SDSR
2015 – Issues, analysis and recommendations going towards the review
Budget
Army
Royal Air Force
Royal Navy
What to expect?
In general
terms, it is thought that this SDSR will bring “good news”. As I wrote on Twitter
back in October, its publication was pushed to the right to more closely
aligned with the Spending Review (25 November), but with release “a few days
before” (that was my guess, and we now know it’ll be 2 days, as the SDSR is due
for release on the 23rd) to show that, “no, It is nothing like 2010”.
In broad
terms, the SDSR will re-affirm the targets for Future Force 2020. No cuts are
expected, and instead there should be some good news. How many, and how
actually good, we don’t yet know.
I’m
moderately optimistic. The fact that we can expect overall stability is a
welcome change in itself, but I’m still skeptic about the good news. If the
SDSR doesn’t settle satisfactorily the MPA gap, which I consider the most
problematic, I cannot consider it a success.
One thing I try
to keep in mind and a warning that I feel I must give is: don’t expect too much
detail. The yearly Equipment Programme document shows just how well this
government is using indetermination to protect its ability to cut at leisure
behind the curtains. What does the Equipment Plan include, exactly? How many
vehicles? For delivery when? We don’t know. The document says nothing until
firm contracts have been signed, so that anything not yet firmly on contract
can be stealthily cut, pushed to the right, descoped, changed.
I expect the
SDSR to be just as indecisive and vague whenever it suits the Treasury’s
interests. For example, I do not expect to be given details about the plans for
purchasing F-35s, other than a confirmation of the 48 needed for the OCU and
the first two squadrons.
Main Gate 5,
the next big programme decision point, is scheduled for 2017 and I honestly can’t
imagine this government telling us much before that date.
The purchase
of 20 Protector RPAS to replace the current 10 Reaper will also not be detailed
before Main Gate in early 2016, I’m afraid. Until then, we are unlikely to
learn much about what exactly they’ll be like, or what impact they will have on manpower, infrastructure and number of squadrons (currently, there's 2 squadrons operating 10 Reapers).
In general, I expect plenty of questions to remain unanswered.
Some
programmes are however on the move, or expected to move on with the SDSR. There
is even some optimism in the press about reversing some more of the 2010
madness. The following summary shows where we are, what we know, and what
rumors are floating around.
Airborne troops and helicopters
16 Air Assault Brigade is re-subordinated
to the Land Forces, leaving Joint Helicopter Command. In the process, it “loses”
some pieces: the Apache regiments remain as Attack Helicopter Force under JHC.
7 REME battalion splits into two, with 8 Field Company (Para) re-subordinating
to 13 Air Assault Support Regiment RLC to continue delivering equipment support to the paras on the field and the aviation coys (73 Av Coy now in
Yeovilton to support the Wildcat fleet, the other two in Wattisham, aligned
with the two Apache regiments) staying
under JHC as 7 REME battalion. All should be done by the end of this month. The Eagle symbol retires with dignity, and the beloved Pegasus returns.
The split of
7 REME was in my list of suggested changes to 16 Air Assault Brigade, as well
as the separation of the helicopters from the troops. Of course, I called for
more ambitious changes, with 8 Field Company being at least doubled into a
(small) battalion better suited to support the force generation cycle of 16X
and with the army and RAF helicopter squadrons reorganized into real aviation brigade(s).
I did not expect it to actually happen, at least not in one go, but one can
hope. The restructuring of 16X is, at least in my opinion, following the right
path.
The army is
taking control of the work to determine what comes after the Medium Stressed
Platform to allow the parachuting of heavy equipment and vehicles. An attempt
to find a stop-gap solution by adapting the MSP for use on the C-130J seems to
have sadly been cancelled, leaving the present airborne forces badly
handicapped. An handicap that will stay for a good few years, until a new
platform and the A400 are ready for operations.
The US Type V
platform remains on the list of possible solutions, but there’s reportedly a
500 kg problem still for using it with Jackal. The employment of Jackal with
the airborne has been trialed during exercises in the US, and the vehicle has fared very
well, delivering decisive firepower and faring better than the Humvees employed by the US. However, the impossibility of parachuting the Jackal into battle is a limit, and
even when air landing from the C-130, the Jackal can’t just charge into the
fight right away: the weapon on top needs to be re-installed after landing due
to the dimensional limits of the C-130’s cargo door and hold.
It is also to be regretted that there are no plans to retain a small force of light, well armed, tracked armoured vehicles. Those would add immensely to the ability to react swiftly and to bring armoured fire support even in the most hostile territories.
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| Right as the US Army resurrects ideas for a light tank capable even of being airdropped, with BAE showcasing a renewed M-8 Buford, the UK has no plan to retain a squadron of light combat vehicles. I think Ajax is a good replacement for CVR(T) in the armoured brigades, but i also see the enduring need for a small unit equipped to enter a distant theatre quickly and support the reaction force even on the worst terrain. |
A bit of good news came from Joint Warrior 15-1, which saw the debut of RAF C-17 in tactical role, with it
being employed in Rapid and Follow-On Air Landings. Finally! As I’ve said more
than once, the UK has paid big money for a strategic cargo with great tactical
capabilities: you paid for them, now use them. I hope we will see airdrops
becoming part of the C-17’s routine as well.
 |
| A capable replacement for the Medium Stressed Platform is key to keeping the airborne task force viable. |
Meanwhile, the MOD has begun the
process for upgrading 25 Gazelle
helicopters with GPS, traffic avoidance system and a new VHF radio. The upgrade
will be carried out by Gama Engineering Ltd, and should be completed by August
2017. It has to be assumed that the Gazelle OSD is no longer 2018, and that the
thorny issue of its replacement will be pushed to the right by a good few
years. The Gazelle remains in use with 667 (Development and Trials)
Squadron and 671 Squadron as part of 7 (Training) Regiment at AAC Centre Middle
Wallop; in 665 Squadron, part of 5 Regiment at Joint Helicopter Command Flying
Station Aldergrove, Northern Ireland; and 29 (BATUS) Flight as part of the
British Army Training Unit Suffield (BATUS) in Canada.
The SDSR
should confirm the plan to upgrade 50 Apache
helicopters to Block III standard, but details of how, where (Boeing or AW?) and
when are most likely going to come out only in March 2016 when the Main Gate decision is planned.
Army vehicles
The 10 Years
Equipment Plan, 2015 edition is, as was to be expected, entirely devoid of
details, dates, numbers, but it still provides some interesting pointers: both ABSV and MRV-P are included in the plan. The ABSV has been definitively
separated from the Warrior CSP and will be, on achieving Main Gate, a new
Category A programme in its own right. Unfortunately, we might have to wait for
2017 before Main Gate is reached. Entry into service might have to slip as well
as a consequence, from 2020 to sometime into the 2020s. ABSV is a key
programme, as it is needed to replace the ancient FV432 and complement the
(insufficient) number of Warriors with 40mm gun. The effectiveness of the
armoured infantry battalions is in no small measure connected with ABSV.
A curiosity:
if the Equipment Plan is not just messing up numbers, the Warrior Section
Vehicle becomes FV520 after the CSP (now is known as FV510) and the Infantry
Command sub-variant becomes FV521 (was FV511).
The
Equipment Plan confirms thinking that the MRV-P will require a 4x4 and a 6x6
vehicle. The requirement, albeit over many years, runs into the thousands of
vehicles, but the funded MRV-p project for now is expected to cover only 500
troop carriers, 78 ambulances and 27 recovery vehicles. Main Gate is expected
in 2017. The hope is that the MRV-p does not become another orphaned programme,
abandoned after the first phase with the result of creating yet another “mini”
fleet. Rationalization of the current holding of vehicles (from Land Rovers and
Pinzgauers in “close to firing line” roles to Husky, Panther, WMIK) with
successive purchases of MRV-P should be a key army aspiration in along the next
decade.
The Challenger 2 LEP is confirmed as part
of the plans. Main Gate has slipped to the right as the army tries to find
ideas (and money, especially money) to try and address the growing list of
deficiencies. The idea of possibly purchasing a “new” tank as replacement has
quickly been abandoned, but the Army has now officially declared its concerns,
especially about lethality. The powerpack would also need replacing. Whether
the delay to the LEP brings to any increase in its scope, is beyond my guessing
ability at this point: the army knows that upgrading only the fire control
system, communications and sights won’t quite solve the problems, but might still
be unable to do anything about it for lack of money.
The REME
Conference 2015 has seen the announcement that there is a funded plan to procure
an Air Portable Lightweight Recovery
Vehicle that will be used by 16X and 3X Commando. A light recovery vehicle for the Light Protected Mobility Infantry
battalions will also be procured. Finally, the Challenger recovery variant is due to receive unspecified survivability
upgrades, perhaps in line with add-on armor elements of the Challenger 2 LEP.
Note that MRV-P and Air Portable recovery vehicle were grouped together with two more requirements to form the Operational Support Programme (OSP). The other two components were the new Future Protected Battle Field Ambulance (FPBFA) and the Non-Articulated Vehicle – Protected (NAV-P), the vital replacement for DROPS (also known as the vehicle which went out of service at the end of 2014 but remains used in numbers anyway because the army simply can’t do without it for many things). It is not known yet if these will progress as well. The NAV-P certainly should, because it really is an indispensable piece of capability.
Logistic storage capacity
Note that MRV-P and Air Portable recovery vehicle were grouped together with two more requirements to form the Operational Support Programme (OSP). The other two components were the new Future Protected Battle Field Ambulance (FPBFA) and the Non-Articulated Vehicle – Protected (NAV-P), the vital replacement for DROPS (also known as the vehicle which went out of service at the end of 2014 but remains used in numbers anyway because the army simply can’t do without it for many things). It is not known yet if these will progress as well. The NAV-P certainly should, because it really is an indispensable piece of capability.
Logistic storage capacity
In Summer
2016, we should finally get to hear the recommendations for where to re-locate the
vehicle storage capability from the current facilities:
Ashchurch and its sister site in Mönchengladbach, Germany are the 2 major controlled humidity
storage sites preserving vehicles and kit for all three the Services, but
government wants to close both by 2018. Clearly, a decision on where to park
the thousands of items, including armored vehicles up to the Challenger 2, is
an absolute necessity.
A new site,
ideally located close to the Salisbury Plain training area and well connected
by rail to both Marchwood and Brize Norton, is clearly required. It will be
important to see what is actually done in this key area.
 |
| Seeking a new garage |
Work has
already begun on the complementary storage site, the Defence Fulfillment Centre MOD Donnington, which will store and
distribute food, clothing, general and medical supplies in a 80.000 square
meters, two-hangars facility.
VIRTUS
With Phase 1
vests and load carrying equipment deliveries beginning, the Equipment Plan 2015
says that activities have begun for Phase 2 and Phase 3, respectively covering
the development of new, advanced and lighter ballistic plates and man-worn data
and power infrastructure.
Ground Based Air Defence
An anti-UAV capability demonstration
was given earlier this year by SAAB to the MOD: the focus was on an Enhanced Low, Slow, and Small
(ELSS) capability for the Giraffe AMB radar in service. The development of
anti-UAV capability is part of Increment 2 of the Network Enabled Airspace
Defence and Surveillance programme. If the schedule continues to be followed, a
kinetic C-RAM capability should be acquired by 2017.
The MOD is procuring a C4 solution
for integrated air defence of the Falklands and has procured additional Giraffe
AMB radars and an upgrade to the latest standard for those already in service.
The fleet should now count 10 systems between radars delivered and on order.
The Phase 1 of procurement for the
FLAADS(Land) batteries that will replace the current 4 Rapier batteries has
begun with a contract signed in December 2014.
A new EOD robot
A new battlefield UGV for EOD work
is to be procured under Project STARTER. This is curious, since I thought the
recent purchase of the much celebrated CUTLASS would be enough to completely
replace the old WHEELBARROWs, Evidently it is not the case. STARTER is for 56
UGVs with a further 30 options. It is meant for fire line battlefield use, and
requirements include being able to fit within existing EOD vehicles, from Pinzgauers
to Mastiff III EOD.
Training of aircrews
Plans for the complete renewal of
the training fleets for both fixed and rotary wing fleets are progressing, and
surprisingly they are doing so in complete silence. One possible explanation is
that they are keeping the announcement for the SDSR, to present it as good
news.
It is not, at least entirely, good
news: the training fleets will be renewed, yes, but their sizes are expected to
drop enormously, and there will be little to no more capability for training foreign
pilots. Moreover, RAF Linton-on-Ouse is probably going to close as Basic
training is moved to RAF Valley.
The SDSR should, one would expect,
spend a few words to explain what will happen to the base and to the training
fleets.
A “RAF Military Flying Training
School” is expected to stand up in 2017 in RAF Valley, probably replacing both
No 1 FTS (basic training, RAF Linton-on-Ouse) and No 4 FTS (Advanced, RAF
Valley). It can be assumed with quite some confidence that the current 72(R),
208(R) and IV(R) squadrons will drop to just 2.
No 2 FTS has been re-formed in
January 2014 on RAF Syerston to oversee the gliding training programme for up
to 45,000 air cadets of Cadet Flights and Air Training Corps.
No 6 Flying Training School has been
re-formed in September to command and manage the 15 RAF University Air
Squadrons (UAS) located across the UK.
The RAF will rebuild a pipeline for
training mission specialists and “back-seaters”, after losing it in 2011. The
role will be covered by the same small fleet of Phenom 100 jets which will
replace the Beechcraft 200 as training platform for the multi-engine pipeline.The same squadron will cover both roles, unlike what happened up to the SDSR 2010, with 55(R) Sqn using the old Dominie to deliver rear-crew training and 45(R) delivering multi-engine training.
No 3 Flying Training School at RAF
Cranwell currently has 2 squadrons (16(R) and 57(R), with 16 being actually
based at RAF Wittering) for elementary flying training; 115(R) Sqn (RAF
Wittering) for instructor training and refresher courses and 45(R) Sqn for
Multi-Engine training. The impact of the renewal of the fleet might bring
further changes and downsizing.
A new school building, with simulators and hangars for the new rotary
wing training fleet is to be built by 2017 in RAF Shawbury. The details of the
re-organization, and the types of helicopters that will replace Griffin and
Squirrel have yet to be decided.
MPA
The big thing everyone is on the
lookout for. The Sunday Times has recently reported that, just three weeks from
SDSR publication, the secretary of state for defence would have stopped what
was said to be a done deal for the purchase of P-8 Poseidon aircraft, throwing
RAF plans in disarray. According to the Sunday Times, the SDSR will only contain
an indecisive “promise” about addressing the MPA gap, perhaps through some kind
of competition.
This will inexorably delay the
closure of the gap and risks creating significant difficulties: top brass have
warned more than once about SEEDCORN being sustainable only for a limited
amount of time. The programme has recently been given a further 3 year
extension, with 22 out of 36 service personnel involved deployed in the US to
work on the P-8 Poseidon.
If it is true that the Secretary has
suddenly awakened to the high cost of closing the MPA gap only now, after years
of effort clearly targeted at boarding the Poseidon train, we have touched a
new low in MOD history. This thing has been in the making literally for years
now, and it is a bit late to throw everything back to square one.
I’ve talked about the MPA issue at length,
so my comment at this time will be brief: there is the widespread belief that,
due to money and manpower shortages, the MPA eventually acquired by the RAF
will have to be a multi-ISTAR platform, coming, in particular, with a wide area
surveillance, including GMTI capability sufficient for replacing Sentinel R1. In
practice, the assumption is that the MPA and Protector will be accommodated using
the manpower and money currently “occupied” by Sentinel R1, Shadow R1 and Predator
(and then some more, probably).
For the overland surveillance
requirement, the RAF will obviously look at USAF’s own experience, to try and
keep the pace, so to speak. Most contenders in the JSTARS replacement race for
the USAF are offering business jet platforms, size-wise, stepping down from the
current huge size of the JSTARS and effectively following the general direction
the RAF traced with Sentinel R1.
There is one exception: Boeing is
still offering a larger aircraft, the 737-700, which is however a bit smaller
than the 737-800 which is the P-8's base. The small business jet comes with the
advantage of lower costs, higher altitude (good for radar range) and ability to
operate from smaller airfields. However, they also come with constrained growth
margins and with limited space available for systems and crew. The Sentinel R1
itself is an example: it reportedly has a growth margin as small as 700 kg, and
the RAF had to renounce to fitting an air to air refueling probe which had once
been in the requirements.
The main point of interest is,
however, the sensor. The radar to be employed also hasn't been firmly selected
yet, but one of the top contenders is the same AN/APS-154 AAS that the US Navy
will put on part of its P-8 fleet for its own needs, or anyway a derivative
product reportedly going by the “Skynet” name.
It will be interesting to see what choices the USAF makes, but unfortunately the JSTARS recap effort is struggling to get funding and might not progress for a while.
Key considerations to take away are: the AAS radar is a serious contender for the US JSTARS requirement and a 737 platform remains in the game.
The US Navy is working to integrate the AAS on P-8 for increased target mapping capability in the littoral and overland domains. The AN/APY-10 radar already comes with overland functionality and the P-8 as it is now is not any less of an ISTAR platform than other MPAs used over land.
It is actually probably better already.
It will be interesting to see what choices the USAF makes, but unfortunately the JSTARS recap effort is struggling to get funding and might not progress for a while.
Key considerations to take away are: the AAS radar is a serious contender for the US JSTARS requirement and a 737 platform remains in the game.
The US Navy is working to integrate the AAS on P-8 for increased target mapping capability in the littoral and overland domains. The AN/APY-10 radar already comes with overland functionality and the P-8 as it is now is not any less of an ISTAR platform than other MPAs used over land.
It is actually probably better already.
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| P-8 test flight with the AAS "canoe" |
The UK requirement is for a MPA with good ASW capability and, eventually, a wide area SAR / ISAR / GMTI surveillance capability over land. The P-8 with AAS fits the requirement like a glove.
Would it be better to use a pure, high performace MPA and a smaller, higher-flying business jet with AAS for the overland role? Sure. But the UK can't realistically afford to purchase, man, operate and upgrade through life two such fleets and have reasonable numbers to work with. There is a very high risk that, at some point, two such fleets would end up locked in a fratricide struggle for funding and manpower, and one of the two would end up succumbing.
No other MPA on offer in the world has a clear path to a wide area SAR / GMTI capability matching the AAS on P-8; no other MPA in the world has a civilian base of similar airframes and a military, international fleet as large as P-8 has; no other MPA in the world comes with tens of RAF personnel already trained / involved on it; no other MPA in the world has the kind of assured evolution path that the main MPA of the US Navy can expect to have.
There are several offers to create something that does MPA and overland ISTAR for the UK, but they all exist only on paper: the Sea Hercules, the Q-400, a UK evolution of the C-295 or P-1. They are all entirely or partially paper projects with varying degrees of risk and uncertainty.
It is a movie we’ve already seen: it starts with promises of "it'll be cheaper and better too" and then it ends in years of frustrations and cost overruns. Then, a few years later, when it is time for major upgrades, you look around for a partner to share the costs with... and while US and Australia go on with P-8, you end up alone in the room, with a Challenger 2 rifled gun and 2-piece CHARM 3 round at your side, cursing the heavens.
No MPA in the world comes ready for british weaponry, apart perhaps for the P-3 Orion of Norway, the only customer of Stingray ever. I’m not sure if the planned integration was carried out, but even assuming it progressed, is P-3 an option / would the UK take any real advantage? No.
Integration of british-specific
weaponry and equipment it is not a P-8 problem but a UK problem. Some
integration of customer-specific kit is unavoidable whenever a country
purchases an off-the-shelf product. Either that, or purchase of US torpedoes
for P-8 use, whatever is cheaper. India decided to buy the torpedoes along with
the aircraft, for example.
There is a very real risk that
indecisiveness on MPA causes knock-over effects across wider ISTAR planning. If
the RAF does not get P-8, money will probably tend to go to Sentinel R1 to life
extend and upgrade it, leaving even less money available for a later MPA
purchase. The result could end up being a horrible example of half-arsing which
creates more problems than it solves.
Fast Jet squadrons
News reports lately have insistently
mentioned the possibility that the SDSR will announce plans for a third F-35B
squadron and two more Typhoon squadrons, the latter made possible by the
retention of Tranche 1s into the 2020s (at least the first half of them). Under
current plans, the Tranche 1s would be withdrawn from service by 2019 and only
then would the new Tranche 3A be assigned to the squadrons.
I’ve already explained where the
merits of the Tranche 1 solution are. Tornado GR4 would be more useful, but its
retention is more complicated and expensive.
Assuming that the rumor is true and
the Tranche 1s stay, the next big question is where does manpower come from?
The first (and possibly the only) answer
is “from the Tornado fleet”, but settling the details will be complex: Typhoon
will not be ready to take Tornado’s place in action for several years still,
meaning that, if operations against ISIS drag on over the coming years, it will
not be possible to draw down Tornado squadrons and train the personnel to move
on to Typhoon. A transfer from Tornado to Typhoon does not happen overnight.
The process of setting up two more Typhoon squadrons can only happen in concert
with the drawdown of Tornado unless the RAF is not only given the funding for
hiring more people, but manages to boost recruitment quickly and efficiently.
Even if the additional squadrons
will be confirmed by the SDSR (and I certainly hope so), it’ll take quite some
effort (and probably a few years) to find a way to make them happen. Two
additional Typhoon squadrons would be fundamental to avoid falling to just 6
squadrons in 2020, and the Tranche 1 could act as a place holder ahead of
further purchases of F-35s in the second half of the 2020s, when keeping
Tranche 1s any further is likely to become a real problem.
Sentry
There are expectations about the
SDSR bringing good news for the AWACS fleet too. The UK Sentry are lagging
badly behind US and NATO , having not been included in the ongoing upgrade
programmes for lack of money. If the problem is not addressed, the british
Sentry will become more and more obsolescent and of less immediate integration
within allied plans.
This is another area requiring
urgent attention.
And the navy?
The Navy is a major question mark.
It unfortunately starts to sound like it will be shafted once more, to some
degree. Earlier optimism about being granted a manpower increase has been
watered down, and there is still no real indication of what, if any, answers
the SDSR will give about the fate of the River Batch 2, MARS FSS and other
plans.
We are also still waiting to
understand exactly what “in service” will mean for HMS Prince of Wales.
The SDSR will reaffirm the objective of putting into service 13 Type 26 frigates, but in the facts we can only really expect the order for the first batch, of just 3 ships, with a contract expected in early 2016. It seems almost certain that the other two batches of 5 ships each will be left for future parliaments. With the last Type 26 due in service in 2035/36 and with the government having decided to go for a procurement in small successive batches instead of the hoped-for contract for 13, or even the earler "ASW batch" of 8 in one go, we can expect the uncertainty about the final number of frigates to be a fact of life for many years.
No ship is expected to be axed, but probably the out of service date for HMS Ocean will be confirmed as 2018/19 (not necessarily saying it into the SDSR document, of course).
The SDSR will reaffirm the objective of putting into service 13 Type 26 frigates, but in the facts we can only really expect the order for the first batch, of just 3 ships, with a contract expected in early 2016. It seems almost certain that the other two batches of 5 ships each will be left for future parliaments. With the last Type 26 due in service in 2035/36 and with the government having decided to go for a procurement in small successive batches instead of the hoped-for contract for 13, or even the earler "ASW batch" of 8 in one go, we can expect the uncertainty about the final number of frigates to be a fact of life for many years.
No ship is expected to be axed, but probably the out of service date for HMS Ocean will be confirmed as 2018/19 (not necessarily saying it into the SDSR document, of course).
The Navy is very likely to be
asked to provide one carrier group presence in the Gulf with a certain
regularity. This will be particularly welcomed by the US Navy, which probably
wants the UK’s help to be free to focus its own carrier groups more on the
Pacific, without leaving the Middle East uncovered.
The new british base to be built in
Bahrain will help support this role as well as the enduring operation Kipion
presence, with its significant MCM element.
