-81) .................................................... 38

FY2013 Department of Defense Appropriations (S.Rept. 112-196: To accompany

H.R. 5856) ...................................................................................................................... 39

FY2013 Department of Defense Authorizations (P.L. 112-239) ....................................... 39

Conclusion ..................................................................................................................................... 39

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Figures

Figure 1. Joint Operational Access and Air-Sea Battle Concept.................................................... 11

Figure 2. Legacy Bomber Employment in an A2/AD Operating Environment............................. 13

Figure 3. B-52H Stratofortress....................................................................................................... 16

Figure 4. B-1B Lancer ................................................................................................................... 19

Figure 5. B-2A Spirit ..................................................................................................................... 22

Figure 6. DOD Planned Long Range Strike Inventories and Funding (Includes B-52H, B1B and B-2) ................................................................................................................................ 28

Figure 7. Congressional Authorizations and Appropriations for Bomber Sustainment and

Modernization............................................................................................................................. 34

Figure 8. B-52, B-1 and B-2 Appropriations Comparison ............................................................. 35

Figure 9. B-52, B-1 and B-2 Appropriations and Average Historical Mission Capable

Rates ........................................................................................................................................... 36

Figure B-1. Graphical Summary of B-52 Sustainment and Modernization Master Plan .............. 50

Figure B-2. Historical Comparison of B-52 Appropriated Funding and the Average

Annual Mission Capable (MC) Rates for the B-52 Fleet ........................................................... 51

Figure C-1. B-1 Strategic Action and Investment Plan, $250 Million/Fiscal Year Funding

Scenario ...................................................................................................................................... 56

Figure C-2. Historical Comparison of B-1 Appropriated Funding and the Average Annual

Mission Capable (MC) Rates for the B-1 fleet ........................................................................... 57

Figure D-1. Graphical Summary of B-2 Sustainment and Modernization Master Plan ................ 62

Figure D-2. Historical Comparison of B-2 Appropriated Funding and the Average Annual

Mission Capable (MC) Rates for the B-2 fleet .......................................................................... 63

Tables

Table 1. Historical Examples of Missions Accomplished by Bombers ........................................... 7

Table 2. Current U.S. Air Force Bomber Force ............................................................................. 16

Table 3. Current B-52 Sustainment and Modernization Efforts .................................................... 18

Table 4. Current B-1 Sustainment and Modernization Efforts ...................................................... 21

Table 5. Current B-2 Sustainment and Modernization Efforts ...................................................... 24

Table 6. DOD Aviation Long Range Strike Aircraft Inventory (Includes B-52H, B-1B,

and B-2) ...................................................................................................................................... 26

Appendixes

Appendix A. Existing Bomber Force ............................................................................................. 41

Appendix B. Plans for B-52H Bomber Sustainment and Modernization ...................................... 47

Appendix C. Plans for B-1 Bomber Sustainment and Modernization ........................................... 52

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Appendix D. Plans for B-2 Sustainment and Modernization......................................................... 58

Appendix E. Legislative Activity FY2011-FY2013 ...................................................................... 64

Contacts

Author Contact Information........................................................................................................... 70

Acknowledgments ......................................................................................................................... 70

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Introduction

The central issue addressed by this report is how much Congress should consider appropriating

for the continued sustainment and modernization of the B-52, B-1, and B-2 bombers over the

remainder of their service lives. Many military experts note the advanced age of the United

States’ long-range bomber fleet. The B-52H Stratofortress, B-1B Lancer, and B-2A Spirit are now

about 50, 28, and 20 years old respectively. In fact, Air Force Global Strike Command declared

2012 the “Year of the B-52” in honor of the 50th anniversary of the last delivery of a B-52 and the

60th anniversary of the first test flight of the YB-52.1 The B-1B celebrated its 25th anniversary in

2010. The last B-2 delivery was in 1997. Although the Department of Defense and the Air Force

are committed to the development and fielding of a new Long-Range Strike-Bomber (LRS-B),

flight-testing of the new bomber will likely not start until the mid-2020s. Initial development of

the B-2 began in the early 1980s and the first aircraft was delivered on December 17, 1993. If the

B-2 experience is the norm, potential delivery of the first operational LRS-B may be expected

sometime in the 2030 timeframe. With this in mind, can the U.S. Air Force’s B-52Hs, B-1Bs, and

B-2As physically last and continue to be credible weapon systems until the LRS-B is fielded?

More importantly, does the nation’s “legacy” bomber force possess the capabilities required to

meet national security strategy objectives, especially in the face of potential adversaries

possessing advanced, 21st century anti-access/area-denial (A2/AD) weapon systems?2 The U.S.

Air Force and aerospace industry’s answer is “yes,” provided sufficient sustainment and

modernization funding is available over the remaining lifespan of these weapon systems.

Without sufficient sustainment and modernization funding, many analysts argue the U.S. bomber

fleet will quickly become a decrepit force ill-suited to the potential challenges posed by 21st

century adversaries. The average age of the bomber force is 33. Because of the physical wearand-tear placed on these aircraft from the demands of military flight—compounded by 11 years

of continuous combat—aging airframe structures need reinforcement, engines need to be

replaced, and computer and electronic components need upgrading. Even if corrosion, metal

fatigue, and parts obsolescence do not take their toll on the fleet, military analysts point out that

potential adversaries are acquiring advanced, A2/AD weapon systems that would make it harder

for the bombers to reach their targets, thus relegating them to a “standoff” weapons employment

role.3 But even “standoff” weapons have their limits, especially against deeply buried and/or

hardened targets found in places like North Korea and Iran. Consequently, most experts agree all

three bombers are in need of upgrades to their systems in order to counter A2/AD-equipped

adversaries and require constant operational research and testing to evaluate and incorporate new

and modern weapons into their arsenal.

The YB-52 was the second B-52 prototype aircraft built. The aircraft was completed and rolled out for ground testing

on March 15, 1952. The first flight was one month later on April 15. The YB-52 was the first B-52-type to actually fly.

Congress found that the 2010 report on the Department of Defense Quadrennial Defense Review concluded that antiaccess/area denial strategies and weapon systems “seek to deny outside countries the ability to project power into a

region, thereby allowing aggression or other destabilizing actions to be conducted by the anti-access power. Without

dominant capabilities to project power, the integrity of United States alliances and security partnerships could be called

into question, reducing United States security and influence and increasing the possibility of conflict.” P.L. 111-383,

111th Congress, 2nd session, 2011, Section 1238.

For example, Lt. Gen. Christopher D. Miller, deputy chief of staff for Air Force strategic plans and programs noted,

“The current fleet [of bombers] has been upgraded over the years with new weapons and electronic warfare systems,

but it is increasingly at risk to modernizing air defenses.” Quoted in John A. Tirpack’s, “Time to Get Started,” Air

Force Magazine, February 2012, p. 31.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

This report addresses potential congressional oversight and appropriations concerns for the

sustainment and modernization of the U.S. Air Force’s bomber force. It does not address Air

Force efforts to develop and acquire the proposed LRS-B. Congressional interest in this subject

stems from Congress’s authority to approve, reject, or modify Air Force funding requests for

bomber sustainment and modernization, as well as their oversight of the nation’s long-range strike

requirements and capabilities. In addition, sustainment, modernization, and size of the bomber

force have been perennial legislative topics since the early 1990s. As the Air Force progresses

through development and acquisition of the LRS-B and begins the gradual phase-out of 50-yearold bombers, it is anticipated that Congress will continue dealing with bomber sustainment and

modernization legislation. Congress’s decisions on appropriations for the bomber force could

impact the nation’s long-range strike capabilities and have additional consequences for the U.S.

aerospace industry.

A key issue for Congress is whether to continue providing sustainment and modernization

funding for the Air Force’s B-52H, B-1B, and B-2A bombers, and if so, at what levels. Pertinent

to the discussion is the potential for a shortfall in the nation’s long-range strike capabilities if

Congress or the Air Force chooses to minimize funding for sustainment and upgrades that would

keep these weapon systems viable against A2/AD-equipped adversaries. Also, given Air Force

plans to keep the B-52 and B-1 flying well beyond 2030, Congress may consider whether current

bomber sustainment and modernization plans will meet the nation’s long-range strike

requirements until the LRS-B is operational. Additionally, Congress may also consider whether

the planned 80-100 LRS-Bs will adequately replace the capabilities lost as the legacy bombers

start retiring from service in the 2030s. Congress’s oversight and decisions on these issues could

also have implications for any potential future base realignment and closure (BRAC) decisions as

well as impact the U.S. aircraft manufacturing industrial base. Ultimately, the priority the Air

Force places on bomber sustainment and modernization, and any decisions considered by

Congress, could have potential consequences for future national defense strategies and on U.S.

long-range strike capabilities.

Background

United States’ Military Strategy Shift: Do the Bombers’

Capabilities Meet Strategic Requirements?

The Obama Administration’s 2012 shift in national security and defense strategy towards the

Asia-Pacific region has significant implications for America’s legacy bomber force.4 Stemming

from the growing economic importance of the Asia-Pacific region, China’s growing military

capabilities and its increasing assertiveness of claims to disputed maritime territories, U.S.

concerns with freedom of navigation and the ability to project power in the region, and the end of

U.S. military operations in Iraq and Afghanistan, President Obama directed the Department of

Defense (DOD) to raise the Asia-Pacific region’s priority in U.S. military planning.5 Many

analysts agree this rebalance has placed renewed emphasis on U.S. naval forces due to the

For in-depth analysis of the Obama Administration’s rebalance towards Asia-Pacific, see CRS Report R42448, Pivot

to the Pacific? The Obama Administration’s “Rebalancing” Toward Asia, coordinated by (name redacted).

For in-depth analysis of DOD’s new strategic guidance, see CRS Report R42146, Assessing the January 2012

Defense Strategic Guidance (DSG): In Brief, by (name redacted) and (name redacted).

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

maritime character of the Pacific theater of operations. However, budgetary pressures and

potential defense cuts may reduce long-term naval procurement plans and planned naval force

levels in the Pacific region.6 Consequently, just as B-17 and B-29 bombers demonstrated the

value of long-range airpower projection in the Pacific Theater during World War II, the U.S. Air

Force may be planning on the current fleet of B-52s, B-1s, and B-2s to provide an essential

complement to U.S. naval forces in the vast geographical expanses of the Asia-Pacific.7

In addition to the Asia-Pacific, the Administration’s new defense strategy also calls for retaining

emphasis on the Middle East while ensuring U.S. defense commitments to European allies. This

aspect of the new strategy may prove the most challenging from a resource perspective as the

DOD is forced to implement automatic spending cuts laid out in the Budget Control Act (BCA) of

2011 (P.L. 112-25/S. 365 of August 2, 2011). The BCA necessitates $55 billion a year in defense

cuts over the nine years from FY2013 to FY2021. Specifically for the bomber force, Air Force

leaders have said that such cuts would result in an 18% reduction in both bomber flying hours and

in bomber sustainment and modernization efforts, resulting in aircraft availability and mission

capable rates falling below standards.8 Some military analysts, consequently, are skeptical as to

whether U.S. force levels will be sufficient to meet multiple, competing priorities in both the

Asia-Pacific and the Middle East, all the while reassuring U.S. commitments in Europe.9

However, some historical examples suggest the current bomber force is capable of balancing

national security priorities among competing geographical regions.

Since 2003, B-52s, B-1s, and B-2s have maintained a continuous bomber presence in the Pacific

with regularly scheduled rotations to Andersen Air Force Base, Guam, while simultaneously

participating in continuous combat operations in the Middle East and Afghanistan. An example of

this is the March 2003 deployment of B-52s and B-1s to Guam (in response to North Korean

nuclear weapons activities) while additional B-52s, B-1s, and B-2s participated in the opening

phases of Operation Iraqi Freedom and flew combat sorties in Afghanistan.10 Essentially, this dual

deployment of bombers to two geographical regions demonstrated the United States and the

bomber force’s ability to fight wars in the Middle East and Afghanistan while retaining the

capability to respond to potential crises in the Asia-Pacific.

For example, there is considerable concern that long-term Navy budgets will not sustain a Navy of 313 ships, as

called for in recent plans. See, for instance, Jonathan Greenert, “Navy, 2025: Forward Warfighters,” U.S. Naval

Institute Proceedings, December 2011: 20 and 22.

Ashton B. Carter, Deputy Secretary of Defense, “The U.S. Strategic Rebalance to Asia: A Defense Perspective”

(speech, The Asia Society, New York, NY, August 1, 2012); and, Tom Vanden Brook, “B-1 bomber mission shifts

from Afghanistan to China, Pacific,” USA Today online, http://usatoday30.usatoday.com/news/military/story/2012-0511/b-1-bomber-obama-new-strategy/56097706/1.

Department of the U.S. Air Force, Public Affairs Guidance: Sequestration-Final (Washington, DC: USAF Public

Affairs Office, February 7, 2013).

For example, Dan Blumenthal, director of Asian Studies at the American Enterprise Institute, assesses that the current

U.S. response to China’s military modernization, manifested in the Obama Administration’s rebalance to the AsiaPacific and the U.S. military’s operational concept called Air-Sea Battle (ASB), is inadequate in several respects.

Primarily, Blumenthal argues that cuts to the defense budget will make it difficult to resource the Administration’s

“rebalance” and the military’s ASB concept while continuing to address challenges that remain in the Middle East and

Europe. Dan Blumenthal et al., Strategic Asia 2012-13: China’s Military Challenge (Washington, DC: The National

Bureau of Asian Research, 2012), chapter on: The U.S. Response to China’s Military, p 309.

Rebecca Grant, “Bomber Diplomacy,” Air Force Magazine, December 2011, 32.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Potential Strategic Influence of Bombers on the Administration’s

Strategy Shift

The Administration’s strategic guidance identifies three priorities for which the USAF bomber

force could have significant strategic influence. These include reaffirming U.S. commitment to

the security and prosperity of allies in the Asia-Pacific region; ensuring access to the global

commons which facilitate world-wide economic opportunities and guarantee U.S. power

projection capabilities; and ensuring a quick, military response capability to any hostilities from

potential adversaries in the region.

According to former Secretary of State Hillary Clinton, the U.S. commitment to what she termed

“forward-deployed” diplomacy would include the strengthening of bilateral security alliances

with U.S. allies in the Asia-Pacific and necessitate the forging of a broad-based military

presence.11 Forward based bombers, whether deployed on a continuous basis or periodically as

part of training exercises, could play a significant role in reaffirming U.S. commitments to allies

in the Asia-Pacific region. Primarily through regular rotational deployments (such as the

continuous bomber presence rotation at Andersen AFB, Guam) and participation in bilateral and

multilateral training exercises, the visible presence of U.S. bombers abroad could potentially

reinforce the U.S. commitment to deterrence (conventional and nuclear) against any potential

adversary in the region and could provide an economical and effective way to increase U.S.

influence there.12

Freedom of navigation and access to the South China Sea is considered by many analysts vital to

the economy of every nation in North America and East Asia. More than half of the world’s

shipping passes through the South China Sea every year (approximately 70,000 ships carrying

$5.3 trillion worth of goods). Of that, $1.2 trillion worth is trade that directly affects the United

States.13 In addition, over 80% of crude oil supplies to Japan, South Korea, and Taiwan flow

through the South China Sea—making these countries especially dependent on South China Sea

shipping routes.14 Any attempt to restrict universal access to this maritime common could impact

the security, political stability, and economic prosperity of the United States and its allies in the

region and potentially inhibit U.S. power projection capabilities by restricting the U.S. Navy’s

ability to patrol and operate in the South China Sea and the Malacca Straits. Long-range bombers,

conducting maritime reconnaissance and capable of anti-shipping operations, could actively and

passively maintain situational awareness of the vast Asia-Pacific maritime region and possibly

keep in check any potential adversary looking to threaten the United States and its allies’ access

to the Asia-Pacific’s commons.

Hillary Clinton, “America’s Pacific Century,” Foreign Policy, November 2011, http://www.foreignpolicy.com/

articles/2011/10/11/americas_pacific_century

United States Pacific Command participates in multiple exercises and other engagement activities throughout the

Asia-Pacific region which the bomber force has or could take part in. These bilateral and multilateral exercises include

TALISMAN SABER, a biennial Australia/United States bilateral exercise; COBRA GOLD, a joint/combined exercise

with Thailand; BALIKATAN, a joint exercise with the Republic of the Philippines; KEEN SWORD/KEEN EDGE, a

joint/bilateral exercise with Japan; and, RIM OF THE PACIFIC, a biennial large-scale multinational power projection

and sea control exercise.

Bonnie S. Glaser, Senior Fellow, Center for Strategic and International Studies, “Armed Clash in the South China

Sea: Contingency Planning Memorandum No. 14,” http://www.cfr.org/east-asia/armed-clash-south-china-sea/p27883,

February 14, 2013.

Office of the Secretary of Defense, “Annual Report to Congress-Military Power of the People’s Republic of China

2008,” p 11, http://www.defense.gov/pubs/pdfs/China_Military_Report_08.pdf.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Finally, the legacy bomber force is one option than can produce a quick, military response to

hostile actions taken by potential adversaries in the region. Unconstrained by the need for a

forward operating location within theater, the capability of bombers to reach anywhere in the

Asia-Pacific, in a relatively short period of time and with a wide array of weapons, could provide

national leaders a viable option for responding to encroachments on U.S. interests in the region

and for honoring defense and security commitments to U.S. allies.

Bomber Expectations: Employment in DOD’s Strategic Guidance

Bomber Contribution to Critical Missions

The Administration’s new strategic guidance emphasizes the military’s need to recalibrate its

capabilities and make selective investments to succeed in a number of missions critical to

achieving national security objectives.15 Any argument for or against any level of funding for

bomber modernization could include an assessment and cost/benefit analysis of those upgrades

and their contribution to accomplishing the expected missions of U.S. forces as defined in the

DOD’s strategic guidance, Sustaining U.S. Global Leadership: Priorities for 21st Century

Defense. These missions include the following:16

•

Counter terrorism and irregular warfare;

•

deter and defeat aggression;

•

project power despite anti-access/area denial challenges;

•

counter weapons of mass destruction;

•

operate effectively in cyberspace and space;

•

maintain a safe, secure, and effective nuclear deterrent;

•

provide a stabilizing presence; and,

•

conduct stability and counterinsurgency operations.

Department of Defense, Sustaining U.S. Global Leadership: Priorities for 21st Century Defense, January 2012

(Washington, DC), 4-6.

Ibid.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

All three of the nation’s bombers have made, and are expected to continue making, significant

contributions to all of the critical missions set forth in DOD’s strategic guidance. Looking as far

back as 1962 (coinciding with the last B-52 delivery), numerous examples describe one or more

of the current bombers accomplishing these missions (see Table 1). However, with the rising

prevalence of 21st century A2/AD capabilities in several potential adversary countries, even the

U.S. Air Force assesses that modern threat capabilities are outpacing the 20th century capabilities

and abilities of the B-52, B-1 and, in some circumstances, even the B-2, to accomplish these

missions.17 Without funding for critical modernization and sustainment efforts, all three bombers

run the risk of becoming ineffective in the face of A2/AD equipped adversaries.18

The U.S. Air Force acknowledges in its 2012 Posture Statement that, “as A2/AD capabilities proliferate, our [U.S.

Air Force] fourth-generation fighter and legacy bomber capability to penetrate contested airspace is increasingly

challenged” and “Procuring a new penetrating bomber is critical to maintaining our [U.S. Air Force] long-range strike

capability in the face of evolving A2/AD environments.” Department of the Air Force, United States Air Force Posture

Statement, Washington, DC, 2012, 15-16.

Anti-Access/Area Denial (A2/AD) capabilities are meant to frustrate the U.S.’ ability to project substantial military

capability over considerable strategic and operational distances. A2 capabilities are designed to exclude U.S. forces

from a foreign theater or deny effective use and transit of the global commons such as air, maritime, space and

cyberspace. AD capabilities are designed to complicate U.S. force’s ability to establish a presence and effectively

operate in, over, or in range of an adversary’s territory or interests. Twenty-first century AD capabilities can attack U.S.

vulnerabilities in all five key operating domains—air, sea, land, space, and cyberspace.

Congressional Research Service

Table 1. Historical Examples of Missions Accomplished by Bombers

(1962-Present)

Conflict/Crisis

Bomber

Counter

Terror/Irreg

Warfare

Deter/Defeat

Aggression

Power

Projection

Counter

WMD

Operate in

Cyberspace

Cold War

1947-1991

B-52, B-1

Cuban Missile

Crisis 1962

B-52

Vietnam War

1959-1975

B-52

Desert Storm

1991

B-52

Desert Fox 1998

B-52, B-1

Allied Force 1999

B-52, B-1, B-2

Afghanistan 2001present

B-52, B-1, B-2

Iraq 2003-2011

B-52, B-1, B-2

Nuclear

Deterrent

Stabilizing

Presence

Source: Prepared by CRS based on analysis of the historical use of bombers by the United States Air Force, 1947 to 2013.

CRS-7

Stability/

COIN

Operations

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Forward Deployed Diplomacy: Continuous Bomber Presence and Worldwide

Power Projection

With the conclusion of U.S. military involvement in Iraq and U.S. forces drawing down in

Afghanistan, DOD has announced it intends to shift military capacity from the Middle East to the

Asia-Pacific region as part of the Obama Administration’s rebalancing strategy. On multiple

occasions, Deputy Secretary of Defense Ashton Carter has stated DOD’s intent to begin rotating

B-1 bombers (which have been the only bomber participating in Operation Enduring Freedom

since May 2006) into the Asia-Pacific region to augment B-52s already on continuous rotation

there.19 This continuous rotation—referred to by the DOD as the Continuous Bomber Presence

(CBP)—is based at Andersen Air Force Base, Guam, and represents a major investment in

ensuring U.S. security commitments in the Pacific.

Capable of reaching anywhere in the U.S. Pacific Command’s (USPACOM’s) area of

responsibility with weapons ranging from conventional to nuclear-tipped cruise missiles, the CBP

is one way of reassuring allies of the U.S. commitment to their defense and deterring potential

adversaries in the region, including possibly China. The CBP can potentially send the signal that

no naval vessel can patrol the South China Sea and Pacific without coming under the reach of

land-based bombers. According to former Pacific Air Forces commander General Gary L. North,

“Chinese military writings talk a lot about how to extend their power to the second island chain

… the 1,800 mile [factor], which would enable them to prevent other nations’ ability to have

freedom of movement at that great range.”20 Invoking the lessons learned from the Pacific Theater

of World War II, the CBP, and long-range airpower projection in general, could be seen as an

essential complement in dealing with potential adversary naval forces.

Air Force Global Strike Command recently announced B-2s will begin regular worldwide

training deployments to each of the regional U.S. combatant commands’ areas of responsibility

starting in 2013.21 According to 8th Air Force Commander Major General Stephen Wilson, B-2s

will rotate to forward operating locations all over the world in small numbers for a few weeks at a

time, a set number of times a year beginning with a short Pacific deployment in 2013.22 The plan

calls for B-2 deployments to all the geographic combatant commands including those in Central

and South America, Southwest Asia, and Europe in addition to the Asia-Pacific.23 These

worldwide training deployments are an exercise in power projection and meant to demonstrate

U.S. commitments to allies in multiple regions of the world while providing a visible deterrent to

any potential U.S. adversary.

Military analysts point out that engaging in this type of “forward deployed diplomacy” with the

bomber force has the potential to influence the Asia-Pacific region beyond the near-term concern

Ashton B. Carter, Deputy Secretary of Defense, “The U.S. Strategic Rebalance to Asia: A Defense Perspective”

(speech, The Asia Society, New York, NY, August 1, 2012) and (address, remarks on China’s Military Challenge,

Woodrow Wilson Center, Washington, DC, October 3, 2012).

Statement of General Gary L. North, former Pacific Air Forces Commander, in Rebecca Grant’s, “Bomber

Diplomacy,” Air Force Magazine, December 2011, 31.

Arie Church, “Spirit World Tour, Coming to a Theater Near You.” Air Force Magazine.com, November 9, 2012,

http://www.airforce-magazine.com/Pages/HomePage.aspx.

Ibid.

Congressional Research Service

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

of a rising China. Give the efforts by numerous Asian-Pacific states seeking to increase their

diplomatic, economic, and strategic influence in the region, the potential exists for a number of

regional players to acquire advanced military capabilities that could influence long-term U.S.

interests and/or threaten U.S. access to the region in the future. For example, North Korea’s

continuing efforts to develop an intercontinental ballistic missile capability, along with its nuclear

weapons program, represent a potential direct threat to the United States and threaten to

undermine regional security. South Korea, in an effort to offset its strategic vulnerabilities, has

undergone a vigorous procurement and acquisition of state-of-the-art weaponry and has invested

over $25 billion a year since 2006 on indigenous research and development programs for its local

defense industries.24 Japan, after years of watching its international influence eroded by a slowmotion economic decline, is attempting to raise its relevance in the region by offering military aid

to regional neighbors and by stepping up training and engagement activities by its own armed

forces in an effort to build regional alliances and shore up other countries’ defenses.25 India, who

until the recent global economic downturn possessed the second-fastest-growing economy in the

world, became the largest weapons importer in the world in March 2011. It is anticipated that

India will spend up to $80 billion on military modernization by 2015, and it is considered by

many analysts to be on the verge of attaining military superpower status.26 Indonesia, supported

by its military leadership and a $16.7 billion budget, is moving forward with a three-year plan to

strengthen and modernize its military arsenal to include $2.5 billion for 10 light frigates, $2

billion for four submarines, and $6 billion for the addition of Russian Sukhoi and U.S. F-16

fighters.27 Taiwan, who is falling rapidly behind the unprecedented Chinese military buildup over

the past decade, conducted tests of a new “carrier killer” anti-ship missile in late 2012. Thought to

be an advanced version of the Hsiung Feng III anti-ship missile, such a weapon could pose a

significant challenge to any naval vessel operating in the Taiwan Straits if developed in sufficient

numbers.28 The point being, there is no doubt that with the enormous amount of economic,

military, and political power concentrated in the Asia-Pacific region, the proliferation of A2/AD

weapon systems could impact the future of U.S. influence and capacity in the region, regardless

of who possesses such capabilities.

CBP rotations and regular B-2 deployments stand to play a long-term role in the United States’

ability to influence and project military power in the Asia-Pacific, provided bomber sustainment

and modernization efforts keep pace with current and evolving A2/AD military capabilities that

are becoming prevalent in the region. However, with such emphasis being placed on military

Georgetown Journal of International Affairs, South Korea’s Unsustainable Military Build-Up, January 28, 2013,

http://journal.georgetown.edu/2013/01/28/south-koreas-unsustainable-military-build-up-by-jeong-lee/.

Martin Fackler, Japan Is Flexing Its Military Muscle to Counter a Rising China (The New York Times, November 26,

2012), http://www.nytimes.com/2012/11/27/world/asia/japan-expands-its-regional-military-role.html?pagewanted=all

The Stockholm International Peace Research Institute (SIPRI) reported in March 2011 that India is now the largest

weapons importer in the world, receiving 9% of the volume of international arms transfers during the period 2006 to

2010. Stockholm International Peace Research Institute, India world’s largest arms importer according to new SIPRI

data on international arms transfers, March 14, 2011, http://www.sipri.org/media/pressreleases/2011/armstransfers,

and, Center for Strategic & International Studies, Current Issues No. 24: India’s Defense Spending and Military

Modernization (3/29/2011), http://csis.org/files/publication/110329_DIIG_Current_Issues_24_Indian_Defense_

Spending.pdf.

Michael Johnson, Indonesian Military Plans to Spend $16.7 Billion Through 2015, Asia Pacific Defense Forum,

October 22, 2012, http://apdforum.com/en_GB/article/rmiap/articles/online/features/2012/10/22/indonesia-militaryspends

Harry Kazianis, To Counter China’s Military Build-up, Taiwan Must Go Asymmetric, World Politics Review,

November 29, 2012, http://www.worldpoliticsreview.com/articles/12529/to-counter-chinas-military-build-up-taiwanmust-go-asymmetric.

Congressional Research Service

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

modernization by many of the major states in the region, it is hard to predict what the strategic

and military landscape of the Asia-Pacific will look like in 20 or 30 years. Such a time frame

could potentially see the B-52, B-1, and B-2 still in service; if so, they will be expected to be

effective weapon systems if employed.

Meeting the Anti-Access/Area Denial (A2/AD) Challenge

A major challenge in meeting the goals of the Administration’s new strategy is the rising

prevalence of 21st century anti-access/area denial (A2/AD) threats. Anti-access refers to those

adversary actions and capabilities, usually employed from long ranges, designed to prevent an

opposing force entry to an operational area by restricting its access to the global commons (sea,

air, space, and cyberspace). Area denial refers to those adversary actions and capabilities, usually

of shorter range, designed not to keep an opposing force out, but to limit its freedom of action

within an operational area.29 Although not a new concept, A2/AD is a rising concern due to the

proliferation of technology that places precise, long-range weapons in the hands of potential foes.

Such weapons include ballistic and cruise missiles, integrated air defense systems, anti-ship

missiles, submarines, guided rockets, missiles and artillery, 4th- and 5th-generation combat

aircraft, and space and cyber warfare capabilities. Many of these A2/AD threats are specifically

designed to challenge the U.S. military’s power projection capabilities and potentially threaten

U.S. access to key areas of strategic interest both in the Asia-Pacific and the Middle East.

The U.S. military addresses the A2/AD challenge in its Joint Operational Access Concept

(JOAC). Although not enemy- or region-specific, JOAC describes how joint forces will operate in

response to the emerging A2/AD threat. Its central idea hinges on the joint forces’ ability to

leverage cross-domain synergy—the complementary employment of military capabilities across

the sea, air, land, space, and cyberspace domains that enhances the effectiveness of military

operations and compensates for any known weaknesses in U.S. capabilities.30 The Air Force and

Navy have embraced cross-domain synergy and have codified their approach to the A2/AD

challenge in their Air-Sea Battle Concept (ASBC). ASBC seeks to achieve interoperability

between air and naval forces that can execute networked, integrated attacks, in-depth, to disrupt,

destroy, and defeat an adversary’s A2/AD capabilities.31 ASBC and the idea of cross-domain

synergy as an answer to the A2/AD challenge have very real implications for the modernization

and operational employment of the bomber force; primarily, modernization and sustainment

efforts should equip the bomber force with the capabilities necessary to operate in the extreme-,

high-, and low-risk denied regions of the 21st century A2/AD environment.

Department of Defense, “Joint Operational Access Concept (JOAC),” Version 1.0, November 22, 2011, p. i.

Ibid., p. ii.

General Norton A. Schwartz, USAF and Admiral Jonathan W. Greenert, USN, “Air-Sea Battle: Promoting Stability

in an Era of Uncertainty,” (The American Interest, February 20, 2012), http://www.the-american-interest.com/

article.cfm?piece=1212. Stated another way, ASBC seek to integrate and take advantage of the differing capabilities

afforded by a diverse joint force (air, ground and naval forces), armed with the latest in resilient communications

(networked), in order to target and strike (integrated attack) multiple enemy targets and systems (attack-in-depth) that

will reduce or eliminate an enemy’s A2/AD capability thus enabling the U.S. military to operate freely in what was

previously, a highly defended area.

Congressional Research Service

Figure 1. Joint Operational Access and Air-Sea Battle Concept

Source: Pentagon briefing, Mr. William Dries, Air Force Air-Sea Battle Team, subject: Air-Sea Battle: A Primer (lecture, USAF Fellowship Orientation, Pentagon),

July 31, 2012.

CRS-11

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Bomber Employment in an A2/AD Environment

One of the objectives of an A2/AD adversary is to establish what the military terms extreme-risk

geographic zones in order to deny any advantage to U.S. forces operating in them. In extreme-risk

zones, only the most capable, low-signature (stealthy) forces maintain the ability to survive and

operate effectively using self-defense systems, maneuver and, in some cases, additional support

to do so.32 Due to its stealth and self-defense capabilities, the B-2 is the most capable bomber able

to operate in the extreme-risk zone.

In high-risk zones, the majority of U.S. high-signature (non-stealthy) forces require significant

defense support. For the bombers, this means their defensive countermeasures and maneuvers

will be effective if assisted by mutually supporting forces, but on their own, they may be

operationally ineffective and limited.33 The U.S. bombers most capable of operating in the highrisk zone are the B-2 (because of its stealth and self-defense capabilities) and the B-1 given its

speed, maneuverability, low-altitude flying capability, and electronic self-defense capabilities.

In the low-risk zone—usually found at extended ranges from the adversary’s borders—all U.S.

forces can generally operate freely, although the adversary can potentially still pose a threat. The

B-1 and B-52 are quite capable of operating in low-risk zones and would most likely employ their

arsenal of long-range, standoff cruise missiles (the B-2 does not carry long-range stand-off cruise

missiles). In the overall Air-Sea Battle Concept, higher-signature forces—such as the B-1 and B52—would be teamed with low-signature forces as required—such as the stealthy F-22 fighter—

in order to enhance the effectiveness and compensate for the vulnerabilities of each platform.

Nevertheless, the challenge is that the Air Force’s legacy bombers could have increasing

difficulty operating in A2/AD environments without more modern systems and weapons

capabilities.

Mr. William Dries, Air Force Air-Sea Battle Team, “Air-Sea Battle: A Primer,” (lecture, USAF Fellowship

Orientation, Pentagon), July 31, 2012.

Ibid.

Congressional Research Service

Figure 2. Legacy Bomber Employment in an A2/AD Operating Environment

UNCLASSIFIED // FOUO

UNCLASSIFIED

A2/AD Operating Environment

Networked

SPACE DOMAIN

Integrated

Attack in Depth

Commercial

Communications

Coalition

Command &

Control

Disrupt

Destroy

Defeat

Military / Gov’t

Command & Control

Links

Military / Gov’t

Early Warning

Links

Voice

CYBERSPACE

Voice

Comms

Systems

Adversary Command

& Control

Systems

Command & Control

AIR DOMAIN

Includes Adversary

Anti-Access/Area Denial

Strategies

LAND DOMAIN

MARITIME DOMAIN

Permissive

(Low Risk)

Contested

(High Risk)

UNCLASSIFIED // FOUO

Highly Contested

(Extreme Risk)

Source: Pentagon briefing, Mr. William Dries, Air Force Air-Sea Battle Team, subject: Air-Sea Battle: A Primer (lecture, USAF Fellowship Orientation, Pentagon)

July 31, 2012.

CRS-13

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Nuclear Deterrent Operations

Under DOD’s strategic guidance, maintaining a safe, secure, and effective nuclear deterrent

remains a primary mission for U.S. Armed Forces. Its guidance is coherent with and builds on the

2010 Quadrennial Defense Review (QDR) which states, “Until such time as the Administration’s

goal of a world free of nuclear weapons is achieved, nuclear capabilities will be maintained as a

core mission of the Department of Defense.”34 Relevant to the bomber force, the 2010 Nuclear

Posture Review (NPR) reaffirmed the enduring contributions and viability of the nuclear strike

capabilities of the B-52 and the B-2 in accomplishing the nuclear deterrent mission (the B-1 is no

longer nuclear capable).35

Proponents argue three principal reasons for retaining and modernizing nuclear-capable, or, more

accurately, dual-capable B-52 and B-2 bombers. First, an air-delivered nuclear capability provides

a rapid and direct hedge against technical challenges with the other legs of the nuclear triad as

well as geopolitical uncertainties.36

Second, nuclear-capable bombers are important to extended deterrence of potential attacks on

U.S. allies and partners. Unlike intercontinental ballistic missiles (ICBMs) and submarine

launched ballistic missiles (SLBMs), heavy bombers can be visibly forward deployed, thereby

signaling U.S. resolve and commitment in a crisis.

Finally, not only is the LRS-B not anticipated to start flight testing until the mid-2020s, it is also

yet to be determined if it will initially be nuclear capable once it does. Former Chief of Staff of

the Air Force General Norton Schwartz testified before Congress in November 2011 that the new

LRS-B will be built with nuclear capability but will operate as a conventional strike aircraft

initially. He stressed that although the aircraft will be designed and built with all the hardware for

both nuclear and conventional missions from the outset, “Deferring the new aircraft’s nuclear

certification until the B-52 and B-2 start to retire would help the service manage costs.”37

However, in response to General Schwartz’s testimony, language in the 2013 Defense

Authorization Act (P.L. 112-239) stipulates the next-generation LRS-B will be “capable of

carrying strategic nuclear weapons as of the date on which such aircraft achieves initial operating

capability” and will be “certified to use such weapons by not later than two years after such date.”

If the nation wishes to maintain an air-delivered nuclear capability, as stated in the 2010 QDR and

NPR, it is unclear whether the B-52 and B-2 will be the only air-delivery option in the U.S.

nuclear arsenal until the 2030s or whether the LRS-B can be expected to start filling that role in

the late 2020s.

Department of Defense, Quadrennial Defense Review Report (Washington, DC: February 2010), vi.

Department of Defense, Nuclear Posture Review Report (Washington, DC: April 2010), 24.

The U.S. nuclear triad includes the long-range nuclear-capable bomber force (76, B-52s and 20, B-2s), 450

Minuteman III intercontinental ballistic missiles (ICBM), and 14 Ohio Class submarines capable of launching 24

Trident II submarine launched ballistic missiles (SLBM) each. Unlike ICBMs and submarine—which are designed to

remain hidden from view of an adversary—the bomber fleet offers a visible way of conveying U.S. resolve. For

example, the president could order the nation’s B-52s and B-2s on alert, put them in the air, and/or deploy them to

forward bases thus providing a visible sign of U.S. resolve with the intent of de-escalating tensions. Many analysts

agree that the visible presence of bombers provides the U.S. an effective tool for overtly demonstrating resolve.

David Majumdar, “Schwartz: New Bomber Not Nuke-Capable at First,” Air Force Times Online, November 2, 2011,

http://www.airforcetimes.com/news/2011/11/dn-air-force-new-bomber-nuclear-capable-11-211/.

Congressional Research Service

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

New Strategic Arms Reduction Treaty: Impact on Bombers

In accordance with the New Strategic Arms Reduction Treaty (NST) signed in April 2010, the

United States and Russia plan on reducing and limiting ICBMs and ICBM launchers, SLBMs and

SLBM launchers, heavy bombers, ICBM warheads, SLBM warheads, and heavy bomber nuclear

armaments. Seven years after entry into force of the treaty and thereafter, the aggregate numbers,

as counted in accordance with Article II section one of the treaty, will not exceed 700 for

deployed ICBMs, deployed SLBMs, and deployed heavy bombers. Also, the total numbers will

not exceed 800 for deployed and non-deployed ICBM launchers, deployed and non-deployed

SLBM launchers, and deployed and non-deployed heavy bombers.38 The United States retains the

right to determine for itself the composition and structure of its strategic offensive arms.39

Consequently, the February 2011 entry-into-force of the New START drives the United States to

convert a number of nuclear-capable B-52 bombers to a conventional-only role. Although a final

force structure decision has not been made to reflect the requirements of New START, Air Force

Global Strike Command (AFGSC) recommended a preferred course of action in the FY13

Program Objective Memorandum (POM) and funded through the future years defense program

(FYDP).40 The New START drives no change to the configuration of B-2 force numbers.

In her statement before the Senate Foreign Relations Committee, Ms. Madelyn Creedon,

Assistant Secretary of Defense for Global Strategic Affairs, provided testimony on the need for

bomber sustainment and modernization in the context of implementing the New Start Treaty:

The United States will maintain two nuclear capable B-52H strategic bomber wings and one

B-2A wing. Both bombers, however, are aging and sustainment and modernization funding

will have to be provided to ensure they remain operationally effective through the remainder

of their service lives. Funding has been allocated to upgrade these platforms; for example, to

provide the B-2A with survivable communications, a more modern flight control system, and

a new radar. The B-52 will also need various upgrades including for its bomb bay and

survivable communications. These modernization and sustainment programs are needed to

maintain the effectiveness of the current bomber force until the introduction of a new longrange bomber.41

Existing U.S. Bomber Force

The Air Force’s existing bomber fleet includes 76 B-52H bombers, 63 supersonic B-1B bombers,

and 20 B-2 stealth bombers. Table 2 summarizes the three types of aircraft. Additional

information on the existing bomber force is presented in Appendix A.

For in-depth analysis of the New START Treaty, see CRS Report R41219, The New START Treaty: Central Limits

and Key Provisions, by (name redacted).

Treaty Between the United States of America and the Russian Federation on Measures for the Further Reduction and

Limitation of Strategic Offensive Arms, April 8, 2010.

Air Force Global Strike Command, B-52 Bomber Master Plan, June 2012, p 19.

Testimony of Madelyn Creedon, Assistant Secretary of Defense for Global Strategic Affairs, in Senate, Hearings

before the Senate Foreign Relations Committee, 112th Congress, 2nd Session., June 21, 2012.

Congressional Research Service

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Table 2. Current U.S. Air Force Bomber Force

B-52H

B-1B

B-2

Number in inventory

63a

Number combat ready

First flight

1954

1984

1988

Last delivery

1962

1988

1997

Unrefueled range

8,800

7,455

6,000+

Payload

70,000

75,000

40,000+

Crew

Mach .86

Mach 1.2 (sea level)

High Subsonic

Max speed

Source: Prepared by CRS based on Air Force Almanac, May 2012 and U.S. Air Force B-52, B-1, and B-2 Fact

Sheets.

Three B-1s were retired as requested by the U.S. Air Force in their 2012 budget request and in accordance

with direction put forth in the 2012 National Defense Authorization Act (P.L. 112-81).

B-52H Stratofortress42

Figure 3. B-52H Stratofortress

Source: U.S. Air Force official website, B-52 Stratofortress Factsheet (http://www.af.mil/information/factsheets/).

The B-52 is currently the USAF’s only nuclear bomber capable of employing long-range standoff

weapons. It serves both as a nuclear and conventional bomber. It first entered operational service

on June 29, 1955. The B-52’s original service life expectancy was approximately 5,000 hours or

approximately 20 years depending on severity of the flying environment. Of the 744 various

Information in this section is taken from Air Force Global Strike Command’s, B-52 Bomber Master Plan, June 2012,

Air Force Almanac, May 2012, and U.S. Air Force B-52 Fact Sheet, December 4, 2012, http://www.af.mil/information/

factsheets/factsheet.asp?id=83.

Congressional Research Service

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

model B-52s built, 76 B-52H models remain in service today. The B-52H first entered service on

May 9, 1961, with operational aircraft currently stationed at Barksdale AFB, Louisiana, and

Minot AFB, North Dakota. The B-52’s life expectancy has been extended beyond original

expectations through numerous modernization efforts. It is now projected to be sustainable into

2040 based on projected average flying hours and severity of the flying environment.

The B-52H program’s challenge is to continue sustainment activities and maintain combat

effectiveness against the nation’s adversaries until the platform is retired, and to approach

modernization efforts effectively by recognizing capability gaps, prioritizing valid requirements,

and investing in material solutions that meet platform and war fighter needs. As plans for

sustainment, modernization, and recapitalization move forward, some argue the B-52 enterprise

should be prepared to make required programmatic and operational adjustments in step with

changes in platform mission taskings and operational plans. The B-52’s strengths lie in its diverse

capabilities, precision, large payload, and long range; however, if these capabilities remain static,

mission effectiveness is likely to erode in the face of 21st century A2/AD threats.

Current B-52 Sustainment and Modernization Efforts43

The following is a list of B-52 sustainment and modernization initiatives in the program of record

(POR) that are either just being completed or are currently in progress. Additional information on

each effort, as well as information on short-term and long-term sustainment and modernization

efforts, can be found in the B-52’s Master Plan summarized in Appendix B.

•

Combat network communications technology (CONECT)

•

Military-standard-1760 modernization

•

B-52 trainer upgrades

•

Arms control activities under the New START

•

Mode S/5 identification friend or foe (IFF)

•

Low cost modifications

•

B-52 anti-skid replacement

•

B-52 modernization research development test and evaluation efforts

•

1760 internal weapons bay upgrade (IWBU)

Table 3 is the FY2013 budget submission for B-52 procurement and B-52 research, development,

test, and evaluation programs derived from Air Force budget justification books. It summarizes

prior-year and estimated future-year expenditures for B-52 sustainment and modernization

programs.

Information for current B-52 sustainment and modernization efforts derived from justification books for Air Force

procurement accounts and Air Force research, development test and evaluation accounts for FY2013 and prior years.

Congressional Research Service

Table 3. Current B-52 Sustainment and Modernization Efforts

(in millions of dollars)

Total Cost

All Prior

Yrs

Total

Cost

FY2011

Total Cost

FY2012

Total

Cost

FY2013

Total

Cost

FY2014

Total Cost

FY2015

Total Cost

FY2016

Total

Cost

FY2017

Cost To

Complete

Total

Cost

B-52 CONECT

8.971

6.416

82.531

0.000

17.519

25.604

23.298

2.543

166.882

MIL-STD-1760

0.000

11.541

0.000

3.238

30.983

6.690

0.000

52.452

B-52 Trainers

0.000

2.180

1.656

1.482

1.836

2.375

2.431

2.472

0.000

14.432

B-52 Structures

0.000

0.100

0.000

0.100

System Effectiveness

and Evolutionary

Requirements

0.000

0.100

0.000

0.100

Arms Control

Activities

0.000

0.500

0.203

0.102

0.203

0.000

1.008

Mode S/5 IFF

0.000

8.725

0.000

9.590

12.357

2.557

0.000

33.229

Low Cost Mods

1.646

0.821

0.785

0.435

0.019

0.604

0.453

0.460

0.000

5.223

B-52 Anti-Skid

Replacement

0.000

4.626

6.737

6.011

0.915

0.930

0.000

19.219

Total Cost

FY2011

Total Cost

FY2012

Total Cost Total Cost

FY2013

FY2014

Total Cost

FY2015

Total Cost

FY2016

Total Cost

FY2017

Cost To

Complete

Total

Cost

129.864

93.808

Continuing

Procurement Items

RDT&E Items

Misc. B-52

Modernization

RDT&E Efforts

0.065

1760 Internal Wpns

Bay Upgrade

16.490

Mode S/5 IFF

1.202

B-52 CONECT

34.700

B-52 Anti-Skid

0.751

11.373

29.800

5.653

3.901

Source: Prepared by CRS based on justification books for Air Force procurement accounts and Air Force research, development, test, and evaluation accounts for

FY2013 and prior years.

CRS-18

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

B-1B Lancer44

Figure 4. B-1B Lancer

Source: U.S. Air Force official website, B-1B Lancer Factsheet (http://www.af.mil/information/factsheets/).

The B-1B Lancer was developed by Rockwell International, now Boeing Defense and Space

Group, and became operational in 1986. The B-1B was originally designed to serve as a lowaltitude Cold War supersonic bomber. Its low radar cross-section, variable-geometry wings,

avionics, and afterburning engines made it less vulnerable than the B-52 to enemy surface-to-air

missiles and fighter aircraft. However, following the end of the Cold War, the Air Force ended the

B-1’s nuclear mission in 1992 and began the aircraft’s transition to conventional-only weapons

capability. The Conventional Mission Upgrade Program (CMUP) transformed the B-1B into a

conventional-only bomber capable of employing the latest in conventional weapons to include

Global Positioning System (GPS)-guided Joint Directed Attack Munitions (JDAM) and longrange standoff Joint Air-to-Surface Stand-off Missiles (JASSM). The B-1B has the largest internal

payload of any current bomber. However, many of the systems on the B-1 are original equipment

and suffer from diminishing manufacturing sources and material shortfalls that impact reliability,

availability, and maintainability.

One hundred B-1Bs were initially built, of which 63 remain in service. The fleet operates from

Dyess AFB, Texas (35 aircraft), and Ellsworth AFB, South Dakota (28 aircraft). It possesses

diverse capabilities: large precision payload, range, speed, and endurance; however, if these

capabilities remain static, mission effectiveness may erode in the face of 21st century A2/AD

threats. The B-1B is expected to be in service until 2040.

Information in this section taken from Air Combat Command’s, B-1 Strategic Action and Investment Plan (SAIP),

May 10, 2012; CRS Report RL34406, Air Force Next-Generation Bomber: Background and Issues for Congress, by

(name redacted); Air Force Almanac, May 2012; and U.S. Air Force B-1 Fact Sheet, May 21, 2012, http://www.af.mil/

information/factsheets/factsheet.asp?fsID=81.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Current B-1 Sustainment and Modernization Efforts45

The following is a list of B-1 sustainment and modernization initiatives currently in the program

of record (POR) that are either just completing or are currently in progress. Additional

information on each effort, as well as information on short-term and long-term sustainment and

modernization efforts, can be found in the B-1’s Strategic Action and Investment Plan (SAIP)

summarized in Appendix C.

•

Fully integrated data link

•

Simulator digital control loading

•

Central integrated test system

•

Inertial navigation system replacement

•

Radar improvement upgrade

•

Visual situation display upgrade

•

Self-contained attitude indicator

•

Gyro stabilization system replacement (GSSR)

•

B-1 training support

•

Digital communications

•

B-1 Link 16 cryptographic materials

•

Laptop controlled targeting pod

•

Low cost mods

•

Miscellaneous B-1 modernization research, development, test, and evaluation

efforts

Table 4 is the FY2013 budget submission for B-1 procurement and B-1 research, development,

test ,and evaluation programs derived from Air Force budget justification books. It summarizes

prior-year and estimated future-year expenditures for B-1 sustainment and modernization

programs.

Information for current B-1B sustainment and modernization efforts derived from justification books for Air Force

procurement accounts and Air Force research, development, test, and evaluation accounts for FY2013 and prior years.

Congressional Research Service

Table 4. Current B-1 Sustainment and Modernization Efforts

(in millions of dollars)

Total Cost

FY2011

Total Cost

FY2012

Total Cost

FY2013

Total Cost

FY2014

Total Cost

FY2015

Total Cost

FY2016

Total Cost

FY2017

Cost To

Complete

Total

Cost

Fully Integrated Data Link

52.956

58.874

57.073

48.234

37.241

50.017

51.539

97.943

453.877

Simulator Digital

Control Loading

0.000

2.700

2.800

2.937

0.000

8.437

CITS Upgrade

20.933

15.683

17.549

17.834

13.895

16.914

17.054

50.052

169.914

Inertial Navigation System

17.000

35.999

21.447

19.192

2.231

0.000

95.869

Radar Improvement Upgrade

59.126

44.302

10.512

1.692

2.586

0.242

0.000

175.091

Vertical Situation Displays

27.086

33.872

34.429

36.322

29.932

41.621

42.406

107.234

352.902

Self-Contained

Attitude Indicator

0.000

1.700

2.025

1.835

1.730

1.367

8.657

Gyro Stabilization System

8.735

4.476

4.526

4.153

0.000

64.721

B-1 Training Supt

0.394

0.301

0.269

0.333

0.431

0.442

0.450

0.000

3.005

Digital Comms

5.257

1.600

0.000

34.348

B-1 Link 16 Crypto

0.000

0.221

0.325

0.089

0.000

0.635

Laptop Controlled

Targeting Pod

4.882

1.000

0.000

67.658

Low Cost Mods

1.114

1.900

1.251

0.000

4.277

Total Cost

FY2011

Total Cost

FY2012

Total Cost

FY2013

Total Cost

FY2014

Total Cost

FY2015

Total Cost

FY2016

Total Cost

FY2017

Cost To

Complete

Total

Cost

33.063

33.011

16.265

19.589

11.453

0.087

Continuing

Procurement Items

RDT&E Items

Misc. B-1 Modernization

RDT&E Efforts

Source: Prepared by CRS based on justification books for Air Force procurement accounts and Air Force research, development test and evaluation accounts for

FY2013 and prior years.

CRS-21

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

B-2A Spirit46

Figure 5. B-2A Spirit

Source: U.S. Air Force official website, B-2 Spirit Factsheet (http://www.af.mil/information/factsheets/).

The B-2A is the only long-range, penetrating low observable (LO) bomber operated by the U.S.

Air Force. It serves as both a conventional and nuclear bomber. The aircraft entered service in

December 1993 and is based solely at Whiteman AFB, Missouri. It achieved initial operational

capability (IOC) in April 1997 and achieved full operational capability (FOC) on December 17,

2003. A total procurement of 132 B-2s was envisioned. However, following the Cold War, the

number was reduced to 75, and then to 20. Congress added one more by providing funding to

convert one of the test vehicles into a combat aircraft, for a total of 21, but a B-2 was lost in a

crash during takeoff at Andersen AFB, Guam, in February 2008, reducing the total number to 20.

Its payload weight is more limited than those of the B-1 or B-52. Originally fielded in Block 10

configuration, the current fleet is Block 30.47 Each block upgrade improved stealth characteristics,

expanded weapons employment options, and improved offensive and defensive avionics. Its

preeminent capabilities are precision, range, and stealth.

The B-2 currently experiences parts obsolescence and diminishing manufacturing sources. The B2 is also impacted by aging support and test equipment. For the first time since the B-2 aircraft

became fully operational capable, the weapon system’s survivability is in question in the face of

advancing 21st century A2/AD threats. The B-2A’s projected service-life goal is 2058.

Current B-2 Sustainment and Modernization Efforts48

The following is a list of B-2 sustainment and modernization initiatives currently in the program

of record (POR) that are either just completing or are currently in progress. Additional

Information in this section taken from Air Force Global Strike Command’s, B-2 Bomber Master Plan, June 2012, Air

Force Almanac, May 2012, and U.S. Air Force B-2 Fact Sheet, April 23, 2010, http://www.af.mil/information/

factsheets/factsheet.asp?fsID=82.

Block refers to essential upgrades to the same model aircraft. Throughout the life of an aircraft, advances in

technology create opportunities to upgrade aircraft beyond their original design. This is referred to as a Block upgrade.

Information for current B-1B sustainment and modernization efforts derived from justification books for Air Force

procurement accounts and Air Force research, development test and evaluation accounts for FY2013 and prior years.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

information on each effort, as well as information on short-term and long-term sustainment and

modernization efforts, can be found in the B-2’s Master Plan summarized in Appendix D.

•

Extremely high frequency satellite communications (EHF SATCOM) and

computer upgrade program

•

Massive ordnance penetrator integration

•

Low observable signature and supportability modifications (LOSSM) diagnostics

•

B-2 trainer system upgrade

•

Link-16/center instrument display/in-flight re-planner (CID/IFR)

•

Radar modernization program (RMP)

•

Low observable signature and supportability modifications (LOSSM) program

structures/materials

•

Defensive management system modernization (DMS-M)

•

Stores management operational flight program (SMOFP) re-host and mixed

carriage modification

•

Common very-low frequency receiver (CVR Increment 1)

•

Low-cost engine modifications

•

Low-cost modifications

•

B-2 modernization research, development, test, and evaluation efforts

•

Baseline B-2 support

Table 5 is the FY2013 budget submission for B-2 procurement and B-2 research, development,

test, and evaluation programs derived from Air Force budget justification books. It summarizes

prior-year and estimated future-year expenditures for B-2 sustainment and modernization

programs.

Congressional Research Service

Table 5. Current B-2 Sustainment and Modernization Efforts

(in millions of dollars)

Procurement Items

Total Cost

All Prior Yrs

Total Cost Total Cost

FY2011

FY2012

Total Cost

FY2013

Total Cost

FY2014

Total Cost

FY2015

EHF SATCOM and Computers

705.523

27.033

29.501

65.037

7.469

8.373

Massive Ordnance Penetrator

Integration

14.887

7.453

0.000

7.000

0.000

LOSSM-Diagnostics

0.000

2.044

B-2 Trainer System Upgrade

32.331

0.000

Link 16/CID/IFR

92.446

0.000

Radar System Modification

530.378

LOS and Support Modifications

Total Cost

FY2016

Total Cost

FY2017

Cost To

Complete

Total Cost

0.000

110.380

0.000

29.340

0.741

2.405

2.638

2.131

0.000

9.959

4.038

5.006

6.477

6.630

7.776

0.000

62.258

0.000

0.140

0.100

0.060

0.000

92.746

8.315

1.210

0.000

539.903

30.135

16.120

0.000

46.255

Defensive Management System

0.000

310.933

LOSSM Structures

0.000

3.304

2.895

4.089

4.659

4.740

4.901

0.000

21.588

LOSSM Materials

0.000

0.516

0.901

1.230

1.430

1.920

0.000

5.997

SMOFP Rehost

0.000

12.100

8.900

0.000

21.000

Common Very Low Frequency

Terminal

0.000

59.170

12.709

71.879

Low Cost Engine Modifications

6.082

0.599

0.000

0.383

1.631

1.650

1.690

1.718

0.000

13.753

Low Cost Modifications

14.151

1.999

0.000

0.383

2.585

2.615

2.681

2.723

0.000

27.137

Total Cost

FY2017

Cost To

Complete

Total Cost

B-52 Research, Development, Test & Evaluation: Operational Systems Development

RDT&E Items

B-2 Modernization RDT&E

Total Cost

FY2011

Total Cost

FY2012

Total Cost

FY2013

Total Cost

FY2014

Total Cost

FY2015

Total Cost

FY2016

244.732

27.135

21.759

101.808

101.493

34.544

19.001

Continuing

Baseline Support

0.000

9.523

7.875

14.336

16.012

14.032

14.218

Continuing

EHF SATCOM and Computer

0.000

202.534

6.336

0.000

Continuing

Defensive Management System

0.000

41.127

0.000

Continuing

Source: Prepared by CRS based on justification books for Air Force procurement accounts and Air Force research, development, test, and evaluation accounts for

FY2013 and prior years.

CRS-24

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Issues for Congress

Potential for Inducing a Shortfall in Long-Range

Strike Capabilities

As the bomber force continues to age and shrink, and development of the LRS-B continues, a

potential oversight issue for Congress is whether failure to sustain and modernize the Air Force’s

legacy bomber fleet will induce a shortfall in the nation’s long-range strike capabilities.

Consistent with prior administrations, the Obama Administration’s strategic guidance requires a

long-range, deep strike capability that is effective in the face of A2/AD threats and is not

constrained by the lack of overseas basing. In addition, under the New START treaty, nuclearcapable heavy bombers could continue to make up one-third of the U.S. nuclear triad along with

ICBMs and SLBMs.49 With only 20 B-2s, the recent retirement of three B-1s, and the conversion

of a yet-to-be-determined number of B-52s to conventional-only roles, the potential exists for the

total number of bombers to fall below the level necessary to fulfill long-range strike

requirements. Currently, the DOD and the Air Force plan on a bomber force of approximately 156

aircraft out to at least 2022 (see Table 6, below). However, with $487 billion of defense cuts over

the next 10 years as a result of the Budget Control Act of 2011, the potential for additional budget

constraints, and changing defense strategies, these numbers are subject to change. Furthermore,

the potential for shortfall in long-range strike capabilities does not simply lie in the sheer number

of legacy bombers in service.

The more pressing oversight issue is the “capability” of the legacy bomber force. That is, can the

legacy bomber force meet the national security challenges posed by the growing number of

potential A2/AD-equipped adversaries? The ability of the current bomber force to bridge a

potential long-range strike capabilities gap may depend upon the feasibility and cost effectiveness

of sustainment and modernization programs that will make these weapon systems viable in the

21st century A2/AD environment while extending their service lives until the LRS-B becomes

operational in the late 2020s.

Many analysts argue that the Navy’s nuclear-powered aircraft carrier is another, highly flexible

alternative to the bomber and is capable of filling the nation’s long-range strike needs. Indeed, the

aircraft carrier’s ability to dominate the seas and launch its aircraft without the need for a forward

airbase is without question a valuable strategic asset. However, the relatively limited amount of

fuel carried by naval fighters limits their ability to penetrate deeply into enemy territory without

assistance from Air Force tankers.50 Without tanker support, the strategic reach of naval fighters is

limited to the coastal areas of any potential adversary. Furthermore, compared to a bomber, the

weapons load out capability of carrier-based aircraft is limited thus potentially requiring multiple

Department of Defense, Nuclear Posture Review Report, April 2010, p 19.

A good example of the challenges faced by carrier aviation is carrier operations during the early stages of Operations

Enduring Freedom (OEF) in 2001. Aircraft carriers operating out of the Gulf of Oman and Arabian Sea supplied most

of the fighter sorties performing close air support and strike missions as well as supporting airlift and bomber missions

during the first few months of the Afghanistan campaign. However, the “short legs” of the naval fighters limited how

far north into Afghanistan they could fly. Those naval fighters that did make it further north relied on Air Force tankers

(as did many of the other platforms operating in Afghanistan) for multiple refueling and arrived at their tasking with

very limited time-on-station and ordinance.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

aircraft in order to service a single target. Finally, there is also a potential concern over the

carrier’s survivability and ability to operate in an A2/AD environment. The primary goal of an

adversary employing an anti-access strategy is to deny an outside country the ability to project

power into a region. One way of doing this is with anti-ship weapons. Weapons systems such as

submarines, China’s version of the SS-N-22, SS-N-27, and DF-21D, and Iranian small-boat

swarm tactics are all potential threats that could push a carrier task force even further out to sea,

thus potentially increasing the range at which naval aviation must travel. Although most analysts

will agree the aircraft carrier is an essential element in U.S. long-range strike capabilities, carrier

aviation may be seen as complementary to and not taking the place of the much more powerful

and flexible long-range bomber. While both capabilities are long-range, they are not necessarily

fungible in their military utility.

Table 6. DOD Aviation Long Range Strike Aircraft Inventory

(Includes B-52H, B-1B, and B-2)

(FY2013-FY2022)

Inventory

FY12

FY13

FY15

FY16

FY17

FY18

FY19

FY20

FY21

FY22

Long Range

Strike

159

158

157

156

155

154

Source: Department of Defense, Annual Aviation Inventory and Funding Plan: Fiscal Years (FY) 2013-2042,

March 2012, p. 8.

Will Current Air Force Bomber Sustainment and Modernization

Plans Get Us to the LRS-B?

Another possible oversight issue for Congress will be the feasibility and affordability of Air Force

bomber sustainment and modernization programs and whether those programs bridge any

potential capabilities gap until the LRS-B becomes operational. Congress requested such

oversight information in the FY2011 National Defense Authorization Act (P.L. 111-383),

specifically requesting a report discussing “the cost, schedule, and performance of all planned

efforts to modernize and keep viable the existing B-1, B-2, and B-52 bomber fleets and a

discussion of the forecasted service-life and all sustainment challenges that the Secretary of the

Air Force may confront in keeping those platforms viable until the anticipated retirement of such

aircraft.” This report was submitted to Congress in September 2011. The information in this

report is also contained in Air Force Global Strike Command’s (AFGSC’s) and Air Combat

Command’s (ACC’s) master plan documents for the B-52 and B-2 (AFGSC) and the B-1 (ACC).

Updated on an annual basis, these master plans outline each command’s plans, programs,

requirements, and strategic vision for each platform to meet national security objectives. The

plans also identify timeframes, outline capability needs, and describe the force and technologies

needed for continued system effectiveness and viability while providing guidance on long-range

sustainment, modernization, and recapitalization needs.

The 2012 updates to these plans take into consideration President Obama’s Asia-Pacific rebalance

and DOD strategic direction. Primarily, the plans state that without sufficient sustainment and

modernization funding, each weapon system’s survivability is at risk in the face of 21st century

A2/AD threats. Appendices B thru D provide summaries of each bomber’s sustainment and

modernization master plans.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

To Fund or Not to Fund: What Are DOD and Air Force Priorities?

The DOD is challenged with reducing defense spending by $487 billion over the next 10 years,

notwithstanding the possibility of further cuts through possible sequestration. At the same time,

the DOD’s priorities require continued modernization of aging capabilities to address the

proliferation of modern A2/AD threats in that the DOD and Air Force plan on the B-52, B-,1 and

B-2 to operate well into the 2030s, especially in the global strike and nuclear deterrent roles.51

According to DOD’s Annual Aviation Inventory and Funding Plan for FY2013-FY2042:

The enduring need for long-range attack capabilities will be met by a combination of current

and future aircraft and weapons systems. The current fleet of Air Force bombers continues to

be modernized so that it can retain long range strike capabilities through the 2030s.52

The FY12 PB (Presidential Budget) initiated development of the Long-Range Strike-Bomber

(LRS-B), a key component of the LRS Family of Systems.... The current goal is to achieve

an initial capability in the mid-2020s, and to hold down the unit cost to ensure sufficient

production (80 to 100 aircraft) and a sustainable bomber inventory over the long term.

Meanwhile, the Department will invest in upgrades to the B-2 bomber to enhance its

effectiveness and survivability as well as modernize the B-52 fleet with new visual displays

and increased weapons storage capacity. The Air Force also continues to modernize the B-1

and address sustainability issues to ensure the overall health and continued viability of the B1 fleet.53

Department of Defense, Sustaining U.S. Global Leadership: Priorities for 21st Century Defense, January 2012

(Washington, DC).

Department of Defense, Annual Aviation Inventory and Funding Plan: Fiscal Years (FY) 2013-2042, p. 8.

Ibid. (pdf page 21).

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Figure 6. DOD Planned Long Range Strike Inventories and Funding

(Includes B-52H, B-1B and B-2)

(FY2013-FY2022)

Source: Department of Defense, Annual Aviation Inventory and Funding Plan: Fiscal Years (FY) 2013–2042,

March 2012, p. 21.

The Air Force’s 2012 Posture Statement presented to the House Armed Services Committee

suggests funding legacy bomber modernization is a priority given the rise of A2/AD threats.

The Air Force’s ability to conduct global strike—to hold any target on the globe at risk—will

be of growing importance in the coming decade. Our conventional strike forces [bombers]

compose a significant portion of the Nation’s deterrent capability, providing national leaders

with a range of crisis response and escalation control options. Our [U.S. Air Force] nuclear

deterrent forces provide two-thirds of the Nation’s nuclear triad competently forming the

foundation of global stability and underwriting our national security and that of our allies.

However, increasingly sophisticated air defenses and long-range missile threats require a

focused modernization effort exemplified by the long-range strike family of systems.54

The posture statement goes on to emphasize that, within the Air Force core functions of Global

Precision Attack and Nuclear Deterrence Operations:

We [the U.S. Air Force] are modernizing conventional bombers to sustain capability while

investing in the Long-Range Strike Family of systems. The bomber fleet was retained at its

current size because we recognized the importance of long range strike in the current and

Department of the U.S. Air Force, Fiscal Year 2013 Air Force Posture Statement, Presentation to the Committee on

Armed Services United States House of Representatives, February 28, 2012. pp. 4, 5.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

future security environments. The Air Force is enhancing long range strike capabilities by

upgrading the B-2 fleet with an improved Defensive Management System (DMS) and a new

survivable communications system, and is increasing conventional precision guided weapon

capacity within the B-52 fleet. We are investing $191.4 million in modernizing the B-1 to

prevent obsolescence and diminishing manufacturing sources issues and to help sustain the

B-1 to its approximate 2040 service life.55

According to the U.S. Air Force’s FY2013 Budget Overview:

The Air Force will continue bomber modernization and sustainment efforts, to include the B2 Defensive Management systems program, the B-2 Very Low Frequency/Low Frequency

communications program, and the B-52 1760 Internal Weapons Bay Upgrades.56

With the February 2011 entry-into-force of the New Strategic Arms Reduction Treaty ... the

FY 2013 Budget Request funds compliance activity and force reduction options to meet the

central limits of the treaty. These include ... the conversion of some B-52Hs from nuclearcapable to conventional-only capability.57

In addition to the development of LRS-B (Long-Range Strike-Bomber), the Air Force will

continue to modernize the B-1B to ensure the fleet remains viable until recapitalization can

be accomplished. The FY2013 Budget Request includes the continuation of the B-1

Integrated Battle Station contract which concurrently procures and installs Vertical situation

display Upgrade (VSDU), Central Integrated Test System (CITS), and Fully Integrated Data

Link (FIDL). VSDU and CITS each address obsolescence and diminishing manufacturing

sources for the B-1 fleet. FIDL provides both the electronic backbone for VSDU and CITS,

as well as a capability enhancement of line-of-sight/beyond line-of-sight Link 16

communications. In addition, the FY2013 Budget Request includes upgrades to flight and

maintenance training devices to ensure continued sustainability and common configuration

with the aircraft fleet. These initiatives will help bridge the gap until the next generation

long-range strike aircraft is operational.58

As Legacy Bombers Phase Out, Are 80-100 LRS-Bs Sufficient?

As the legacy bomber force begins phasing out of service (planned for some time in the mid2020s thru the 2040s), Congress may want to reevaluate Air Force acquisition plans for the LRSB to ensure a sufficient backfill of U.S. long-range strike capabilities that meet the requirements

of national security objectives. The Air Force and Congress may consider how to balance

modernization and sustainment efforts for all three legacy bombers with their gradual phase-out

while ensuring a sufficient number of LRS-Bs are produced to minimize the effects of any

potential long-range strike capability gap during the transition.

Directly tied to this phase-out/phase-in process will be a final determination by Congress as to the

final number of LRS-Bs ultimately produced. Current Air Force plans call for 80-100 LRS-Bs.

However, since the 1970s, the number of new combat aircraft actually produced in a given

program has rarely come close to the number of aircraft originally planned. In the original 1969

Ibid., p. 16.

Department of the U.S. Air Force, Fiscal Year 2013 Budget Overview, prepared by the Secretary of the Air Force

Office of Financial Management and Budget, February 3, 2012, p. 35.

Ibid., p 36.

Ibid., p 50.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

stated requirement, the Air Force planned a production run of 250 B-1A bombers as a

replacement for the “then aging” B-52. However, the program was canceled by President Jimmy

Carter in 1977; political support for the B-1A waned due to reduced military spending following

the Vietnam War and problems within the B-1A program itself. After being revived by President

Reagan in 1981, the eventual 100 B-1Bs that were built were the result of an Air Force proposal

that split the original 250 B-1As envisioned between 100 B-1Bs and 132 B-2 stealth bombers.

Thus, the original 1981 B-2 contract proposed to acquire as many as 132 B-2s. That number was

subsequently trimmed to 75 after the end of the Cold War and ultimately only 21 B-2s were built

after the program was cancelled in 1991. In fighter aircraft, the Air Force originally sought to

acquire 381 F-22 Advanced Tactical Fighters in 2006. However, the resulting high cost of the

aircraft ($150 million in FY2009 dollars), a U.S. ban on exports, and the ongoing development of

the potentially cheaper and more versatile F-35 resulted in only 195 aircraft built (8 test aircraft

and 187 combat aircraft). Currently, the Air Force plans on acquiring 1,763 of the new F-35

Lightning II Joint Strike Fighter. It is yet to be determined if that number will withstand the

effects of reductions in defense spending.

Acquisition of anything less than the planned 80-100 LRS-Bs can be expected to drive

corresponding modernization and sustainment decisions for the legacy bomber fleet, resulting in

further life-extension programs and possibly impacting U.S. long-range strike capabilities,

especially in the face of A2/AD equipped adversaries.

If Legacy Bombers are Modernized, Can the Air Force Further

Delay Development of the LRS-B?

Another oversight issue for Congress will be whether development of the LRS-B can be further

delayed given sufficient levels of funding for legacy bomber sustainment and modernization.

Assuming the Air Force makes an effort to keep the B-52 and B-1 operational through 2040 and

the B-2 through 2058, it is fair to ask whether the Air Force can further delay development of the

LRS-B. All three of the legacy bombers receive meticulous care, with every aspect of their

existence recorded and tracked to ensure long-term health and safety of flight. Based on this

meticulous care, as well as ongoing structural fatigue testing and computer modeling, the Air

Force insists all three bombers will meet their extended service life goals.59 However, whether the

Air Force can further delay development of the LRS-B is not simply a matter of the legacy

bombers’ air worthiness. With enough funding and continued life extension programs, all three

bombers could theoretically fly beyond the Air Force’s target dates. Analysts suggest that the real

determinant of whether the development of the LRS-B can be further delayed is the legacy

bombers’ anticipated combat capability over the next 10 to 25 years of operations.

As potential adversaries acquire better and advanced A2/AD defenses, the legacy bombers’ ability

to get close enough to targets to employ weapons will likely continue to deteriorate. Already,

against today’s toughest air defenses, the B-52 and B-1 are largely relegated to standoff roles;

only the B-2 is expected to get through. In the years to come, the Air Force anticipates the B-2’s

ability to penetrate will also decline, even though the Air Force plans to upgrade all three

bombers with new systems and weapons. According to Air Force Lieutenant General Christopher

D. Miller, deputy chief of staff for strategic plans and programs, the current fleet is “increasingly

at risk to modernizing air defenses. We need to start now to replace the aging B-52, and B-1

John A. Tirpak, “Time to Get Started,” Air Force Magazine, February 2012, 31.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

bomber inventories.”60 When asked whether the steady advance in A2/AD capabilities around the

world means the Air Force must have the LRS-B ready for service by a specific deadline,

Lieutenant General Miller stated, “I think that decision has been given to us ... Now is the time to

get started.”61 As declining defense budgets are anticipated for the foreseeable future, Congress

will have to remain cognizant of the actual capabilities realized by funding specific legacy

bomber sustainment and modernization efforts with the Air Force’s stated requirement to fund

and begin LRS-B development now.

Modernization of Bomber-Launched Weapons

Another oversight issue for Congress is the modernization, sustainment, and development of the

weapons employed by the legacy bombers—weapons that directly impact their ability to operate

in the A2/AD threat environment. As the non-stealthy B-52 and B-1 are likely to operate in the

permissive (low-threat) and contested (high-risk) A2/AD employment zones, both platforms will

increasingly depend on long-range standoff weapons in order to survive and be effective.

Specifically for the B-52, Congress may consider continued appropriations for the conventional

and nuclear capable AGM-86B/C Air Launched Cruise Missile (ALCM) service life extension

program (SLEP) and development of a new Advanced Cruise Missile. In her statement before the

Senate Foreign Relations Committee in June 2012, Madelyn Creedon, Assistant Secretary of

Defense for Global Strategic Affairs, testified,

Because the growth of modern air defenses is putting even the bomber stand-off missions

increasingly at risk, DoD is carrying out an analysis of alternatives (AOA), for a follow-on

Air Launched Cruise Missile (ALCM). The final report for the AOA for the new system, the

Long-Range Standoff (LRSO) missile, is due in late 2012. The existing ALCM weapon

system will be sustained until the LRSO can be fielded during the 2020s.62

The AGM-86B/C ALCM started its second SLEP in FY2012 that is intended to extend its service

life to 2030. An initial SLEP will be finalized in FY2013 and includes a service life extension of

the W80 nuclear warhead.63 A total of 129 missiles are currently funded for modification with a

number being converted into conventional missiles. Congress and the Air Force have also

dedicated $887.6 million from FY2011 to FY2016 to the development of a new Advanced Cruise

Missile that will ultimately replace the AGM-86 family of ALCMs. In FY2012, Air Force

research and development funds were transferred from the AGM-86 to “Nuclear Modernization”

to identify viable concepts and solutions to replace the AGM-86.64

For both the B-52 and the B-1, the acquisition, test and evaluation, and fielding of the Miniature

Air Launched Decoy (MALD) and MALD-J (jammer) would enhance the ability of these aircraft

Ibid.,

Ibid., 35.

Testimony of Ms. Madelyn Creedon, Assistant Secretary of Defense for Global Strategic Affairs, in Senate, Hearings

before the Senate Foreign Relations Committee, 112th Congress, 2nd Session, June 21, 2012.

The W80 is a small thermonuclear warhead with a variable yield of between 5 and 150 kiloton of TNT. It was

designed for deployment on cruise missiles and is the warhead used in the majority of nuclear-armed USAF ALCMs.

The Center for Arms Control and Non-Proliferation, Air Launched Cruise Missile Fact Sheet,

http://armscontrolcenter.org/assets/pdfs/ALCMFactSheet.pdf and United States Air Force, Department of Defense

FY2012 President’s Budget Submission, Missile Procurement, http://www.saffm.hq.af.mil/budget/.

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to operate in contested (high-risk) and highly contested (extreme-risk) A2/AD employment zones.

MALD and MALD-J are designed to present a realistic decoy representing penetrating fighter,

attack, and bomber aircraft to enemy integrated air defense systems (IADS). MALD-J

incorporates a jammer while retaining the decoy capabilities. The B-52 is the initial

demonstration platform for this program and is currently undergoing initial operational test and

evaluation with initial operational capability scheduled for early 2013. The B-1 community is

exploring further integration of MALD and MALD-J on the B-1.

For all three legacy bombers, continued acquisition of the AGM-158A Joint Air-Surface Standoff

Missile (JASSM) and the AGM-158B JASSM-ER (extended range) and the development of the

Long-Range Anti-Ship Missile (LRASM) is considered by some analysts essential to their

effectiveness in future A2/AD environments. The JASSM provides a long-range, conventional

air-to-surface, autonomous, precision guided, standoff cruise missile able to attack a variety of

fixed or re-locatable targets. The Air Force plans on procuring 4,900 missiles (2,400 baseline

versions and 2,500 ER) with an estimated program cost of $6.1 billion beyond FY2017.65 In

addition to the JASSM, the Defense Advanced Research Projects Agency (DARPA), in

partnership with Lockheed Martin, is developing the LRASM. It stems from a 2008 urgent

operational needs statement from the U.S. Pacific Fleet requesting weapons technology to defeat

heavily defended ship targets. LRASM includes a datalink to provide updates as the missile

approaches the target area and an anti-radiation homing capability to detect and identify

emissions from threats to help guide the missile to the target. This long-range, anti-ship capability

dovetails with the U.S. rebalance to the Asia-Pacific region and may prove invaluable in any

maritime conflict as potential adversaries continue to equip their naval vessels with highly

advanced weapon systems. LRASM is based on the AGM-158B JASSM and has an unclassified

range of 500 nautical miles. Lockheed Martin and the Air Force are planning to test-fire three

LRASM missiles in 2013 from the B-1B.66

Potential Implications of Bomber Modernization on Air Force

Basing and any Future Base Realignment and Closures (BRAC)

Another potential oversight issue is the potential implications of reduced bomber sustainment and

modernization, and subsequent diminishing numbers of airframes, on any future rounds of base

realignment and closure (BRAC) efforts. Although the DOD included two rounds of BRAC in its

2013 budget proposal, Congress did not authorize any closures or realignments. However, as the

DOD continues to look for ways to divest itself of assets in an effort to meet budgetary

challenges, BRAC continues to be a subject of speculation, possibly as early as 2015.67

The legacy bomber force is not getting bigger. The original 744 B-52s built were stationed at

approximately 21 bases across the United States during the height of the Cold War. There are now

76 B-52Hs in service stationed at two bases, Barksdale AFB, Louisiana, and Minot AFB, North

United States Air Force, Department of Defense FY2013 President’s Budget Submission, Missile Procurement,

http://www.saffm.hq.af.mil/shared/media/document/AFD-120207-052.pdf, p 49.

Grace Jean, Long-Range Anti-Ship Missile Poised for Air Launch Tests, Possible Ship Integration (Defense &

Security Intelligence & Analysis: HIS Jane’s, September 20, 2012), http://www.janes.com/products/janes/defencesecurity-report.aspx?id=1065971576.

Henry Cuningham, New BRAC Round Looming (Fayetteville (N.C.) Observer, December 23, 2012),

http://www.military.com/daily-news/2012/12/23/new-brac-round-looming.html

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Dakota. The original 100 B-1s built in the 1980s were stationed at six bases from 1986 until

2001. Now, there are 63 B-1s stationed at two bases, Dyess AFB, Texas, and Ellsworth AFB,

South Dakota. All four of these bases have excess capacity with the potential to accommodate the

entire B-52 fleet at either Barksdale or Minot and the entire B-1 fleet at Dyess or Ellsworth. If the

current trend of retiring airframes to pay for sustainment and modernization efforts continues (as

was done with the B-1 when 27 aircraft in 2001-2002 and three aircraft in 2012 were retired in

order to use the savings to pay for sustainment and upgrades), the total fleet size of both bombers

may suggest consolidation at one base simply from a cost feasibility perspective.

Ellsworth AFB in South Dakota survived the 2005 BRAC when the federal base-closing

commission voted to keep the base open, despite Pentagon recommendations to close the base

and consolidate the B-1 fleet at Dyess AFB in Texas. Ellsworth employs some 4,000 people and

has an estimated economic impact of $278 million on the local community.68 Although no BRAC

actions were taken for Minot AFB and Barksdale AFB in 2005, Air Force BRAC planners

initially proposed retiring Minot’s 150 Minuteman III intercontinental ballistic missiles and

realigning the base. Ultimately, planners decided this idea would not work and the Air Force’s top

BRAC committee, the Base Closure Executive Group, rejected the idea.69 As far as the B-2 is

concerned, all 20 are stationed at Whiteman AFB, Missouri. There has been no public discussion

of potential basing for the LRS-B, if and when it finally hits the flight line in the mid-to-late

2020s.

Industrial Base Concerns Associated with Bomber Sustainment

Another oversight issue is the ability of the nation’s industrial base to sustain the legacy bomber

force. A potential problem with sustaining a fleet of bombers with an average age of 33 years is

that the industrial base that developed and produced these aircraft may no longer possess the

capability to manufacture and supply parts in necessary quantities—if at all—to affordably keep

these aircraft flying. Especially in the case of the B-52 and B-1, many of the original parts

designed and produced in the 1950s (for the B-52) and the 1970s (for the B-1) are simply not

produced anymore. Both airframes struggle with diminishing manufacturing sources and material

shortages in an effort to replace and repair aircraft parts and equipment that the original

manufactures do not make anymore. As the nation’s current budget deficit debate shifts from

taxes towards spending cuts and the debt limit, commentators note the potential for deep defense

cuts may drive the defense industry to streamline and consolidate operations, potentially exit prior

production lines, and undergo internal restructuring in an effort to maintain their existing profit

margins. Consequently, a question to be answered is whether the defense industrial base will even

be capable of meeting the sustainment requirements of America’s legacy bomber force out to

2040 and to what extent Congress should consider this issue when evaluating proposed defense

cuts.

Bob Reha, South Dakota’s Ellsworth AFB to Say Open (Minnesota Public Radio, August 26, 2005),

http://news.minnesota.publicradio.org/features/2005/08/26_rehab_ellsworthopen/

Nicole Gaudiano, Air Force BRAC Planners Nixed Minot Realignment (Air Force Times, September 5, 2005),

http://www.airforcetimes.com/legacy/new/0-AIRPAPER-1034249.php

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Historical Appropriations for Bomber Sustainment

and Modernization, FY2002-2012

Figure 7 depicts historical authorizations and appropriations for B-52H, B-1B, and B-2

sustainment and modernization. Dollar amounts include funds authorized/appropriated in the

“Procurement” and “Research, Development, Test and Evaluation” sections as well as any funds

authorized/appropriated for sustainment and modernization efforts directly tied to “Overseas

Contingency Operations” provided for in National Defense Authorization and Appropriations acts

from FY2002 to FY2013. Figure 8 is a side-by-side graphical comparison of historical

appropriations for all three bombers.

Figure 9 is an overlay of historical appropriations for all three bombers and their average yearly

mission capable rate. Mission capable rate is defined as the percentage of aircraft in each of the

bomber fleet components that are capable of performing its intended wartime mission.

Figure 7. Congressional Authorizations and Appropriations for Bomber Sustainment

and Modernization

(in millions of “then-year” dollars, rounded to nearest tenth)

FY02

FY03

FY04

FY05

FY06

FY07

FY08

FY09

FY10

FY11

FY12

FY13

B-52

Authorized Appropriated

70.4

110.7

65.8

111.5

89.8

117.4

137.4

188.3

241

255.5

205.4

204.3

138.2

142.7

80.4

155.4

163.8

218.6

199.2

187.9

63.0

Authorized

296.4

260.7

194.1

254.4

226.8

196.1

178.8

168.7

280

248.6

235.8

167.0

B-1

Appropriated

196.4

276.4

200.9

259.4

182.4

196.1

187.8

168.7

261.5

252.1

235.8

167.0

Authorized

281.5

406.2

352.3

408.5

393.8

450.9

536.2

728.9

735.9

350.1

371.1

447.0

B-2

Appropriated

293.1

406.2

329.1

408.5

387.8

453.2

546.2

728.9

699.3

350.1

360.8

447.0

Sources: National Defense Authorization Acts, Appropriation Acts, and Committee Reports for Fiscal Years

2002 to 2013. Dollar amounts include procurement and research, development, test, and evaluation funding.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Figure 8. B-52, B-1 and B-2 Appropriations Comparison

(in “then-year” dollars)

Sources: National Defense Authorization Acts, Appropriation Acts, and Committee Reports for Fiscal Years

2002 to 2013.

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Figure 9. B-52, B-1 and B-2 Appropriations and Average Historical Mission Capable Rates

(in “then-year” dollars and percentage of aircraft in each of the bomber fleet that are capable of performing its intended wartime mission)

$800,000,000

100.00%

90.00%

$700,000,000

80.00%

$600,000,000

70.00%

$500,000,000

60.00%

$400,000,000

50.00%

40.00%

$300,000,000

30.00%

B-52 Appropriated

Funds

B-1 Appropriated

Funds

B-2 Appropriated

Funds

B-52 Average MC

Rate

B-1 Average MC

Rate

B-2 Average MC

Rate

$200,000,000

20.00%

$100,000,000

10.00%

0.00%

FY02

FY03

FY04

FY05

FY06

FY07

FY08

FY09

FY10

FY11

FY12

Source: National Defense Authorization Acts, Appropriation Acts, and Committee Reports for Fiscal Years 2002 to 2013 and mission capable rates as reported to

Headquarters U.S. Air Force by Air Combat Command and Global Strike Command.

CRS-36

U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Legislative Activity FY2011-FY2013

The follow is a brief summary of legislative actions involving U.S. Air Force bomber sustainment

and modernization from fiscal years 2011 through 2013. It also highlights Congress’s interest in

the potential threat posed by countries seeking to implement anti-access/area denial capabilities

and strategies. The complete legislative language for each of these efforts can be found in

Appendix E.

FY2011 National Defense Authorization Act (P.L. 111-383)

Section 1056 of P.L. 111-383 directed the Secretary of the Air Force to submit to congressional

defense committees a report concerning bomber modernization, sustainment, and recapitalization

efforts in support of the National Defense Strategy. In the report, the Air Force was to discuss the

cost, schedule, and performance of all planned efforts to modernize and keep viable the existing

B–1, B–2, and B–52 bomber fleets. Congress also requested the forecasted service-life and all

sustainment challenges that the Secretary of the Air Force may confront in keeping those

platforms viable until the anticipated retirement of all three aircraft. As previously discussed, this

report was submitted to Congress in September 2011 and contains similar information as that

found in the Air Force Global Strike Command’s (AFGSC’s) and Air Combat Command’s

(ACC’s) master plan documents for the B-52 and B-2 (AFGSC) and the B-1 (ACC) presented in

Appendixes B through D.

Under Section 1238 of P.L. 111-383, Congress requested an additional report on United States’

efforts to defend against threats posed by the Anti-Access and Area-Denial capabilities of certain

nations-states. This report was requested in response to DOD’s 2010 Quadrennial Defense

Review that concluded ‘‘[a]nti-access strategies seek to deny outside countries the ability to

project power into a region, thereby allowing aggression or other destabilizing actions to be

conducted by the anti-access powers. Without dominant capabilities to project power, the

integrity of United States alliances and security partnerships could be called into question,

reducing United States security and influence and increasing the possibility of conflict.” Congress

also requested an assessment by the Secretary of Defenses on the United States’ efforts to defend

against any potential future threats posed by the anti-access and area-denial capabilities of

potentially hostile nation-states. These reports were submitted to the House and Senate Armed

Services Committees in April 2011.

FY2012 Department of Defense Appropriations (H.Rept. 112-331)

In the DOD’s FY2012 budget request, the Air Force proposed the retirement of six B-1 bombers

with the intent of putting the money saved by retiring these aircraft towards modernization and

sustainment efforts for the remaining 60 B-1 aircraft. In response to this proposal, the House

Appropriations Committee made the following recommendation in their conference report to

accompany H.R. 2055.

The fiscal year 2012 budget request includes a proposal to retire six B–1 bomber aircraft.

The conferees understand that the B– 1 fleet continues to operate almost constantly over

Afghanistan in support of troops on the ground and that the B–1 is a critical component of

the Nation’s long-range strike capabilities. The Air Force proposed to reinvest less than 40

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percent of the savings from aircraft retirements in the B–1 modernization program across the

Future Years Defense Program. The conferees are concerned that premature retirement of six

B–1 aircraft could negatively impact long-range strike capabilities. Therefore, the conferees

direct the Secretary of the Air Force to reinvest a larger portion of savings realized from B–1

aircraft retirements, to the extent authorized by law, in the sustainment and modernization of

the B–1 fleet.

FY2012 National Defense Authorization Act (P.L. 112-81)

Further responding to the Air Force’s proposal to retire six B-1s, Section 132 in P.L. 112-81

sought to clarify the Air Force’s plan by restricting FY2012 funds for the retirement of any B-1

aircraft until the Secretary of the Air Force submitted a plan to congressional defense committees

detailing the following:

•

Identification of each B–1 bomber aircraft that will be retired and the disposition

plan for such aircraft;

•

an estimate of the savings that will result from the proposed retirement of B–1

bomber aircraft in each calendar year through calendar year 2022;

•

an estimate of the amount of the savings that will be reinvested in the

modernization of B–1 bomber aircraft still in service in each calendar year

through calendar year 2022;

•

a modernization plan for sustaining the remaining B–1 bomber aircraft through at

least calendar year 2022; and,

•

an estimate of the amount of funding required to fully fund the modernization

plan for each calendar year through calendar year 2022.

Language in Section 132 also went on to specify that if retirement of six B-1s was justified, after

subsequently retiring those aircraft, the Secretary of the Air Force will maintain in a common

capability configuration no less than 36 combat-coded B–1 aircraft out to September 30, 2013.70

After that date, no less than 35 combat-coded aircraft until September 30, 2014, then 34 until

September 30, 2015, and finally 33 combat-coded aircraft until September 30, 2016.71

Section 134 of P.L. 112-81 made available certain FY2011 funds for research and development

relating to the B-2 bomber. Specifically, $20 million was made available for FY2012 for research,

development, test and evaluation of a conventional weapons mixed load capability for the B–2. In

addition, Section 135 made available $15 million of FY2011 funds for research, development,

test and evaluation of alternative options for the B-2’s extremely high frequency terminal

Increment 1 program of record.72

Combat-coded aircraft is defined as aircraft assigned to meet the primary aircraft authorization to a unit for the

performance of its wartime mission.

As of this writing, the Air Force has retired only three of the originally proposed six B-1s.

The B-2 Extremely High Frequency (EHF) satellite communications (SATCOM) program supports the replacement

of the B-2’s ultra-high-frequency radio terminal set with an EHF SATCOM system that will be compatible with the

military’s legacy MILSTAR I/II satellite constellation and the future AEHF satellite constellation.

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FY2013 Department of Defense Appropriations (S.Rept. 112-196:

To accompany H.R. 5856)

Note: as of this writing, this legislation has not been passed into law.

The FY2013 budget request did not include funds under Aircraft Procurement for the B-52

CONECT program of record due to the Air Force’s decision to terminate the program.73 Instead, it

included $34,700,000 for research, development, test and evaluation for a restructured and

descoped B–52 CONECT program. The committee, however, directed that no funds may be

obligated or expended for the B–52 CONECT program of record post-milestone C acquisition

activities or for a restructured B–52 CONECT program until 30 days after the congressional

defense committees have been briefed on the Air Force’s proposed way ahead.

The committee also addressed the Air Force’s decision to terminate the B-52 Strategic Radar

Replacement [SR2] program. The B-52’s existing APQ-166 radar was produced in the 1960s, has

a 20 to 30 hour mean-time between failure rate, has limited in capabilities, and is costly to operate

and maintain. Although the Air Force conducted a lengthy analysis of alternatives in 2011 and

ultimately terminated the program, the committee encouraged the Secretary of the Air Force to

reconsider this decision.

FY2013 Department of Defense Authorizations (P.L. 112-239)

The subject of retiring B-1 aircraft was addressed again in P.L. 112-239. Section 142 amended

Section 8062 of title 10, United States Code, by adding at the end a new subsection stating,

“Beginning October 1, 2011, the Secretary of the Air Force may not retire more than six B–1

aircraft” and “shall maintain in a common capability configuration not less than 36 B–1 aircraft

as combat-coded aircraft.”

Section 211 addressed concerns over the nuclear certification requirements of the Air Force’s

proposed Next-Generation Bomber by directing the Secretary of the Air Force to ensure the nextgeneration long-range strike bomber is capable of carrying nuclear weapons as of the date on

which the aircraft achieves initial operating capability (IOC) and is also certified to use such

weapons no later than two years after IOC.

Conclusion

In the wake of fiscal constraints levied by the Budget Control Act of 2011 (P.L. 112-25/S. 365)

and the implementation of sequestration on March 1, 2013, Congress and the Air Force will be

faced with difficult decisions regarding fiscal appropriations for bomber sustainment and

modernization. The impacts of these fiscal measures on bomber appropriations can already be

seen with implementation of the FY2013 defense budget. From FY2002 through FY2012, the

sustainment and modernization appropriations for the B-52, B-1, and B-2 averaged $160.15

The B-52 Combat Network Communications Technology (CONECT) acquisition program supports

nuclear and conventional operations by upgrading the B-52 fleet with tactical datalink and voice

communications capability along with improved threat and situational awareness to support participation in

network centric operations.

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million, $219.77 million, and $451.2 million per year respectively. For the FY2013 budget,

appropriations for the B-52 were $63 million, down 61% from the prior 11-year average and the

lowest amount appropriated since FY2002. FY2013 appropriations for the B-1 were $167 million,

down 24% from the prior 11-year average and also the lowest amount appropriated since

FY2002. The B-2 was the only bomber not affected by the budget cuts in FY2013 with $447

million appropriated, a drop of only 1% from the prior 11-year average. Meanwhile, potential

foes and long-time allies in the Asia-Pacific are undergoing major (in some cases unprecedented)

expansions of their defense capabilities in order to secure or expand their diplomatic, economic,

and strategic influence in the region. The result is an increase in the proliferation of advanced 21st

century weapon systems and a trend of countries adopting A2/AD strategies to secure their

national interests. Nevertheless, time and time again, the United States turns to its long-range

bomber force as means of flexing its deterrent muscle, as it did most recently in response to

renewed threats of war by North Korean leader Kim Jong Un. In March and April of 2013, the

United States sent B-52s and B-2s on short-notice deployments for exercises with South Korean

forces and for shows-of-force over the Korean peninsula as a visible signal to Kim Jong Un that

such threats by the North’s regime will not go unchecked. However, as potential A2/AD equipped

adversaries throughout the world become more prevalent and more capable, the question remains:

will the Air Force’s legacy bomber force keep pace with sustainment and modernization efforts in

order to remain a credible response to such adversaries, or will they become increasingly

irrelevant because the nation cannot afford them? In large part, decisions by Congress will

determine just how much longer the B-52, B-1, and B-2 will remain relevant, and ultimately, will

likely determine the future of the nation’s long-range strike capabilities.

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Appendix A. Existing Bomber Force

This appendix presents additional information on the U.S. Air Force’s existing fleet of B-52H,

B-1B, and B-2 bombers.

52H Stratofortress74

Mission

The B-52H is a long-range, heavy bomber that can perform a variety of missions. The bomber is

capable of flying at high subsonic speeds at altitudes up to 50,000 feet (15,166.6 meters). It can

carry nuclear or precision guided conventional ordnance with worldwide precision navigation

capability.

Features

In a conventional conflict, the B-52H can perform strategic attack, close-air support, air

interdiction, offensive counter-air, and maritime operations. During Desert Storm, B-52s

delivered 40% of all the weapons dropped by coalition forces. It is also capable of ocean

surveillance, and can assist the U.S. Navy in anti-ship and mine-laying operations. Two B-52Hs,

in two hours, can monitor 140,000 square miles (364,000 square kilometers) of ocean surface.

All B-52Hs can be equipped with two electro-optical viewing sensors, a forward-looking infrared

camera, and an advanced targeting pod, to augment targeting, battle assessment, and flight safety.

Pilots wear night vision goggles, or NVGs, to enhance their vision during night operations. Night

vision goggles provide greater safety during night operations by increasing the pilot’s ability to

visually clear terrain, avoid enemy radar, and see other aircraft in a lights-out environment.

Starting in 1989, on-going modifications incorporate the global positioning system, heavy stores

adapter beams for carrying 2,000 pound munitions, and a full array of advance weapons currently

under development.

The use of aerial refueling gives the B-52H a range limited only by crew endurance. It has an

unrefueled combat range in excess of 8,800 miles (14,080 kilometers).

Background

The B-52H is capable of dropping or launching a wide array of weapons. This includes gravity

bombs, cluster bombs, precision guided missiles, and joint direct attack munitions. Updated with

modern technology the B-52H will be capable of delivering the full complement of joint

developed weapons. Current engineering analyses show the B-52H’s life span to extend beyond

the year 2040.

Information in this section comes from the U.S. Air Force Fact Sheet for the B-52H Stratofortress, December 4,

2012, http://www.af.mil/information/factsheets/factsheet.asp?id=83.

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The B-52A first flew in 1954, and the B model entered service in 1955. A total of 744 B-52s were

built with the last, a B-52H, delivered in October 1962. The first of 102 B-52Hs was delivered to

Strategic Air Command in May 1961. The H model can carry up to 20 air launched cruise

missiles. In addition, it can carry the conventional cruise missile that was launched in several

contingencies during the 1990s, starting with Operation Desert Storm and culminating with

Operation Iraqi Freedom.

In Operations Desert Storm and Allied Force, B-52s struck wide-area troop concentrations, fixed

installations and bunkers, and decimated the morale of Iraq’s Republican Guard. On September 2

and 3, 1996, two B-52H’s struck Baghdad power stations and communications facilities with 13

AGM-86C conventional air launched cruise missiles, or CALCMs, as part of Operation Desert

Strike. At the time, this mission was the longest distance flown for a combat mission, involving a

34-hour, 16,000 statute mile, round trip from Barksdale Air Force Base, LA.

In 2001, the B-52H contributed to Operation Enduring Freedom by loitering high above the

battlefield and providing close air support through the use of precision guided munitions.

The B-52H also played a role in Operation Iraqi Freedom. On March 21, 2003, B-52Hs launched

approximately 100 CALCMs during a night mission.

Only the H model is still in the Air Force inventory and is assigned to the 5th Bomb Wing at

Minot AFB, ND, and the 2nd Bomb Wing at Barksdale AFB, LA, which fall under Air Force

Global Strike Command. The aircraft is also assigned to the Air Force Reserve Command’s 307th

Bomb Wing at Barksdale.

General Characteristics

Primary Function: Heavy bomber

Contractor: Boeing Military Airplane Co.

Power plant: Eight Pratt & Whitney engines TF33-P-3/103 turbofan

Thrust: Each engine up to 17,000 pounds

Wingspan: 185 feet (56.4 meters)

Length: 159 feet, 4 inches (48.5 meters)

Height: 40 feet, 8 inches (12.4 meters)

Weight: Approximately 185,000 pounds (83,250 kilograms)

Maximum Takeoff Weight: 488,000 pounds (219,600 kilograms)

Fuel Capacity: 312,197 pounds (141,610 kilograms)

Payload: 70,000 pounds (31,500 kilograms)

Speed: 650 miles per hour (Mach 0.86)

Range: 8,800 miles (7,652 nautical miles)

Ceiling: 50,000 feet (15,151.5 meters)

Armament: Approximately 70,000 pounds (31,500 kilograms) mixed ordnance—bombs,

mines, and missiles. (Modified to carry air-launched cruise missiles)

Crew: Five (aircraft commander, pilot, radar navigator, navigator, and electronic warfare

officer)

Unit Cost: $53.4 million (FY1998 constant dollars)

Initial operating capability: April 1952

Inventory: Active force, 76; ANG, 0; Reserve, 9

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B-1B Lancer75

Mission

Carrying the largest payload of both guided and unguided weapons in the Air Force inventory, the

multi-mission B-1 can rapidly deliver massive quantities of precision and non-precision weapons.

Features

The B-1B’s blended wing and body configuration, variable-geometry wings, and turbofan

afterburning engines combine to provide long range, maneuverability, and high speed while

enhancing survivability. Forward wing settings are used for takeoff, landings, air refueling, and in

some high-altitude weapons employment scenarios. Aft wing sweep settings—the main combat

configuration—are typically used during high subsonic and supersonic flight, enhancing the B1B’s maneuverability in the low- and high-altitude regimes. The B-1B’s speed and handling

characteristics, large payload, radar targeting system, long loiter time, and survivability allow it to

integrate with almost any joint/composite strike force.

The B-1B is a multi-mission weapon system. Its synthetic aperture radar is capable of tracking,

targeting, and engaging moving vehicles as well as self-targeting and terrain-following modes. In

addition, an extremely accurate Global Positioning System-aided Inertial Navigation System

enables aircrews to navigate without the aid of ground-based navigation aids as well as engage

targets with a high level of precision. Combat Track II data link radios provide a secure, beyondline-of-sight reach back connectivity for command and control and in-flight re-tasking/retargeting. In a time sensitive targeting environment, the aircrew can use targeting data from the

Combined Air Operations Center over Combat Track II to strike emerging targets.

The B-1B’s onboard self-protection electronic jamming equipment, radar warning receiver,

expendable countermeasures, and a towed decoy system complement its low-radar cross-section

to form an integrated defense system that supports penetration of hostile airspace. The electronic

countermeasures system detects and identifies adversary threat radars and then applies the

appropriate jamming technique either automatically or through operator inputs.

Current B-1B sustainment and modernization efforts build on this foundation. Radar

sustainability and capability upgrades will provide a more reliable system and may be upgraded

in the future to include an ultra-high-resolution capability and automatic target recognition. The

addition of a fully integrated data link, or FIDL, will add Link-16 line-of-sight data link

communications capability. FIDL combined with associated cockpit upgrades will provide the

crew with a much more flexible, integrated cockpit. Several obsolete and hard to maintain

electronic systems are also being replaced to improve aircraft reliability.

Background

The B-1A was initially developed in the 1970s as a replacement for the B-52. Four prototypes of

this long-range, high speed (Mach 2.2) strategic bomber were developed and tested in the mid75

Information in this section comes from the U.S. Air Force Fact Sheet for the B-1B Lancer, May 21, 2012,

http://www.af.mil/information/factsheets/factsheet.asp?fsID=81.

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1970s, but the program was canceled in 1977 before going into production. Flight testing

continued through 1981.

The B-1B is an improved variant initiated by the Reagan Administration in 1981. Major changes

included the addition of additional structure to increase payload by 74,000 pounds, an improved

radar, and reduction of the aircraft’s radar cross section (RCS) by an order of magnitude. The

engine inlets were extensively modified as part of this RCS reduction, necessitating a reduction in

maximum speed to Mach 1.2.

The first production B-1B flew in October 1984, and the first aircraft was delivered to Dyess Air

Force Base, Texas, in June 1985. Initial operational capability was achieved on October 1, 1986.

The final B-1B was delivered May 2, 1988.

The B-1B was first used in combat in support of operations against Iraq during Operation Desert

Fox in December 1998. In 1999, six B-1Bs were used in Operation Allied Force, delivering more

than 20% of the total ordnance while flying less than 2% of the combat sorties.

During the first six months of Operation Enduring Freedom, eight B-1Bs dropped nearly 40% of

the total tonnage delivered by coalition air forces. This included nearly 3,900 Joint Direct Attack

Munitions (JDAMs), or 67% of the total. In Operation Iraqi Freedom, the aircraft flew less than

1% of the combat missions while delivering 43% of the JDAMs used. The B-1 continues to be

deployed today, flying missions daily in support of continuing operations.

General Characteristics

Primary Function: Long-range, multi-role, heavy bomber

Contractor: Boeing, North America (formerly Rockwell International, North American

Aircraft); Offensive avionics, Boeing Military Airplane; defensive avionics, EDO

Corporation

Power plant: Four General Electric F101-GE-102 turbofan engine with afterburner

Thrust: 30,000-plus pounds with afterburner, per engine

Wingspan: 137 feet (41.8 meters) extended forward, 79 feet (24.1 meters) swept aft

Length: 146 feet (44.5 meters)

Height: 34 feet (10.4 meters)

Weight: approximately 190,000 pounds (86,183 kilograms)

Maximum Takeoff Weight: 477,000 pounds (216,634 kilograms)

Fuel Capacity: 265,274 pounds (120,326 kilograms)

Payload: 75,000 pounds ( 34,019 kilograms)

Speed: 900-plus mph (Mach 1.2 at sea level)

Range: Intercontinental

Ceiling: More than 30,000 feet (9,144 meters)

Armament: 84 500-pound Mk-82 or 24 2,000-pound Mk-84 general purpose bombs; up to

84 500-pound Mk-62 or 8 2,000-pound Mk-65 Quick Strike naval mines; 30 cluster

munitions (CBU-87, -89, -97) or 30 Wind-Corrected Munitions Dispensers (CBU-103, -104, 105); up to 24 2,000-pound GBU-31 or 15 500-pound GBU-38 Joint Direct Attack

Munitions; up to 24 AGM-158A Joint Air-to-Surface Standoff Missiles; GBU-54 Laser Joint

Direct Attack Munition

Crew: Four (aircraft commander, copilot, and two weapon systems officers)

Unit Cost: $283.1 million (fiscal 98 constant dollars)

Initial operating capability: October 1986

Inventory: Active force, 63 (test, 2); ANG, 0; Reserve, 0

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B-2 Spirit76

Mission

The B-2 Spirit is a multi-role bomber capable of delivering both conventional and nuclear

munitions.

Features

Along with the B-52H and the B-1B, the B-2 provides the penetrating flexibility and

effectiveness inherent in manned bombers. Its low-observable, or “stealth,” characteristics give it

the ability to penetrate an enemy’s most sophisticated defenses and threaten its most valued, and

heavily defended, targets.

The blending of low-observable technologies with high aerodynamic efficiency and large payload

gives the B-2 important advantages over existing bombers. Its low observability provides it

greater freedom of action at high altitudes, thus increasing its range and providing a better field of

view for the aircraft’s sensors. Its unrefueled range is approximately 6,000 nautical miles (9,600

kilometers).

The B-2’s low observability is derived from a combination of reduced infrared, acoustic,

electromagnetic, visual, and radar signatures. These signatures make it difficult for sophisticated

defensive systems to detect, track, and engage the B-2. Many aspects of the low observability

process remain classified; however, the B-2’s composite materials, special coatings, and flyingwing design all contribute to its “stealthiness.”

The B-2 has a crew of two pilots: an aircraft commander in the left seat and a mission commander

in the right.

Background

The first B-2 was publicly displayed on November 22, 1988, when it was rolled out of its hangar

at Air Force Plant 42, Palmdale, CA. Its first flight was July 17, 1989. The B-2 Combined Test

Force, Air Force Flight Test Center, Edwards Air Force Base, CA, is responsible for flight testing,

engineering, manufacturing, and development of the B-2.

Whiteman AFB, MO, is the only operational base for the B-2. The first aircraft, Spirit of

Missouri, was delivered December 17, 1993. Depot maintenance responsibility for the B-2 is

performed by Air Force contractor support and is managed at the Oklahoma City Air Logistics

Center at Tinker AFB, OK.

In Operation Allied Force, the B-2 was responsible for destroying 33% of all Serbian targets in

the first eight weeks, by flying nonstop to Kosovo from its home base in Missouri and back. In

support of Operation Enduring Freedom, the B-2 flew one of its longest missions to date from

Whiteman to Afghanistan and back. The B-2 completed its first-ever combat deployment in

Information in this section comes from the U.S. Air Force Fact Sheet for the B-2 Spirit, April 23, 2010,

http://www.af.mil/information/factsheets/factsheet.asp?fsID=82.

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support of Operation Iraqi Freedom, flying 22 sorties from a forward operating location as well as

27 sorties from Whiteman AFB and releasing more than 1.5 million pounds of munitions. The

aircraft received full operational capability status in December 2003. On February 1, 2009, the

Air Force’s newest command, Air Force Global Strike Command, assumed responsibility for the

B-2 from Air Combat Command.

The prime contractor, responsible for overall system design and integration, is Northrop

Grumman Integrated Systems Sector. Boeing Military Airplanes Co., Hughes Radar Systems

Group, General Electric Aircraft Engine Group, and Vought Aircraft Industries, Inc., are key

members of the aircraft contractor team.

General Characteristics

Primary function: Multi-role heavy bomber

Contractor: Northrop Grumman Corp. and Contractor Team: Boeing Military Airplanes

Co., Hughes Radar Systems Group, General Electric Aircraft Engine Group, and Vought

Aircraft Industries, Inc.

Power Plant: Four General Electric F118-GE-100 engines

Thrust: 17,300 pounds each engine

Wingspan: 172 feet (52.12 meters)

Length: 69 feet (20.9 meters)

Height: 17 feet (5.1 meters

Weight: 160,000 pounds (72,575 kilograms)

Maximum Takeoff Weight: 336,500 pounds (152,634 kilograms)

Fuel Capacity: 167,000 pounds (75750 kilograms)

Payload: 40,000 pounds (18,144 kilograms)

Speed: High subsonic

Range: Intercontinental

Ceiling: 50,000 feet (15,240 meters)

Armament: Conventional or nuclear weapons

Crew: Two pilots

Unit cost: Approximately $1.157 billion (fiscal 98 constant dollars)

Initial operating capability: April 1997

Inventory: Active force: 20 (1 test); ANG: 0; Reserve: 0

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Appendix B. Plans for B-52H Bomber Sustainment

and Modernization

B-52H Master Plan and Requirements77

The B-5H2 Bomber Master Plan outlines Air Force Global Strike Command’s (AFGSC’s) plans,

programs, requirements, and strategic vision for the B-52 platform to meet the nation’s airborne

strategic nuclear deterrence and global precision attack mission objectives. Near-term

modernization and sustainment efforts are identified for the time period 2012 to 2018. Far-term

modernization and sustainment efforts are identified as those required in the 2019 to 2032 time

period. AFGSC Director of Plans, Programs and Requirements (HQ AFGSC A5/8) is responsible

for producing and updating the master plan.

Assumptions

The B-52H Bomber Master Plan is based on the following assumptions:

•

The B-52H will conduct its assigned nuclear mission through 2040.

•

The B-52H will continue to conduct its assigned conventional mission through

2040.

•

The B-52H fleet size will consist of not more than 76 airframes through 2040.

•

Conversion of a required number of B-52Hs to a conventional-only role by 2018

for New START compliance.

•

The current B-52H service life goal is 2040.

•

There will be no change to current B-52H basing.

•

Unfunded risks and issues require prioritization and validation through the

resource allocation and POM (program objectives memorandum) process.

•

The nuclear enterprise will continue to be a top priority for the Air Force and the

primary mission of Air Force Global Strike Command.

Current B-52H Sustainment and Modernization Efforts

The following is a summary of B-52H sustainment and modernization initiatives currently in the

program of record (POR) that are either just being completed or are currently in progress.

(Asterisks denote sustainment and modernization efforts that could be considered essential to the

B-52H’s ability to operate in A2/AD threat environments.)

* Combat Network Communications Technology (CONECT): The B-52 CONECT

acquisition program supports nuclear and conventional operations by upgrading the B-52

Information in Appendix B is from Air Force Global Strike Command’s, B-52 Bomber Master Plan, June 2012.

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fleet with tactical datalink and voice communications capability along with improved threat

and situational awareness to support participation in network centric operations.

* Military-Standard-1760 Modernization: Improves the B-52’s conventional warfare

capability with additional MIL-STD-1760 smart weapons and improved weapons carriage

and fully integrates advanced targeting pods with the B-52’s offensive avionics system.

B-52 Trainer Upgrades: Includes modernization upgrades to B-52 training devices to

support aircrew and maintenance training with the latest B-52 capabilities. Upgrades and

modernizations under this program ensure weapons system trainers (simulators) are current

with ongoing B-52 modifications.

Arms Control: Arms control activities under the New START create the need to modify a

number of B-52s to a conventional only role by removing the aircraft’s nuclear Code Enable

Switch and associated equipment. This effort requires a complete design to remove the

equipment from the aircraft and install metal plates prohibiting reinstallation of removed

equipment to comply with treaty protocols.

* Mode S/5 Identification Friend or Foe (IFF): The Mode S/5 program replaces the B-52’s

aging APX-64 IFF transponder with a modern APX-119 transponder. Mode S/5 IFF is

required for flight by the Federal Aviation Administration (FAA), International Civil

Aviation Organization (ICAO), and the DOD.

Low Cost Modifications: Miscellaneous, low-cost modernization efforts that stem from the

operation and maintenance of a 50-plus-year-old aircraft, such as parts obsolescence,

diminishing manufacturing resources, and emerging requirements to add or maintain the

existing B-52 capabilities.

B-52 Anti-Skid Replacement: The B-52 anti-skid system is used to maintain control of the

aircraft during landing and taxi operations by preventing aircraft skidding. This modification

replaces the current anti-skid system with an updated system that resolves obsolescence

issues. If not upgraded, the unsupportability of the current anti-skid system is projected to

affect aircraft availability starting in 2015.

* B-52 Modernization Research Development Test and Evaluation Efforts: B-52

modernization RDT&E efforts is a comprehensive program to ensure the B-52’s ability to

perform current and future wartime missions. It includes upgrades to data links, navigation,

sensors, weapons, and electronic warfare and training capabilities.

* 1760 Internal Weapons Bay Upgrade (IWBU): The 1760 IWBU modification allows the

B-52 to carry J-series weapons such as the Joint Direct Attack Munitions (JDAM), Joint Airto-Surface Standoff Missile (JASSM), JASSM-ER (extended range), and Miniature Air

Launched Decoy (MALD) weapons in the B-52’s internal weapons bay.

Future B-52H Sustainment and Modernization Requirements

While the current B-52H weapon system is capable of meeting today’s strategic deterrence and

conventional taskings, it may require continued sustainment and modernization efforts to remain

airworthy and viable against 21st century A2/AD threats. For the B-52H to continue meeting

mission requirements, Air Force Global Strike Command recommends considering the following

modernization and sustainment efforts for future appropriations consideration. These efforts are

organized into five broad categories: airframe, avionics, communications systems, weapons

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interfaces, and supporting infrastructure. A detailed explanation of each category’s specific

recommendations can be found in the B-52H’s Master Plan.

Airframe: The airframe is comprised of structural components, engines, flight controls, and

miscellaneous mechanical systems. Several B-52 airframe subsystems such as the existing B52 analog Yaw Electronic Control Unit/Pitch Electronic Control Unit and the Anti-Skid

Control Unit within the Anti-Skid System are becoming unsupportable due to parts

obsolescence, lack of test equipment, specialized tools, troubleshooting guides, and

experienced repair personnel. Continued full funding for these programs could mitigate these

problems.

Avionics Systems: Avionics systems are comprised of defensive systems, offensive systems,

and navigation systems. Several avionics subsystems are suffering from obsolescence and

supportability issues. For example, the current radar antenna was never upgraded, uses 1950s

technology and is projected to become unsupportable in the near future. In addition, the

Electronic Warfare (EW) suite is experiencing parts obsolescence, diminishing

manufacturing sources, and ineffectiveness against the technologically advancing A2/AD

threats.

Communications Systems: Communications systems are comprised of cryptographic,

tactical, emergency, and survivable subsystems. The biggest near-term communications

concern involves the family of advanced beyond line-of-sight terminals. Delays in the

program are putting the Extremely High-Frequency (EHF) program at risk by not meeting

U.S. Strategic Command’s (USSTRATCOM) need dates based on projected Military

Strategic and Tactical Relay Satellite (MILSTAR) Ultra High Frequency Satellite

Communications (UHF SATCOM) end-of-life projections. Further delays will impact the B52’s ability to receive Emergency Action Messages (EAMs) and Report-Backs in support of

USSTRATCOM’s nuclear command and control requirements.

Longer-term communications concerns involve the integration of an advanced tactical

datalink and an advanced secure, broadband, beyond line-of-sight datalink for continuous,

survivable command and control coordination, and improved reception of weapons

retargeting data and mission updates.

Weapons Interfaces: Weapons interfaces are systems designed to support, carry,

communicate with and/or launch weapons from the B-52. Near-term needs include the

integration of an Advanced Targeting Pod, on-going Military-Standard-1760 internal

weapons bay upgrades, integrated weapons interface unit (IWIU) integration on external

weapons pylons, and a GPS interface unit/programmable keyboard upgrade to the offensive

avionics system.

Supporting Infrastructure: B-52 supporting infrastructure includes trainers, simulators, test

equipment, aircraft ground equipment, and weapon system testing that support the B-52

platform.

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U.S. Air Force Bomber Sustainment and Modernization: Issues for Congress

Figure B-1. Graphical Summary of B-52 Sustainment and

Modernization Master Plan

FY13 FY14 FY15 FY16 FY17 FY18 FY19 FY20 FY21 FY22 FY23 FY24 FY25 FY26 FY27 FY28 FY29 FY30

AIRFRAME

Structural Components

Engines

Flight Controls

Misc Mechanical

Anti-Skid Replacement

AVIONICS

Proactive Aircraft Defense Technology

Defensive Systems

Electronic Warfare Suite Modernization

Strategic Radar Replacement

Offensive Systems

Engage Moving Targets Technology

New START

IFF Mode S/5

ADS-B Upgrade

GPS-IU/PKB

Navigation Systems

Reduced Vertical Separation Minimum

WAAS & SAASM Compliance with M Code

Glide Slope Modernization

COMM SYSTEMS

Nuclear Command & Control Processing Technology

Cryptographic

Combat Network Comm Technology

Tactical

Evolutionary Data Link

Crash-Survivable Flight Data Recorder

Emergency

Extremely High Frequency

Survivable

Survivable BLOS Communications Path Technology

WEAPONS

INTERFACES

Advanced Targeting Pod

1760 IWBU Inc 1

1760 IWBU Inc 2

1760 IWBU Inc 3

SUPPORTING

INFRASTRUCTURE

B-52 Trainer Systems Management

Trainers

On-Board Training Technology

Centralized Conventional Mission Planning Technology

Simulators

Flexible Nuclear Mission Planning Technology

Test Equipment

AGE

Weapon System

Testing

EMP Testing

OTHER

JMPS

MALD

Nuclear Certification

Funded Program/Effort

Unfunded Program/Effort

Funded Technology Need

Unfunded Technology Need

Source: Air Force Global Strike Command, B-52 Bomber Master Plan, June 2012, p. 10.

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Figure B-2. Historical Comparison of B-52 Appropriated Funding and the Average

Annual Mission Capable (MC) Rates for the B-52 Fleet

$300,000,000

100.00%

90.00%

$250,000,000

80.00%

70.00%

$200,000,000

60.00%

$150,000,000

50.00%

40.00%

$100,000,000

30.00%

20.00%

$50,000,000

10.00%

0.00%

FY 02

FY 03

FY 04

FY 05

FY 06

FY 07 FY 08

Fiscal Year

FY 09

FY 10

FY 11

FY 12

Source: National Defense Authorization Acts, Appropriation Acts, and Committee Reports for Fiscal Years

2002 to 2012 and mission capable rates as reported to Headquarters U.S. Air Force by Global Strike Command.

Note: Mission capable rate is defined as the percentage of aircraft in the fleet that are capable of performing its

intended wartime mission.

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Appendix C. Plans for B-1 Bomber Sustainment and

Modernization

B-1 Strategic Action and Investment Plan (SAIP)78

Similar to the B-52H and B-2’s Master Plans, the B-1 sustainment and modernization plan is

captured in the B-1 Strategic Action and Investment Plan (SAIP). B-1 requirements are managed

by Air Combat Command’s (ACC’s) B-1 Aircraft Branch (ACC/A8A1) within the ACC/A8A

Combat Aircraft Division. In 2011, the B-1 Aircraft Branch contracted with the consulting firm of

Whitney, Bradley & Brown, Inc. to research, study, and develop a cost optimized and time phased

B-1 sustainment and modernization plan. The resulting B-1 SAIP provides detailed analysis and

recommendations for the period 2014 to 2025 and presents optimum B-1 portfolios of

sustainment and modernization efforts for the FY14, FY16, and FY18 Programs Objective

Memorandum (POM). The results of this effort produced three sustainment and modernization

plans designed to maximize the benefit to be received from three, assumed funding levels

dependent on Air Force requested and congressionally provided appropriations.

•

Appropriation of $179 million per year (out to 2022) should complete existing

sustainment and modernization programs and fund only those sustainment

programs needed to maintain existing B-1 capabilities. The B-1 SAIP concludes

that $179 million represents the minimum feasible B-1 modernization and

sustainment funding level.

•

The B-1 SAIP concluded that appropriations of $250 million per year (out to

2022) is the minimum recommended funding level for B-1 sustainment and

modernization. At this level, several high benefit capabilities could be funded,

which would reduce Air Force ownership costs and potentially increase the B-1’s

operational effectiveness.

•

Appropriations of $400 million per year is the highest considered funding profile

recommended by the B-1 SAIP and would be sufficient to fund most of the

recommended B-1 sustainment and modernization efforts out to 2022.

The B-1 SAIP concludes that the Air Force should request at least $250 million per year for B-1

sustainment and modernization. Appropriations at this level and above are anticipated to provide

near-term solutions to weapon system capability gaps and shortfalls while ensuring the B-1 is

capable of supporting national security objectives.

Assumptions

The B-1 Bomber Strategic Action and Investment Plan (SAIP) is based on the following

assumptions:

•

There will be a continued requirement to strike fleeting or time sensitive targets.

Information in Appendix C is from Air Force Air Combat Command’s, B-1 Strategic Action and Investment Plan

(SAIP), May 10, 2012.

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•

The overall force structure within the Air Force will continue to be reduced,

emphasizing the need for availability of existing platforms such as the B-1.

•

B-1 force structure will remain steady over the SAIP timeline.

•

B-1s may be employed from the continental United States or applicable forwarddeployed locations, as warranted by the scenario and theater requirements.

•

Budget pressures dictate that B-1 aircraft be sustained in the most affordable

manner possible.

•

Reductions in manpower will continue to highlight the need for efficiencies.

•

Irregular Warfare operations will continue throughout the service life of the B-1.

Current B-1 Sustainment and Modernization Efforts

The following is a summary of the major B-1 sustainment and modernization initiatives that are

currently in the program of record (POR) that are either just completing or are currently in

progress. The costs of these PORs were factored into the SAIP’s sustainment and modernization

funding analysis and are reflected in the three assumed funding levels. (Asterisks denote

sustainment and modernization efforts that could be considered essential to the B-1’s ability to

operate in A2/AD threat environments.)

* Fully Integrated Data Link: FIDL will provide the B-1 with Link-16 line-of-sight (LOS)

and Joint Range Extension (JRE) beyond-line-of-sight (BLOS) data link capability and

supports machine-to-machine transfer of targeting data to the B-1’s weapons control

computers.

Simulator Digital Control Loading: Simulator digital control loading is a modification to

the B-1’s Weapon System Trainer(s) (WSTs) that will replace the existing hydraulicallyoperated control loading system with a digital control loading system. Control loading

provides force feedback for the pilot’s flight control stick and pedals; the WST flight stations

are unusable without a working control loading system. The existing system faces

obsolescence and diminishing manufacturing sources (DMS) issues, with some critical parts

having no spares.

Central Integrated Test System: CITS is the B-1’s fault diagnostic and fault isolation

system. The current CITS processor is at maximum memory/throughput, thus inhibiting fault

detection and isolation for current systems and future B-1 upgrades. This modification

provides a new processor, upgraded displays, and new software that will enhance diagnostic

capabilities, improve aircraft turnaround time, and reduce maintenance costs. This program

will also alleviate the current diminishing manufacturing source issue with this system.

* Inertial Navigation System Replacement: Provides for the replacement of a line

replaceable unit (LRU) in the B-1’s inertial navigation system. The B-1 INS provides

autonomous capability to navigate globally, without the aid of ground-based and global

positioning system navigation aids, as well as engage ground targets with a high level of

precision. The current INS system is plagued with severe diminishing manufacturing source

issues.

* Radar Improvement Upgrade: The B-1B Radar Reliability and Maintainability

Improvement Program (RMIP) consists of the replacement of two high-failure-rate radar

Line Replaceable Units (LRUs) and the supporting software conversion of legacy radar

modes. The Radar RMIP is intended to provide B-1B combat forces with an updated

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offensive radar system that should improve mission capable (MC) rates and eliminate issues

with diminishing manufacturing sources (DMS).

* Visual Situation Display Upgrade: The Vertical Situation Display Upgrade (VSDU) is a

safety-critical program that replaces the B-1’s pilot and co-pilot primary flight displays and

associated flight instruments. The current VSDs are monochrome cathode ray tube displays

and “steam gauge” primary flight instruments which are experiencing severe diminishing

manufacturing source issues with the potential to ground the aircraft. Spares are no longer

procurable due to obsolescence. VSDU installs two 8” x 6” color displays at the pilot and copilot stations to provide primary flight information and backups to meet flight safety

standards.

Self-Contained Attitude Indicator: The SCAI is a backup to the B-1’s primary flight

instruments and provides pilots with indications of aircraft attitude, airspeed, Mach, altitude

and vertical velocity. This development effort will replace the current obsolete legacy SCAI

with a more reliable and supportable off-the-shelf display.

Gyro Stabilization System Replacement (GSSR): This program is procuring and installing

line replaceable units (LRUs) in the B-1’s GSS, which is part of the aircraft’s navigation

system. This modification provides for replacement of the high maintenance/high cost/high

failure rate GSS LRUs with high reliability LRUs.

B-1 Training Support: This effort modifies and replaces computer components in the B-1

aircraft Maintenance Training Devices (MTDs). These MTDs are currently running on

computer systems from the late 1990s and are using nearly 100% of the computer resources

available to them. As such, no excess computer capacity exists to support current updates,

including current B-1 modification efforts. This modification will update the hardware with

modern Commercial Off-The-Shelf (COTS) computer systems and will re-host the software

on the new hardware, allowing these MTDs to accept new upgrades and remain concurrent

with B-1 upgrades.

* Digital Communications: The digital communications upgrade provides for replacement

of a currently installed Ultra High Frequency (UHF) Satellite Communications (SATCOM)

beyond line of sight datalink radio system with a Demand Assigned Multiple Access

(DAMA) compliant, UHF SATCOM radio. The current system, a temporary modification,

was installed in 2002 to support combat operations in Southwest Asia. The current system is

not DAMA compliant, which severely limits accessibility to SATCOM channels. In addition,

the cur

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