F-35 Joint Strike Fighter (JSF) Program: Background and Issues for Congress
Congressional Research Service
Summary
The administration’s proposed FY2010 defense budget requested about $10.4 billion in research
and development and procurement funding for the F-35 Joint Strike Fighter (JSF) program. This
would fund the procurement of 10 F-35As for the Air Force, 16 F-35Bs for the Marine Corps, and
four F-35Cs for the Navy.
The administration’s proposed FY2010 defense budget also proposed terminating the F-35
alternate engine program, which is intended to develop the General Electric/Rolls-Royce F136
engine as an alternative to the Pratt and Whitney F135 engine that currently powers the F-35. The
Obama administration opposes further funding for the alternate engine program and has
threatened to veto the FY2010 defense authorization or appropriation bill if either “would
seriously disrupt” the F-35 program. The F-35 alternate engine program has emerged as a major
item of debate on the FY2010 defense budget.
FY2010 defense authorization act: The conference report (H.Rept. 111-288 of October 7, 2009)
on the FY2010 defense authorization act (H.R. 2647/P.L. 111-84) authorizes funding for
procuring a total of 30 F-35s in FY2010, as requested. The report authorizes $430 million in Air
Force and Navy research and development funding for continued development of the F136
alternate engine, and $130 million in Air Force advance procurement funding to begin F136
procurement. Section 131 of the act requires a report on the procurement of “4.5”-generation
fighters that is to include, among other things, “a discussion regarding the availability and
feasibility of procuring F-35 aircraft to proportionally and concurrently recapitalize the Air
National Guard during fiscal years 2015 through fiscal year 2025.” Section 217 requires future
DOD budgets to provide separate line items for the F-35B and F-35C within the Navy aircraft
procurement account and the Navy research and development account. Section 244 requires, for
the period 2010-2015, an annual Government Accountability Office (GAO) report on the status of
the F-35 program.
FY2010 DOD appropriations bill: In lieu of a conference report, the House Appropriations
Committee on December 15, 2009, released an explanatory statement on a final version of H.R.
3326. This version was passed by the House on December 16, 2009, and by the Senate on
December 19, 2009, and signed into law on December 19, 2009, as P.L. 111-118.
The explanatory statement includes $6,840.5 million for 30 F-35s in 2010. Additionally, the
statement contains $430 million in Navy and Air Force research and development funding for
continued development of the F136 alternate engine, and $35 million in Air Force procurement
funding designated for the alternate engine program.
F-35 Joint Strike Fighter (JSF) Program: Background and Issues for Congress
Congressional Research Service
Contents
Introduction ...............................................................................................................................1
In General............................................................................................................................1
Alternate Engine Program.....................................................................................................1
Background ...............................................................................................................................2
The F-35 In Brief ..................................................................................................................2
In General.......................................................................................................................2
Three Service Versions....................................................................................................3
Alternate Engine Program.....................................................................................................5
JSF Program Origin and Milestones ......................................................................................7
Procurement Quantities .........................................................................................................8
Planned Total Quantities .................................................................................................8
Annual Quantities ...........................................................................................................9
Program Management ...........................................................................................................9
International Participation ...................................................................................................10
In General.....................................................................................................................10
Friction over Work Shares and Technology Transfer ......................................................13
International Sales Quantities and Schedule...................................................................16
Cost and Funding................................................................................................................17
Total Program Acquisition Cost.....................................................................................17
Prior-Year Funding........................................................................................................17
Unit Costs.....................................................................................................................18
Manufacturing Locations ....................................................................................................18
Proposed FY2010 Budget ...................................................................................................18
FY2010 Funding Request..............................................................................................18
Proposed Termination of Alternate Engine.....................................................................19
Issues for Congress ...................................................................................................................20
Alternate Engine Program...................................................................................................20
Summary of Arguments ................................................................................................20
Administration Perspectives ..........................................................................................22
GAO And Other Perspectives ........................................................................................28
Mandated Studies of 2007 on F-35 Alternate Engine .....................................................35
Recent Developments Concerning F135 Engine ............................................................37
Recent Developments Concerning F136 Engine ............................................................49
Operational Risk ...........................................................................................................54
Size of F-35 Engine Production Run .............................................................................55
Industrial Base ..............................................................................................................55
Relations with Allies .....................................................................................................56
Planned Total Procurement Quantities .................................................................................58
Potential for Further Cost Increases and Schedule Slippage .................................................60
May 2009 Administration Perspective ...........................................................................75
March and May 2009 GAO Perspectives .......................................................................77
Affordability and Projected Fighter Shortfalls .....................................................................79
Implications for Industrial Base...........................................................................................81
Legislative Activity for FY2010 ................................................................................................82
Summary of Quantities and Funding ...................................................................................82
FY2010 Defense Authorization Act (H.R. 2647/P.L. 111-84) ...............................................83
http://www.fas.org/sgp/crs/weapons/RL30563.pdf