F-22 and Legacy Modernization Programs Took Different Approaches to Developing and Fielding Capabilities

The F-22A and legacy modernization programs we reviewed were rooted  in very different development strategies, although they shared some  similar characteristics. The F-22A began as a single-step program and did not anticipate the  need for significant future modernization. The legacy programs, on the  other hand, began with the expectation that their aircraft would be  incrementally upgraded and modified over time. F-22A modernization  began in reaction to a major shift in the aircraft’s basic mission, which  required the development of robust ground attack capabilities that were  not part of the initial development program. In contrast, the legacy  modernization programs were primarily initiated to make incremental  improvements to existing mission capabilities. The F-22A and legacy  modernization programs all began at about the same time in development  and procurement. The F-22A program is more complex and costly than  the legacy programs, primarily because the new capabilities have to be  retrofitted onto complex, stealth aircraft that have integrated avionics  systems, which, according to program and contractor officials, adds labor  hours and cost. The current total estimated cost of F-22A modernization  is $9.7 billion. Because the legacy  programs managed and funded modernization as a continuation of their  baseline programs, it is difficult to isolate and compare the full costs of  modernization. A comparison of data from F-22A, F-15, F-16, and F/A-18 selected  acquisition reports at 5-year intervals over the first 20 years following the  start of development for each program shows that the incremental  development approaches of the legacy systems quickly produced large  quantities of operational aircraft and introduced several new increments  of aircraft over that time span (see table 2). All of the modernization programs also began around similar acquisition  events. The total cost of F-22A modernization—through Increment  3.2B—is currently estimated to be $9.7 billion. Although the legacy and F-22A programs began modernizing at the same  general points in time, the F-22A did not originally plan for a major  modernization program, so when the aircraft’s mission changed in 2003,  the resources—primarily technology and funding—needed to meet the  new requirements had not been fully developed or identified. Agency Comments

DOD reviewed a draft of this report and had no formal written comments. In conducting our analysis, we identified relevant cost, schedule, and  requirements information from selected acquisition reports, budget  documents, program briefings, and official service histories.
Why GAO Did This Study

The Air Force expects to invest a total of $9.7 billion in F-22A modernization through 2023. The Air Force and Navy have modernized many of their fighter and attack aircraft over the past several decades. Given this historical experience and concerns about the mounting cost of F-22A modernization, GAO was asked to examine the history of the modernization programs of the F-15, F-16, and F/A-18, and compare those legacy programs with the F-22A modernization program.
To identify differences and similarities between the F-22A modernization program and those of the selected legacy programs, GAO reviewed official service history documents and current and historical program documents; analyzed program cost, schedule, performance, and quantity data; and spoke with current and former Air Force, Navy, and contractor officials.
DOD reviewed a draft of this report and had no formal written comments.

What GAO Found

The F-22A and legacy modernization programs GAO reviewed were rooted in different development strategies. The F-22A began as a single-step program and did not anticipate the need for future modernization, while the legacy programs each began with the expectation that their aircraft would be incrementally upgraded over time. F-22A modernization began in reaction to a major shift in the aircrafts basic mission, which required the development of new capabilities that had not been planned for as part of the initial development program. In contrast, the legacy modernization programs made planned incremental improvements to existing mission capabilities. All of the modernization programs began at about the same time in development and procurement. The F-22A program is developing and retrofitting new capabilities onto a complex stealth aircraft, which is costlycurrently estimated at $9.7 billion total. Legacy modernization programs were less complex, and thus less costly, and incorporated mature technologies onto new production aircraft. Accurately identifying and comparing the total cost of each modernization program is difficult. Each of the programs, including the F-22A, initially managed and funded modernization as a continuation of its baseline program, so modernization costs and funding were not clearly identified in selected acquisition reports or budget documents.