10-Point Plan to Rebuild the Royal Navy’s Capabilities with a Defence Budget at 5% of GDP

The United Kingdom’s Royal Navy (RN) faces challenges in maintaining its global influence due to years of constrained budgets and reduced fleet size.

The UK government has committed to spending 5% of GDP on national security by 2035. However, this target only encompasses 3.5% on core defence, with 1.5% on non-defence resilience measures including infrastructure, energy security, cyber defences, and economic shock absorption.

Although the UK government has claimed that the UK is on a “war footing” it is quite clear that it is anything but, with capabilities still being removed without any replacements even specified, and a failure to invest in long-lead items. This contrasts with the pre-World War 2 government which placed considerable orders in the mid-1930s, such as for the five King George V battleships which were ordered in 1936-37 and not commissioned until 1940-42, well after the start of hostilities.

This article considers what would be possible if the actual defence budget increased to 5% of GDP, approximately £140 billion annually (based on 2025 UK GDP estimates). This plan outlines a comprehensive strategy to rebuild the RN’s capabilities. The focus is on ships, submarines, Royal Fleet Auxiliary (RFA), weapons, aircraft/helicopters, drones, and recruitment/retention to restore the RN as a world-class naval force.

1. Expand Surface Fleet with Multi-Role Vessels

Objective: Increase the number and versatility of surface combatants to project power and ensure global presence.

- Allocate £20 billion over 10 years to construct 12 additional Type 26 frigates and 10 Type 31 (or Type 32) frigates, enhancing anti-submarine warfare (ASW) and general-purpose capabilities.

- Develop a new class of 6 multi-role destroyers (Type 45 successors) with enhanced air defence and land-attack capabilities by 2035, costing £12 billion; given the amount of time many of these vessels have spent out of service (over eight years for HMS Daring), it should be possible to extend the planned retirement date for them by many years.

- Equip all new vessels with modular mission bays for drones, special forces, or humanitarian aid, improving operational flexibility.

This expands the surface fleet to 30 major combatants, enabling sustained deployments in the Indo-Pacific, Arctic, and Atlantic.

2. Strengthen Submarine Capabilities

Objective: Bolster the submarine fleet for deterrence and covert operations.

- Accelerate the AUKUS SSN-A programme, delivering 8 nuclear-powered attack submarines by 2040, with £25 billion invested in design and construction.

- Upgrade the 4 Astute-class submarines with advanced sensors and Tomahawk Block V missiles by 2030, costing £3 billion.

- Develop a next-generation unmanned underwater vehicle (UUV) programme for mine countermeasures and intelligence gathering, with £1 billion allocated.

This ensures a robust submarine presence for strategic deterrence and ASW.

3. Modernise the Royal Fleet Auxiliary (RFA)

Objective: Enhance logistical support for global operations.

- Procure 6 new Fleet Solid Support (FSS) ships to replace ageing RFA vessels, costing £2.5 billion, with deliveries by 2032.

- Introduce 4 multi-role replenishment ships with enhanced medical and disaster relief capabilities, costing £1.5 billion.

A modernised RFA will sustain carrier strike groups and amphibious task forces worldwide.

4. Upgrade Weapons Systems

Objective: Equip the RN with cutting-edge weaponry for multi-domain threats.

- Invest £5 billion in hypersonic missile development for surface ships and submarines, deployable by 2035.

- Expand the Sea Viper air defence system across all Type 45 destroyers and new destroyers, with £2 billion for upgrades and additional interceptors.

- Procure 500 Naval Strike Missiles (NSM) for frigates and destroyers, costing £1 billion, to enhance anti-ship and land-attack capabilities.

These upgrades ensure the RN can counter advanced threats, including hypersonic missiles and swarm drones.

5. Enhance Carrier Air Wings

Objective: Maximise the operational capability of HMS Queen Elizabeth and HMS Prince of Wales.

- Purchase 48 additional F-35B Lightning II jets, increasing the total to 96 by 2035, costing £12 billion; all F-35Bs should be allocated to the Fleet Air Arm.

- Upgrade all remaining Merlin helicopters with advanced ASW suites and extend their service life to 2040, with £1.5 billion allocated.

- Develop a carrier-based uncrewed combat air vehicle (UCAV) programme, costing £2 billion, for strike, reconnaissance and AEW missions.

This ensures carrier strike groups can deliver air superiority and precision strikes globally.

6. Integrate Advanced Drone Systems

Objective Leverage unmanned systems for enhanced situational awareness and combat effectiveness.

- Deploy 50 Protector RG1 drones for maritime surveillance, costing £1.5 billion, integrated with RN command systems.

- Develop a swarm drone capability for Type 26 and Type 31/32 frigates, with £1 billion for 1,000 small drones for electronic warfare and decoy roles.

- Introduce autonomous surface vessels for mine countermeasures and patrol duties, with £800 million allocated.

Drones will extend the RN’s reach and reduce risk to personnel.

7. Expand Amphibious Capabilities

Objective: Strengthen the RN’s ability to conduct expeditionary operations.

- Replace HMS Albion and HMS Bulwark with 2 new amphibious assault ships by 2035, costing £3 billion, with enhanced drone and helicopter integration.

- Procure 12 new landing craft for the Royal Marines, costing £500 million, to support littoral operations.

- Invest £1 billion in training facilities and equipment for the Royal Marines, focusing on Arctic and jungle warfare.

This ensures the RN can project power ashore in contested environments.

8. Recruitment and Retention Initiatives

Objective: Build a skilled and sustainable workforce.

- Launch a £500 million recruitment campaign targeting STEM graduates and underrepresented groups, aiming to increase personnel to 40,000 by 2030.

- Offer retention bonuses and improved pensions for critical roles (e.g., submariners, engineers), costing £300 million annually.

- Expand training academies with virtual reality simulators and cyber warfare courses, with £1 billion invested in infrastructure.

A motivated and well-trained workforce is critical to operational success.

9. Invest in Cyber and Electronic Warfare

Objective: Protect RN assets and disrupt adversaries in the digital domain.

- Establish a dedicated naval cyber warfare unit, costing £1 billion, to defend against cyberattacks on ships and networks.

- Equip all major vessels with advanced electronic warfare systems, such as next-generation jammers, with £1.5 billion allocated.

- Develop AI-driven threat detection systems for real-time situational awareness, costing £800 million.

These capabilities will safeguard the RN against emerging digital threats.

10. Foster International Partnerships and Innovation

Objective: Leverage alliances and technology to enhance capabilities.

- Deepen AUKUS collaboration for technology sharing, particularly in AI, quantum computing, and submarine technology, with £2 billion in joint R&D.

- Partner with NATO allies to co-develop interoperable systems, such as missile defence, saving £1 billion through shared costs.

- Establish an RN innovation hub to fast-track emerging technologies, such as directed-energy weapons, with £1.5 billion over 10 years.

International cooperation and innovation will amplify the RN’s global impact.

Budget Allocation Summary

- Surface fleet: £32 billion

- Submarines: £29 billion

- RFA: £4 billion

- Weapons: £8 billion

- Carrier air wings: £15.5 billion

- Drones: £3.3 billion

- Amphibious capabilities: £4.5 billion

- Recruitment/retention: £2.8 billion

- Cyber/electronic warfare: £3.3 billion

- Partnerships/innovation: £4.5 billion

Total: £107.1 billion over 10 years, within the £140 billion annual defence budget at 5% of GDP.

Implementation Timeline

- 2025–2028: Begin construction of Type 26/31/32 frigates, FSS ships, and recruitment campaigns.

- 2028–2032: Deliver initial F-35Bs, upgraded Merlins, and cyber warfare units.

- 2032–2035: Commission new destroyers, amphibious ships, and SSN-A submarines.

- 2035–2040: Fully integrate drones, hypersonic missiles, and UCAVs.

Conclusion

This 10-point plan restores the Royal Navy’s ability to project power, deter adversaries, and secure UK interests globally. By leveraging an actual 5% GDP defence budget, the RN can rebuild its fleet, embrace cutting-edge technology, and attract top talent, ensuring it remains a cornerstone of national security and international influence.