The Navy was thus directed by the Department of Defense (DoD) to develop such an aircraft. The DoD wanted an aircraft that could replace a variety of attack bombers, including the A-6 Intruder, F-111 Aardvark, and even newer aircraft like the F-117A Nighthawk and F-15E Strike Eagle. The program would be developed in total secrecy, and would take advantage of the new technology of passive electromagnetic stealth, much like the F-117 Nighthawk and the B-2A Spirit. It would carry a two-man crew, have the same levels of stealth as the B-2A, and carry a new generation of precision munitions (some possibly with nuclear warheads) guided by the new NAVISTAR Global Positioning System (GPS). Plans had the first units being assigned to the Navy and Marine Corps, with the Air Force getting their A-12's later in the production run.
The Navy had problems with the A-12 from the very start. First, thanks to its lack of interest in the Have Blue program, the Navy knew very little about stealth-a problem that was magnified by the strange rules of "Black" programs, which required them to almost reinvent the technology from scratch. USAF contractors were not allowed to transfer their experience with the F-117 and B-2 programs to the Navy and to potential contractors for the A-12. Even companies like Lockheed and Northrop, who already had stealth experience, were restricted from transferring their corporate knowledge to their own teams developing A-12 proposals. Furthermore, the Navy program management lacked experience in taking a small "Black" research project and turning it into a large, multi-billion-dollar production program. From the beginning, progress was slow and costs were high.
The winning entry in the A-12 competition came from the General Dynamics/McDonnell Douglas team, utilizing a strange-looking design that had been under development by General Dynamics since 1975. Because of its triangular flying-wing shape, it was quickly nicknamed "the flying Dorito." Designated the A-12 Avenger II (after the famous World War II torpedo bomber), it was designed to carry up to 10,000 lb/4,535 kg of ordnance in internal weapons bays. It also would have had enough unrefueled range to hit targets in Eastern Europe if launched from a carrier in the Mediterranean Sea. Unfortunately, the A-12 would never make it off the shop floor, much less onto a carrier deck.
From the start of the A-12 engineering and development effort, there were disagreements between the Navy program managers and the contractor team over a number of issues. The plane was too heavy, for one thing, and there were difficulties creating the composite layups that made up the A-12's structure. Costs escalated rapidly. While the Navy has never officially acknowledged this, it appears that every other major Naval aircraft program was either canceled or restructured in order to siphon money to the troubled A-12. What is known is that during the time when the A-12 was suffering its most serious developmental problems, the upgraded versions of the F-14 Tomcat fighter and A-6 attack bomber were canceled outright, and several other programs took severe budget hits. The situation reached the critical point in 1990, when the A-12 and a number of other major aircraft programs were publicly reviewed in light of the recent fall of Communism in Eastern Europe. By this time the Avenger program was a year late and perhaps a billion dollars over budget. Even so, in his major aircraft program review presentation to Congress, then-Secretary of Defense Dick Cheney declared the A-12 to be a "model" program.
Nine months later, he radically changed his tune. Though what the DoD and Navy were thinking at this time remains something of a mystery, the pending commitment of an additional half-billion dollars to the A-12 program certainly had much to do with the decision. Whatever the reason, Secretary Cheney ordered the program canceled in January of 1991, just as the Desert Storm air campaign was getting under way. So sudden was this action that several thousand General Dynamics and McDonnell Douglas employees were simply told to put down their work and go home. All told, the Navy had spent something like $3.8 billion, and did not have a single plane to show for it.[46] Even worse was the total wrecking of the Navy's aircraft acquisition plan, which had seen so many other new aircraft programs canceled to support the A-12.[47]
It did not take long for the fleet to begin suffering the consequences of the A-12 debacle. The Navy tried to make a fresh start with a program called A/FX (Attack/Fighter, Experimental), which was designed to replace the A- 6 and the F-14 fleets, both of which were aging rapidly. A/FX would have made use of the systems developed for the A-12, but would not attempt to achieve the level of stealth planned for the Avenger. Unfortunately, in the tight budget climate of the early 1990's, there was little support or money for the A/FX program, and it died before a prime contractor team was selected. Another blow to the naval aviation community came at the beginning of the Clinton Administration, when Secretary of Defense Les Aspin, as a cost-cutting measure, decided to prematurely retire the entire fleet of A-6E/ KA-6D Intruder attack/refueling aircraft. Within months, the entire medium-attack community was wiped out, leaving the F/A-18 as the Navy's only strike aircraft, and only a single high-performance Naval aircraft was in development: an evolved/growth version of the Hornet. With nothing else on the horizon, Naval aviation was going to have to bet the farm on a machine called the F/A-18E/F Super Hornet.
New Paradigms: The Road Back
By late 1995, naval aviation had hit rock bottom. Military analysts were beginning to believe that the Navy had forgotten how to develop and buy new weapons and aircraft. In fact, many were questioning if the Navy should let the USAF buy their aircraft, since they seemed so much better at it. The real doomsayers were projecting the end of naval aviation as we know it sometime in the early 21st century, when the existing aircraft would wear out and have to be retired. But these people did not know the true character of naval aviation leadership. Though the Navy's aviation problems were deadly serious, in 1996 naval aviation took the first steps toward putting itself back on a healthy course.
Even before he became Chief of Naval Operations, Admiral Jay Johnson was already working toward this goal. He started by appointing two of his most trusted officers, Rear Admirals Dennis McGinn and "Carlos" Johnson (no relation to the CNO), to key leadership positions as the heads of NAVAIR and the Naval Aviation Office in the Pentagon known as N88. Soon they started to shake things up. They began to promote a new vision for naval aviation, in direct support of the Navy's "Forward from the Sea" doctrine, and to develop a realistic long-range plan for upgrading Naval aviation and developing new capabilities. The two men also saw the need to put a few good naval aviators in key positions within the Pentagon so that the procurement program problems of the past would not be repeated. They knew that people with real talent would need to be in some of the key staff jobs to help get new ideas into naval aviation.
As a consequence of this kind of thinking, the Navy Strike Warfare Directorate (N880-the group that defines future specifications and capabilities for new naval aircraft and weapons systems) came under the inspired leadership of a talented F/A-18 Hornet driver, Captain Chuck Nash. While he probably could have gone on to command his own CVW, he chose the good of the service over his own ambitions, and took charge of N880 in the Pentagon.
46
As if all this was not absurd enough, there was the problem that DoD and the Navy improperly canceled the A-12 program, claiming that the GD and MDC had somehow "defaulted" on the contract. Normally, such cancellations are of government "convenience," allowing the contractors to recover their losses and costs for shutting down the program. However, DoD and the Navy contended that the contractors had failed to do their jobs properly, and thus actually owed the government around $1.3 billion in money already paid. As might be imagined, this rapidly became a matter for high-priced lawyers, and resulted in an expensive show trial that the government decisively lost. While the government and contractors continue arguing over the details, it looks like the Navy will have to cough up something like $3.8 billion over the roughly $4.8 billion already spent to pay for its improper cancellation of the program.
47
The shame of it is that the design of the A-12 appears to have been sound, and while it would have been expensive at between S150 and $175 million a copy, that seems quite reasonable when compared to the Lockheed Martin F-22A Raptor stealth air-superiority fighter, which is priced almost identically! 51 To put an ironic perspective on this decision, General Charles "Chuck" Horner, who commanded U.S. Air Forces in Desert Storm, has told me that the only Navy strike aircraft he valued during the Desert