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1Repair Windows errors before they cause bigger problems2Scan for outdated or missing drivers - takes under a minute3Clear out junk files and repair common Windows errorsThe United States builds its nuclear-powered submarines through an industrial system centered on two private shipbuilders: General Dynamics Electric Boat and HII’s Newport News Shipbuilding. The Navy contracts with those yards, while a nationwide supplier base provides everything from raw materials to manufactured components. The Navy’s often-cited production ambition—one Columbia-class and two Virginia-class submarines each year—is a target, not a rate the industrial base has consistently achieved.
That distinction explains the central problem. Government reviews find that submarine demand already exceeds the two yards’ available workforce and infrastructure. Larger designs, supplier bottlenecks, aging facilities, labor shortages and weak measurement of investment results all make the planned 1+2 pace difficult to sustain.
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Where U.S. nuclear submarines are built
Only two U.S. shipbuilders construct nuclear-powered submarines: General Dynamics Electric Boat and HII’s Newport News Shipbuilding. They are the prime contractors responsible for assembling and delivering the boats under Navy contracts. Their work depends on a much wider industrial network that supplies steel and other raw materials, propulsion and electrical equipment, valves, castings, electronics, machinery and thousands of manufactured parts.
The U.S. Government Accountability Office (GAO) describes this arrangement as a supplier base rather than a single-company production line: “These shipyards use a network of suppliers, known as the supplier base, to provide a range of items, from raw materials to manufactured items.” (GAO-25-106286, 2025.)
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Public sources do not establish a complete, current map showing which yard performs every module or construction task for each submarine class. It is therefore more accurate to describe Electric Boat and Newport News as the two nuclear-submarine builders supported by a national supplier network, rather than to assign unverified work packages to one yard or the other.
How the production system works
1. The Navy sets requirements and funds the programs
The Navy defines the submarine classes it needs, negotiates contracts with the shipbuilders and funds construction through the defense budget. It also finances industrial-base projects intended to expand facilities, equipment, supplier output and workforce capacity. The Navy’s Maritime Industrial Base program presents the desired ability to deliver one Columbia and two Virginia submarines annually by 2028, but that statement describes a capability objective, not a historical delivery average. (U.S. Navy, 2025.)
2. Shipbuilders engineer, fabricate, assemble and test
The prime yards turn design requirements into submarine sections and complete boats. Work includes precision fabrication, welding, outfitting, installation of propulsion and electrical systems, integration of combat and navigation equipment, testing, certification and delivery. Nuclear construction requires specialized procedures, qualified personnel and strict quality controls; a delay in one component or production step can affect an entire sequence of assemblies.
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3. Suppliers manufacture the industrial “long tail”
Thousands of suppliers provide materials and equipment to the two yards. A supplier may be several tiers removed from the final shipbuilder, which makes schedule visibility and quality assurance difficult. If a small manufacturer loses experienced workers, needs a new machine or cannot finance expansion, the effect can appear later as a shipyard delay.
4. The Navy and GAO monitor progress
Program offices track cost, schedule, engineering changes and supplier performance. GAO audits whether the Navy and Department of Defense have reliable information to manage the work. Those oversight findings matter because money allocated to a supplier or facility does not automatically demonstrate that submarine throughput has increased.
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What the Navy’s “1+2” submarine goal means
The 1+2 objective means one Columbia-class ballistic-missile submarine plus two Virginia-class attack submarines per year. The classes perform different fleet missions, so the target combines two production lines rather than three identical boats. GAO reported that serial production of one Columbia per year was planned to begin in fiscal year 2026 while the Navy maintained a goal of two Virginias annually. (GAO-25-106286.)
The goal should not be presented as achieved output. A 2025 Department of Defense report citing Navy information said Virginia production was running at 1.13 submarines per year in 2024 against a stated requirement of 2.0. (Department of Defense, 2025.) One year’s rate is not a complete production history, but it shows the gap between the planned objective and demonstrated capacity.
| Measure | What the source says | How to interpret it |
|---|---|---|
| Navy objective | 1 Columbia-class and 2 Virginia-class submarines annually | A desired production capability, not proof of achieved deliveries |
| Virginia rate reported for 2024 | 1.13 boats per year versus a stated need of 2.0 | Reported production performance for that period, not a forecast |
| Columbia serial-production plan | One Columbia per year planned from fiscal year 2026 | A schedule objective subject to design, supplier and yard constraints |
| Industrial workload estimate | Work equivalent to five Block IV Virginia submarines annually from fiscal year 2026 | A workload-equivalence estimate, not five submarines to be delivered |
Why planned production exceeds current capacity
GAO found that demand for submarine production has exceeded the infrastructure and workforce capacity of both Electric Boat and Newport News Shipbuilding. (GAO-25-106286.) The problem is not simply a shortage of final-assembly berths. It includes design workload, supplier production, specialized trades, factory space, heavy equipment, inspection capacity and the time required to train workers.
Larger submarines increase the workload
Columbia is the largest U.S. submarine. Virginia Block V is also larger than earlier Virginia designs because of the added Virginia Payload Module. The Department of Defense estimated that the combined design and construction burden would require production equivalent to five Block IV Virginia submarines each year beginning in fiscal year 2026. That figure measures industrial workload: a larger boat consumes more labor, material, engineering and supplier capacity even when the number of hulls delivered is lower.
One late component can disrupt a long sequence
Submarine construction is highly interdependent. A shipyard can have welders and assembly space available yet still wait for a specialized component, engineering approval or rework decision. Because sections are built, outfitted and tested in sequence, late work may force resequencing, overtime or changes to later boats.
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Capacity takes years to create
New buildings, cranes, machine tools and test equipment require design, procurement, installation and qualification. Nuclear shipbuilding also requires experienced supervisors, welders, electricians, pipefitters, engineers and inspectors. Hiring a person is faster than developing the experience needed for complex work, so a sudden expansion can initially reduce efficiency while new employees learn.
Columbia schedule and cost performance
Columbia-class construction has faced measurable lead-boat problems. GAO’s analysis of January 2022 through May 2023 found that cost and schedule performance for the first submarine consistently missed targets, and the trends had not improved through early 2024. (GAO-24-107732.)
A later GAO assessment reported that the first Columbia was at least one year late and would incur hundreds of millions of dollars in additional cost. (Department of Defense, 2025; GAO-26-109068.) These are findings about the lead boat and cited reporting periods; they should not be turned into a precise current delivery date for every Columbia submarine.
Lead ships are unusually difficult because they introduce new designs, tooling, procedures and training. Even so, recurring cost and schedule variance signals that the Navy needs better control of engineering changes, supplier performance, production learning and reporting.
Supplier investment: billions spent, results still hard to measure
Different GAO reports use different scopes for submarine-industrial-base funding, so their figures should not be added together. GAO reported that the Navy had received more than $2.6 billion since 2018 for supplier-base investments in the Columbia program context. The later GAO-26-109068 report said the Department of Defense had invested more than $10 billion in the submarine industrial base since fiscal year 2018. The broader figure includes a wider set of activities and is not a simple extension of the $2.6 billion number. (GAO-24-107732; GAO-26-109068.)
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GAO also found that the Navy had not consistently defined the information needed to determine whether supplier investments increased production or generated savings. Without a baseline, a funded machine or facility can be counted as an accomplishment even if output, lead time or quality does not improve.
For fiscal year 2025 awards, a structured digital intake process asked applicants to explain how proposals would contribute to the 1+2 construction goal and to provide return-on-investment measures. GAO reported that some recommendations on cost estimation and supplier-investment measurement were marked implemented by 2025, while recommendations involving earned-value-management variance analysis and oversight of outsourced work remained open in the page’s 2026 status. (GAO-24-107732.)
Independent reader supportYour contribution helps us test, update, and keep practical guides available for everyone.Workforce, facilities and equipment
People are the limiting resource as well as the physical plant. GAO identifies aging facilities and equipment, limited space and the loss of experienced workers as constraints. Shipyard representatives also cited wages as a factor in hiring and retention. (GAO-26-109068.)
Recruitment and training
Navy and industry efforts include recruiting new workers, expanding training, retaining existing employees and reaching students through K–12 outreach. These programs can enlarge the future labor pool, but they do not immediately replace workers who leave with decades of nuclear-shipbuilding experience.
Retention and pay
Keeping qualified workers matters because turnover removes tacit knowledge and forces yards to repeat training. GAO reported that a 2025 contract modification included wage enhancements for existing nuclear-shipbuilding contracts. That action addresses one reported hiring and retention factor, but the report does not establish that labor constraints have been solved.
Infrastructure and space
Submarine yards need specialized buildings, cranes, docks, machine tools, inspection areas and storage. Expanding one part of the yard can create a bottleneck elsewhere if material flow, testing or workforce access does not expand at the same time. Aging equipment can also increase maintenance downtime and reduce predictable throughput.
How the two submarine programs compare industrially
| Axis | Columbia class | Virginia class |
|---|---|---|
| Fleet role | Ballistic-missile submarine program | Attack-submarine program |
| Planned rate discussed in the sources | One boat annually in serial production from fiscal year 2026 | Two boats annually |
| Size and workload | Largest U.S. submarine | Block V is larger than earlier Virginia designs because of the Virginia Payload Module |
| Current evidence of risk | Lead boat at least one year late with hundreds of millions of dollars in additional cost reported | 2024 rate reported at 1.13 boats per year against a stated need of 2.0 |
| Industrial implication | New-design learning, supplier and schedule risk concentrated in the lead program | Higher planned serial volume plus a larger Block V workload competes for the same workforce and infrastructure |
The comparison does not mean the programs are interchangeable. They share shipyards, suppliers, trades and facilities, so weakness in one area can affect both classes, while their missions and design requirements remain different.
What government oversight can and cannot show
Navy and Department of Defense announcements describe objectives, initiatives and planned investments. GAO reports test whether those plans are supported by reliable cost, schedule and performance information. A Navy statement that a program is working toward 1+2 therefore answers “what is intended,” while a GAO finding about capacity or variance answers “what has been demonstrated or measured.” Both are relevant, but they are not the same kind of evidence.
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What this means for future submarine deliveries
The United States has a concentrated but extensive production system: two nuclear-submarine builders, a nationwide supplier base, specialized facilities and a workforce that takes years to develop. The Navy’s 1+2 objective is strategically important, yet current evidence shows a gap between that ambition and demonstrated capacity. Closing it requires synchronized progress in shipyard infrastructure, supplier output, engineering stability, workforce recruitment and retention, and transparent measurement of whether each investment improves throughput.
Readers asking where U.S. submarines are made can therefore answer “at Electric Boat and Newport News Shipbuilding,” but that is only the visible end of the process. The boats depend on thousands of upstream companies and workers, while the largest risks arise when demand for all of those resources exceeds what the industrial base can provide at the required pace.
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