GAO United States General Accounting Office

Briefing Report to the Chairman, Legislation and National Security Subcommittee, Committee on Government Operations, House of Representatives

May 1991 SUBMARINE COMBAT SYSTEM Status of Selected Technical Risks in the BSY-2 Development

GAO,‘XMTEC-91-46BR

GAO -

United States General Accounting Office Washington, D.C. 20548

Information Management and Technology Division

Results in Brief

B-243941

May 24, 1991

The Honorable John Conyers, Jr. Chairman, Subcommittee on Legislation

and National Security Committee on Government Operations House of Representatives

Dear Mr. Chairman:

At your request, we obtained information on specific hardware and software development risks for the Navy’s AN/BSY-2 combat system (BSY-2). The BSY-2 combat system is being designed to detect, classify, track, and launch weapons against targets for the Navy’s new SSN-21 SEAWOLF nuclear attack submarine. The BSY-2 is planned to (1) enable the submarine to detect and locate targets faster, (2) allow operators to perform multiple tasks and address multiple targets concurrently, and (3) ultimately reduce the time between detecting a threat and launching weapons. The cost for the first BSY-2 system is estimated at $280 mil- lion-15 percent of the estimated $1.9 billion cost for the first SEAWOLF.

As agreed with your office, we determined the status of three technical risk areas identified as critical by the Institute for Defense Analyses (IDA) in its January 1990 report,l and the actions the Navy has taken to mitigate them. Specifically, we examined the Enhanced Modular Signal Processor (EMSP), the database management system, and the computer network. We provided the results of our review in a formal briefing to your office in April 1991. Subsequently, we agreed to prepare this report containing the charts used in the briefing (see app. I). These charts describe the ( 1) IDA-reported risks, (2) potential impacts identi- fied by IDA, (3) IDA recommendations, and (4) current status of the risks and Navy actions to address them.

Most of the risks identified by IDA concerning (1) the immaturity of the EMSP and its inability to meet timing requirements; (2) incomplete database management design; and (3) potentially lengthy network reconfiguration times, still exist. According to IDA, if left unresolved, these risks could significantly impair system development through

‘Assessment of the Development Program for the AN/BSY-2 Submarine Combat System, Institute for Defense Analyses, ~January 1990.

-.- 5243941

increased costs, schedule delays, and degraded system performance. IDA recommended specific actions to mitigate these risks. However, the Navy has not implemented 5 of 6 IDA recommendations.

Background ~-..-- 1

In 1989, IDA analyzed the development program for the BSY-2 combat system2 and identified critical technical risks in the development of the three BSY-2 components. These three components will perform critical functions within the BSY-2 combat system, and any problems experi-

1 !

enced may affect the operation of the entire combat system and the sub- marine itself. EMS’ processes data from most of the submarine’s sensors for transfer to other computer processors and operator displays where i analysis, such as determining the speed, location, and direction of a : target or multiple targets, is performed. EMSP is being newly developed, and will be provided to the B!S’Y-2 contractor as government- furnished equipment. Its first operational use is planned for BSY-2.

EMSP and other system data will be maintained in a database manage- 1 ment system. The database management system will need to store volu- minous navigation and target data for use in analyzing targets and ’ launching weapons. For example, data received by the submarine’s mul- ! tiple sensors is integrated into the database and used by operators to detect, classify, and track targets.

Data will be transferred throughout the BSY-2 combat system by an advanced computer network being developed by the contractor. The net- ’ work will interconnect almost 100 processors and will need to meet stringent throughput and timing requirements in order to achieve all planned BSY-2 capabilities.

As agreed with your office, we did not obtain official comments on a draft of this report. We did, however, discuss this information with agency officials and have incorporated their comments where appropriate.

We performed our work in accordance with generally accepted govern- ment auditing standards between October 1990 and March 1991. We i

I

2This analysis was done at the request of the Office of the Deputy Director of Defense Research and Engineering.

Page 2 GAO/lMTJC91-46BB Status of Selected BSY-2 Technical Risks

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interviewed IDA officials responsible for analyzing the BSY-2 develop- ment program, and Navy and contractor officials responsible for devel- oping BSY-2 and EMS, including the BSY-2 and EMSP program offices and General Electric offices in Syracuse, New York, and Moorestown, New ) Jersey. In addition, we analyzed the IDA report and numerous BSY-2 doc- uments, such as the Software Development Plan, architecture modeling i reports, the Master Test and Evaluation Plan, and various Navy and Defense policies and regulations. While we analyzed the status of the IDA-reported risks, we did not assess the validity of the specific IDA recommendations. i

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As your office requested, unless you publicly announce the contents of this report earlier, we plan no further distribution until 30 days from the date of this letter. At that time, we will send copies to the Secretary of Defense; the Secretary of the Navy; the Chairmen, Senate and House Committees on Appropriations; the Chairmen, Senate and House Corn- mittees on Armed Services; and the Director, Office of Management and Budget. We will also send copies to other interested parties, and will make copies available upon request.

Should you have any questions about this report, please contact me at (202) 275-4649. Major contributors are listed in appendix II.

Sincerely yours,

Samuel W. Bowlin Director, Defense and Security

Information Systems

Page 3 GAO,‘IMTEC91~6BR Status of Selected B&‘-2 Technhml E.&h

Contents

Letter

Appendix I Briefing Charts

A Appendix II Major Contributors to This Report

1

6

36

Abbreviations

EMSP Enhanced Modular Signal Processor GAO General Accounting Office IDA Institute for Defense Analyses IMTEC Information Management and Technology Division

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Appendix I

Briefing Charts

G. Three Areas of Risk Reported by the Institute for Defense Analyses (IDA)

Enhanced Modular Signal Processor (EMSP)

Database Management System

Computer Network

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Appendix I Briefing Charta

GAO EMSP Risks

Immature signal processor

T iming requirements

D ifferent versions of EMSP

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Appendix I Briefing Charts

GAO EMSP Risks Immature S ignal Processor

IDA-reported risks:

4mmature EMSP may experience operational problems not discovered in laboratory testing

@ A utomated software development tools are lacking

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Appendix I Briefing Charts

m EMSP Risks Immature S ignal Processor

Potential impact identified by IDA:

@ U nanticipated bugs may cause delays in developing EMSP and interfacing software components

l Additional staff needed to develop software

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Appendix I Brie- Charta

GAQ EMSP Risks Immature S ignal Processor

IDA recom m endation:

Navy should develop a comprehensive management plan addressing EMSP risks

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Appendix I Briefing Charts

GM EMSP Risks Immature S ignal Processor

Status: Navy has not developed a comprehensive management plan addressing EMSP risks

l EMSP is still under development

l Navy’s original risk m itigation plan called for obtaining initial experience with EMSP on other Navy systems, however, BSY-2 is now first user of EMSP

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Appendix I BrIeflng Charts

L

w EMSP Risks Immature S ignal Processor

Status:

.BSY-2 contractor not responsible for addressing EMSP risks since it is being developed by another contractor for many Navy programs and provided to BSY-2 as government-furnished equipment

Navy must ensure BSY-2 requirements are met

J

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Appendix I Briefing Charts

GAQ EMSP Risks Immature S ignal Processor

Status:

*Contractor is experiencing problems using immature software development tools to debug software, and is expecting delays

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Appendix 1 Briefing Charta

CAQ EMSP Risks Timing Requirements

IDA-reported risk:

EMSP 86-second start-up time does not meet BSY-2 20-second requirement

Potential impact identified by IDA:

EMSP may prevent the entire BSY-2 combat system from meeting tim ing requirements

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Appendix I Briefing Charts

GAO EMSP Risks T iming Requirements

IDA recom m endations:

aNavy and contractor should monitor modification efforts underway to reduce the EMSP start-up time

ONavy should evaluate and report the impact on SEAWOLF m ission effectiveness if tim ing requirements are relaxed

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Appendix I Brie@ Charts

GM EMSP Risks T iming Requirements

Status:

mNavy and contractor are monitoring modifications made to reduce the EMSP start-up time

l Navy has not evaluated and reported the impact of not meeting EMSP requirements on SEAWOLF m ission effectiveness

Page 16 GA0/7MTRC914BR Statma of Selected BSY-2 Technical Rish

Appendix I Briefing Charts

w EMSP Risks T iming Requirements

Status:

*Software modifications have improved EMSP start-up time to 40 seconds--still too slow to meet BSY-2 start-up requirement

aNavy officials now state that the start-up requirement may be waived

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A~.qmdix I Briefing Charts

w EMSP Risks Two Versions of EMSP

IDA-reported risk:

Navy plans to transition to a more advanced EMSP version when it becomes available

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Appendix I Brlefhg Charts

r w EMSP Risks Two Versions of EMSP

Potential impact identified by IDA:

G ignificant costs for retrofitting earlier systems with advanced versions, and for recoding software

@Logistic support may be lim ited since first three BSY-2 systems are planned to be the only users of the initial EMSP version

Page 19 GAO/‘IMTFC9146Bit St&m of Selected W-2 Technical Risks

Appendbt I Briefbg Charts

m EMSP Risks Two Versions of EMSP

IDA recom m endation:

Navy should obtain an independent assessment of BSY-2 EMSP transition plans

Page 20 GAO/IMTEG914BR Staim of selected Bsy-2 Technical Risks

GAD EMSP Risks Two Versions of EMSP

Status: Navy has not obtained an independent assessment of proposed transition plans

+Javy lacks an approved EMSP Transition Plan

*Navy decision on when and how to transition BSY-2 program from initial to advanced version has not been niade

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Appendix 1 Briefing Charts

GAQ Database Management Risk

_~~~~ ~~~

IDA-reported risk:

Database management approach not fully defined

i

Page 22 GAO,‘IMTJG91-&BR Status of Selected BEX-2 Technical Risks

Appendix I Brieilng Charta

GAO Database Management Risk

Potential impact identified by IDA:

@ C oding delays of software components

l Degraded overall system performance if selected system does not meet real-time requirements

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Appendix I Briefing Charta

w Database Management Risk

IDA recom m endation:

Navy should obtain a detailed, critical review of the contractor’s data management approach, including an assessment of the performance requirements and the ability of the system to meet them

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Appendix I BrieAng Charts

w Database Management Risk

Status: Navy has not conducted a detailed, critical review of the contractor’s data management approach

Gontractor has developed a two- pronged approach to manage the system data:

(1) com m ercial system to store, compare, and retrieve some data

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Appendix I Briefing Charts

GAQ Database Management R isk

Status:

(2) contractor-developed data management methods to more quickly store and retrieve other data

Gontractor has not decided which approach to use for some combat system functions

i

t

/

I r

Y

/

i

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Appendix I Briefii Charts

GAO Database Management Risk

Status:

Contractor is determ ining type and amount of data to be stored in various databases

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Appendix I Briefing Charts

Network throughput

Network reconfiguration time

GAJ Network Risks

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Appendix I Briefing Charta

GA3 Network Risks Network Throughput

IDA-reported risk:

Required network throughput may not be achievable

Potential impact identified by IDA:

Network may need to be redesigned to meet throughput requirements; schedule delays may result

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Appendix 1 Brie- Charta

G.. Network Risks Network Throughput

-_ IDA recom m endation:

Navy should obtain an independent assessment of the adequacy of network prototyping

I

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Appendix I Briefing Charts

w Network Risks Network Throughput

Status: Navy has not obtained an independent assessment of the adequacy of network prototyping

@Network prototyping indicates the BSY-2 network design will meet throughput requirements

Page 31 GAO/IMTEG9146BR Status of Selected Bsy-2 Technical Risks ’

Appendix L Briefing Chad

i m Network Risks Network Reconfiguration T ime

IDA-reported risk:

*Reconfiguration times that appear adequate on the prototype network may be excessive on the actual production network

l Long reconfiguration times needed to reestablish the network after a failure may result in excessive “down-time” and impair operators’ use of the system

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Appendix I Briefing Charts

GAO Network Risks Network Reconfiguration T ime

Potential impact identified by IDA:

Network may need to be redesigned to achieve required performance; schedule delays may result

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Appendix I Briefing charts

- ~~~

m Network Risks Network Reconfiguration T ime

IDA recom m endation:

Navy should obtain an independent assessment of the adequacy of network prototyping

Page 84 GAO,‘IMTEG91-M3BR Status of Selected BSY-2 Technical Risk@

Appendix I Briefing Charta

GAO Network Risks Network Reconfiguration T ime

Status: Navy has not obtained an independent assessment of the adequacy of network prototyping

OReconfiguration has not been demonstrated on the prototype network, but contractor is modeling reconfiguration and plans prototype demonstration in the future

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Page 36 GAO,‘IMTEG9i46BR Status of Selected BSY-2 Technical Risks

Appendix II

Major Contributors to This Report

t Information Andrew Patchan Jr., Project Manager Management and Gwendolyn Dittmer, Deputy Project Manager

Technology Division, Edward R. Tekeley, Technical Advisor

Washington, DC. Heather A. Winand, Computer Scientist

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