Accounting Office
rt to the Chairman, Committee on ce, and Technology, House of
TECHNOLOGY TRANSFER Japanese Firms i Involved in F-15
i Coproduction and Civil
| Aircraft Programs | IiMf 146965 | Sune 1992 | | | | |
TRESTRICTED Not to be released outside the General Accounting Office unless specifically approved by the Office of Congressional
Nelatons 554013 RELEASED
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Background
Untted States
General Accounting OMice ‘Washington, D.C 20548
‘National Security and
International Affaire Diiaton 246081
June 10, 1992
‘The Honorable George E Brown, J Chairman, Committee on Science, ‘Space, and Technology House of Representatives
Dear Mtr Chairman:
In response to your request concerning the impact of US, mitary aircraft ‘cooperative programs with Jape, we exaintied the Japanese aerospace Industry's production, employment, market share, and trade ‘decade We also (1) obtained information on Japanese aerospace over the past
‘companies’ participation inthe US ell jet airerat industry specifically in Boeing and Douglas Airerat Company! programs, (2) identified Japanese ‘companies participating in the F-16 copreduction program, and
(@) determined which of those were involved inthe development and ‘production of Boeing and Douglas civil aera
‘Coprodustion na US government prograin implemented elther by a _governmentto-government arrangement or trough specific licensing ‘arrangements by desigiated commercial firms These programs enable foreign entities to acquire the know-how to manufacture or asseble, repair, msintain, and operate all or part ofa specific defense tem or ‘weapon, communteation, or support syste
1978, the United States and Japan signed a coproduction agreement for the F-15 fighter aircraft MeDonnell Douglas Aircraft Corporation, the US prime contractor an the F-15, entered into a commercial licensed production agreement with Mitsubishi Heavy Industries, transferring
‘manufacturing and technical expertise Other US, F-15 contractors also entered into separate, individual licensing arrangements with Japanese ‘companies fo the production of numerous P-15 systems and subsystems In 1982, we reported that through miltary aera eoproduction, the United States was assisting Japan in developing its civil aireraftindastry, “The FEx codevelopment program highlighted U.S concerns about the
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US Suppliers’ Role in an Increasingly International Aerospace Industry
Results in Brief
transfer of military echuoiogy to Japan for posible commercial application On the other hand, some studies indicate that transfers of nulltery aerospace technologies to civil alreraft maybe decreasing, a8 csi airraft must be proven sefe and efficient, while for miliary sera, ‘emphasis is on ultra-high performance
“The 1901 Council on Competitiveness report on aerospace deseribed the ‘world aerospace industry 3s comprised ofa few large, integroted producers that draw fromtan extensive, varied, and inereasingly
‘international supper base The report deseribed the industry structure as ‘three-tier supplier network pyramid, which inthe United States includes an estimated 15,000 companies,
Since World War I the United States has possessed a commanding lead in aerospace However, with the globalization of neospace produetion an ‘marketing, the need to spread inancial risk in the development of new civil erat ad the narrowing ofthe U.S tecnologtal lead, foreign
producers are becoming increasingly competitive with US subcontractors ‘nd suppliers In adeition, Boeing and Douglas Aiteret Company, the two Fenaiing US, prime chi jt producersfntegratoes, face serious
{international competition from the European Airbus consortium,
‘The US aerospace supplier and technology bes salvo decining Various sfovernment and academic sources report a narrowing of the US technological lead in aerospace, and event reports by the Joint Chiefs of ‘Staff and the Courcil on Competitiveness state that dhe U.S supplier hase in aerospace is sheinking ‘Although Japanese aerospace market share remains snall when compared {that ofthe United States and Europe, the Japanese aerospace industry thas grown aver the past decade in terns of production, employment, marketshare, and trade The Japanese government, in concert with Industry, is tareting aerospace for development and promotion, with particlar emphasis on incernatonal relationships and supply of| ‘components and parts inthe world market
————————-=
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Japanese Aerospace Industry Growth Over the Past Decade
Ban
‘We identified 32 Japanese aerospace finns participating in Boeing and Douglas cvilarcraft programs eter as partners or major subcontractors Boeing's relatonship with Japanese companies was more extensive than tat of Douglas Japanese firms have been awarded contrats to supply Heme to Boeing and Douglas civil aircraft but not always solely onthe basis of price, delivery, andor quality competitiveness Other factors, such as Informal understandings that subcontract business would be placed in SJapan and program financing and partnerships, aso led o ei izcra ‘contract awards to Japanese suppliers Awarding contrac in this way may ‘not be unique inthe aerospace industry Eighteen ofthe 40 Japanese ‘companies we identified as being involved inF-15 coproduction are also involved in development andor production of US ii airraft
‘Many factors contribute tos company's competitiveness in supplying aeraft pants and components No single, causal relationship exis Dbebween Japanese companies’ pariipation inthe F-15 coproduction program and their involvement inthe production and development of Boeing end Douglas eli airplanes However, experience with U.S ritary and civil aieraft programs, along with evolving comnereal and fnancist relationships, has contalbuted to Japanese companies ablity to obtain contract awards in U.S, evil alrerat prograns
‘Since World War I, when the Japanese aircraft industry was forced to disband, the industry has been gradually rebuilt rough international licensing agreements and Japanese government industil targeting Although ts market share reais sal in comparison to that ofthe United States and Eazope, the Japanese aerospace industry has expanded ‘throughout the 1980s in terms of production, employment, market share, and trade
According to Japan's Ministry of international Trade and Industry (MIM), “Japanese airraft production inereased from $1.2 bilion in 1980 t0 '35.2 bon in 1988 and to $5.5 hilion sn 1990 in current dollars (see fg TLL in app 1; and from $2.3 billion in 1980 to $4.9 bilion in 1988, in constant 1985 dolar (se fig IL2 in app I) Also, Japanese space Industry production increased fom $558 milion to $2.0 billion in current
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Continued Japanese Government Support
dollars between 1980 and 1980 Overall, employment in the Japanese ‘airraft industry increased by ® percent from 26,373 in 1980 to 28,810 in 1090; space industry employment increased by 61 percent from 6,013 in
1980 10 9,690 in 1980 On the basis of statistics cotmplled bythe Comission of the European Communities, we calculated thatthe SJapanese aerospace marketshare increased from 1.6 percent in 1980 to ‘36 percent in 1980."
Japanese aerospace inports were primarily from the United States, which has maintained a trade surplss with Japan Inthe sector* According t MP statistics, pans alreraft imports overall increased from $1.3 billion in 1880 to $4.2 billion n 1990 in current dolas, Japanese aerospace exports were also predonninantly to the United States Exports of Japanese aircraft Droduetsinereased from $81 mllon in 1980 0 $590 milion in 1990n ‘current dollars (see fig 1.3 in app I) Between 1880 and 1989, Japenese space industry exports grew from $113 milion to $378 malion in eurrent dollars; space imports during thal same ime pertod increased from $3110 million to $24 milion n current dolla,
“The Japanese AiveraftIndusiry Counel was formed in 1986 and subsequently established guidelines forthe aircraft industry The eounel reported these guidelines to the Ez and emphasized parseipaion in joint, International aireraft development projects to spread risk in the hgh costs ‘of aerospace development; the improvement of basic and applied research; ‘the strengthening of marketing capability, andthe collection of foreign and
‘domestic information on arerat markets and technology The counct ‘denied technology tarts for international development projets, Including alloys and composite materials, new wing designs, and electronic navigation equipment,
Altiough the Japanese aerospace industry currently doesnot have the ability to independently develop, produce, and market lange civilian lreraf, Japanese government and industry have goals of becoming ‘gnifcane players in the global aerospace industry—particulary inthe
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Trang 7
Japanese Focus on —_ International Relationships, ‘Components, and Parts
‘pars and components market The Japanese government has targeted the aerospace industry for development and, aceording to U.S, government analyses, hopes to make aerospace one of Japan's majo industries in the 2st eet Japanese aerospace rms receive government subsidies and encouragement to participate in international, high technology aerospace projects U.S Department of Defense officials noted thatthe Japanese ‘government and industry are also targeting alreraf engines,
11986, Japan’ Aircraft Industry Promotion Law of 1958 was amended to ‘encourage Intemational collaborative efforts in aerospace The amended law emphasized promoting the aireraft industry, tmproving the industry's ‘technology, and furthering international exehaige." The aw indlcates that Japan seeks to acquire state-of the art aerospace technologies through ‘ncernational joint ventures,
‘The Japanese governunent provides conditional loans to Japanese ‘aerospace fim participating overseas programs These loans are offered at below-market rates and requite repayment oni ifthe programs are successful, For example, according toa US, governunent analysis, the Sit made 8106.2 mullon avallable for Japanese companies participating in
the Boeing 767; government-supported interest rates may be extended for ‘an estimated $822 milion fr loans on the Boeing 777
“apanese firms are competing with US firms as suppliers of pans and components to U.S elvilairerak A Commerce Department analysis Indicates that U.S aircraft manufucturers may increasingly select Japanese ‘over domestic subcontractors through the 1990s,
In adtion to supplying parts and components to U.S and European irratt producers, Japanese aerospace companies are involved in a variety ‘of international cooperative programs ppartilpate in cooperative ei jt and engine programs with The Boeing in serospace Japanese firms
Trang 8Japanese Participation in US Civil Aircraft Programs
‘The Boeing Company
Programs
‘ThintyAwo Japanese aerospace firms participate in The Boeing Company sand Douglas Airera Company civ sircraft programs either as partners oF inajor subcontractors The US.-Japanese industry relationship is more ‘extensive wth Boeing than with Douglas Japanese firms have been
‘swarded contracts to supply tems to Boeing ad Douglas civil aireraft bt not always solely ou the basis of price, delivery, andor quality
competitiveness considerations Other factors, suchas informal
{understandings thet subcontract business woul be placed in Japan and program financing and parinerslpe, also led to civil aireraf contract ‘wards to Japanese supplies Awarding contracts in this Way may not be unique inthe aerospace Industry
“The Boeing Company the world’s largest producer of chet transport alreraf, has a longstanding, close, and cooperative relationship with ‘Japanese aerospace matfacturers, The Socely of Japanese Aerospace ‘Companies reported that Japanese companies supply 7 percent of the ‘pats and components furnished to Boeing by companies outside the ‘United States Japanese fuselage panes tal cones, and landing gear structures; parts and produets on Boeing planes inlude arerat
‘components for atr data itera reference systems, displays, and ‘communications systems; actuators and valves; and aluminum and lightweight composive materials Dats on major and relxier Japanese suppliers to Boeing are shown in table U1 in appendix I
Boeing representatives cited various reasons for developing and ‘malntaning thelr relationship Japanese investment of capital to share risk in the high eosts of aeplane with the Japanese, Reasons included
‘development; maintaining access vo Japan's airplane market; drawing on “Japanese expertie a production capabilites to contribute to overall product quality; and preventing the Japanese from cooperating with
Boeing's compettors Boeing noted that It had been success in galing access tothe Japanese market, One Japanese alsin purchased more Boeing 787s than any other non-US airline, aad Boeing expected Japan to contin tobe the largest non-US buyer of Boeing arerat through the ‘year 2008
‘Three of the largest Japanese aerospace firms formed a consortium to participate in the development and production ofthe Boeing 767 and 777 Jetliners, On the Boeing 767 and 777 programs, Mitsubishi Heavy Industries, Kawasaki Heavy Industries, and Ful Heavy Industries invest in,
develop, and produce a certain percentage ofthe jets airframes (13
Trang 9
Boeing Procurement Process
percent forthe 767 and about 20 percent forthe 777) Two other
Japanese companies, Shin Metwa and NIPPI (fapan Aireraft Mannfacturing ‘Company), ae designated “prime subcontractors tothe three hesvy industries on the 777 programa Other linkages have been forged between
US and Japanese companies to develop and produce Boelng alrerat systems For example, Japan Aviation Electroies supplied 80 percent of the accelerometers for Honeywell's navigation instruments on Boeing planes and was selected to partiipate in development of the 777 Liguid ‘Crystal Display Units In adition, the Japanese Fiz, Tein Seiki, has teamed with Leat-Siegler on the 777 ight control system
In 1981, more than 260 Japanese personnel wee in Seattle working on the Boeing 777 program; according to Boeing, 187 ofthese personnel were aerospace engineers, The Japanese engineers used Bocing’s ‘eompuceralded design equipment in the development of Weir designated
subsystems for the Boring 777, Boeing officals stated thatthe Japanese feryaneers were restricted from access to certain clements of the computer-aided design system, At the time of our work, Boeing was
establishing computer data links with the key Japanese companies participating in the 777 program, Thirty Boeing engineers were in Japan ‘working onthe Boeing 777
Generally, Boeing applies alte" competitive bidding process Boeing selects a numberof firms itkows tobe capable of meeting specifications for required components and parts and requests from these firms price ad ‘quality information on the designated components Te compa the ‘chooses a supplier fom among the bidders Boeing officials stated that they generally selected suppliers on the basis of qualty and price They ld ‘ot generally open compoutents and pasts contracts again for bids unt the supplier had provided the quantity designated in the contract,
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Douglas Aireraft Company Programs
Douglas Procurement Process
‘With respec to coniracing wih Japanese companies, the tire main 767 and 777 program participants and many ether Japanese companies supply parts and components to Boeing aireraft Japanese program participants (Cpartners" on the 777) are guaranteed contracts within the purview ofthe 167 and 777 program agreements ln other eases, Japanese companies, parteipate ina limited, competitive bidding process with other Boelng suppliers
Boeing oftcals stated that Japanese buyers of Boeing cil atecrat dd not ‘exert pressure onthe company to ensure that Japanese products were sed in the ets they purchased They added that they had never entered into an
offset" arrargerent wih te Fapanese Boeing officals stated that thelr Sseleetion of Japanese suppliers was voluntary and of mutual benefit to Posing and the Japanese However, Boing ofiils would not certify that for each tem procured from Japanese companies, no U.S fir could supply the same quality tem ata lower price They speculated thet in some situations, no comparable U5 alterative existed or was available
Douglas Alreraft Company has a mor
suppliers than Boeing, Japanese suppliers to Douglas programs are listed in table IL.2, appendix IL Like Boeing, in dealing with Japanese suppliers, Douglas hopes for increased accesso capital, labor, and overseas
‘markets, Douglas has not engaged in program partnerships with Japanese firma
According to company officials, Douglas generally uses limited ‘competitive bidding process in supplier selection The company surveys various suppliers to determine whether they are qualified to produce an em according to applicable standards, After ientifping a rinimum of wo sources of equal capability, Douglas issues requests for proposals or ‘quotes While price is of primary importance in selection, qualry ad <elvery considerations may prevail Dough officials tol us, however, {hat foreign purchasers of cv aircraft often place local content ‘ons tina cml men pac ey ain
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Japanese F-15
Coproducers in U.S Civil Aireraft Programs
requirements” and requirements to purchase unrelated items on Douglas ‘conditions for sales
Inthe case of Japan, while there are no formal offset arrangements with ‘specific goals tobe achieved, there san understanding that Dougns will place subcontracts with Japanese fins in connection with analreraft, purchase On the bass of this understanding, Douglas sometimes executes
directed procurements to Japanese suppliers ao, Japanese wtlines have requested tha speifc, ber furnished equipment produced in Japan be placed on the aircraft they purchase Finally, due to other business felationships, Douglas tres to consider Japanese suppliers whenever possible,
‘We did not systematically examine Douglas’ contract award process but ‘ound a casein which the primary reason for selecting a Japanese supplier had been a directed procurement After 8 years, however, Douglas was ‘ecompeting the contract for this item because of price and quality concerns
"We could not obtain comprehensive data on Japanese companies participation in ther evil or miltary alrera coproduction programs We denied 40 Japanese compantes participating in te F-15 coproduction program (se app IV) Eighteen of these companies ate slo involved in production andor development of Boeing und Douglas cli alrraft (see tables I and IL2, app I, Some major or frstter Japanese suppliers 10 US cli aireraf programs do not appear to have been involved in the
16 coproduetion program
‘We recognize that some technologies and performace characteristics of "millary and envi aera systems may difer and that a variety of factors contribute toa company’s ability to compete or oherwise participate in chil aireraf programs, Nevertheless, we found 10 cases in which
corresponding ites were coproduced by Japanese companies in the +], program and supplied by the same Japanese companies to US evil
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‘lrcrat Brake components, actuation devices, insruinentation, landing fear, alrframe strictures, generators, and ighs were the items we ‘denifed For example, the Japanese firm Tein Seiki received technical and manufacturing asistance from a (3S, frm to produce F-15 actuators.* ‘Teijn Seiki now supplies actuators to Boring and Dougls esl jets and
recently won the contrac for Boeing 777 actuators over a US fim that hha previously supplied actuators to Boeing aera Sumitomo Precision, the Japanese firm coprodicing the lading gear onthe F-15, sa major
‘aubcontractor on the landing gear for Boeing eli jets Shinko Electric ‘coproduced the electric generator sytem on the F-L5 and supplies motors land generators to Boeing evi siterat,
‘The Japanese firms involved in these eases are noted in the tables in appendixes Ill and IV, Because comprehensive data ox Japanese
partieipants in the F-15 and U.S el aireaft programs were not svailable, additional eases of corresponding items may exis
However more direct link can be drawn between copraciction of US, raltary aircraft rotary arerat parts and components A 1991 U.S Ait Force survey of and Japanese firms’ compeiiveness for producing potential U.S and Japanese suppliers fr the FS-X fighter codevelopment program showed thatthe F-15 and other US miliary aieraf
Coproduction programs contributed to the competitiveness of many “Japanese companies for FSX subcontracts For example, Japanese firms ‘ited experience on the F-15 or other U.S eoproguction programs to show ‘they were capable of and competitive for supplying heads-up displays, brakes, actuators, generators, accelerometer assemblies, and nuữneroUs ‘other components
Delals of our seope and methodology ae in appendix I As requested by Your sai we didnot obtain formal agency comments on a drat ofthis "eport Portions of a draft were reviewed by agency and industry officials, and their comments were incorporated as appropriate Amore
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‘determination that public disclosure ofits contents containing Licensing
information would be restricted by state
‘As arranged with your office, less you publicly announce the contents of| ‘this report earlier, we plan no further distribution until 16 days after is ise date Atha ane we wil send copies to other interested ‘congressional committees, We wil also make copies available to others upon request,
Please contact meat (202) 275-4128 f you or your staff have any questions concerning this report Major contributors were Thoms Schulz, Associate Director, asi M D'Agostino, Assistant Director atl BealustorinCharge; and Teresa M Hathaway, Evaluator, National Seeunty and InertationaAfars Division,
Sincecely yours,
Sng & kl, a
Director, Securty and International Relations Issues
Trang 14Contents Letter 1 Appendix I v1
Scope and Methodology
Appendix II Japanese Aircraft 6
Tables ‘Table U2: Douglas Alrcratt Corporation ‘Table ILL; The Boeing Company 20 18
Figures Ngư 1: Japanese Airerat Production: 1980-1990 Figure 2: Japanese Aref Production: 1980-1988 16 " ‘igue 3; Japanese Aircraft Trade: 1980-1990 18
‘Abbreviations
Trang 16IE nt lata
Scope and Methodology
‘We examined various indicators relating tothe progress ofthe Japanese erospace industry from 1980 through 1990, including production, ‘employment, and trade, as well es the Japanese netoapaceindusty's sarket share We identified Japanese companies involved in coproduction| ofthe F-15 fighter aircraft and the ems they were producing We further ‘obtained date from Boeing and Douglas Aireraft on Japanese major and fisttier suppliers to their civil aircraft programs and the ters they supplied Because Bocing would not provide data on all its suppliers, we didnot investigate Japanese production activity atthe second and third ers, Also, as greed with Commitee staff, we éid not inelude in our scope Japanese companies involvement in US civil et engine development and production Because of our lited acces to records, we did ot examine Individual contract awards in the Boeing and Douglas eli airraft
programs Furthermore, we did not include in our scope Japanese ‘owmership of or equity in US aerospace suppliers
‘We obtained information onthe Japanese aerospace industry from the Departments of State, Defense, and Commerce; te Federal Aviation ‘Administration; the International Trade Comission; the Library of ‘Congress and the Embassy of Japan in Washington, D.C For information ‘on the global and U.S aerospace industries, we reviewed geporte from the ‘Counce on Competitiveness, the Joint Clef of Sta, the Defense Science Board, he Aerospace Industries Association, the Massachusetts Institute of Technology Working Papers an Industrial Productivity, the Socety of Japanese Aerospace Companies, and the intemational and industry press
Statistical dats on the Japanese aerospace industry were based on Japanese Ministry of international Trade and Endustry documents; data on market shace were taken from the Commission ofthe European Conununile" documents We converted the data using annual exchange rates from the Economie Report ofthe President and industy deflator trom the Commission ofthe European Communities’ 1990 report,The European Aerospace Industry: Trading Postion and Figutes
‘We obtained information on Japanese participation in U.S civil arcrat programs from Booing's Comunercial Airplane Group in Seat
‘Washington, and Douglas Airerat Company in Long Beach, Califia We ‘oblained additional information trough Department of State ane
Trang 17
Be ato
Douglas Airerat provided comprehensive data on purchase orders from “Japanese supplies for its civil airraft programs However, Boeing did not Drovide data on Japanese suppliers it was wiling Wo certify es
‘comprehensive, A a rest, we tallored the information supplied by Douglas to show a level of detal comparable to that provided by Boetg
‘We compiled information on Japanese partcipanis in F-15 coproduction using documents obtained from the U.S Air Force, the MeDonmell Douglas ‘Alreraf Corporation, and cther sources We contacted various US Fe15,
‘contractors for additional information and to verify the data we obtained ‘We reconciled data from the various sources vo generate the information Listed in appendix 1V fn this report, we did not use information derived from license applications without consent from the U.S companies involved
Due tothe lack ofa single comprehensive source of information on agreements for F-15 coproduction with Japan as well as information ‘oblained from Department of Defense officials, we didnot capture all the “Japanese firms and items involved inthe F-15 coproduelion program It Addition, we di not have insight into all subcontracting by Mitsubishi Heavy Industries onthe F-15 in Japan The main agreenent activity performed
between Mitsubishi and MPDonnell Douglas gives Mitsubishi the right 10 subcontract hut does not identify the Japanese subcontractors they have engaged
(Our analysis of Japanese F-15 coprodueers that are also partners or frst-tier supplier to U.S civil aircraft programs may be limited by the possibilty that some ofthe Japanese F-15 eoproducers may have heen ‘subjeec to mergers or scquisluons oF may have changed their names since the F-15 coproduction program began in 1978, This analysis was also limited by the factors previously discussed, We did not determine the ‘degree of similarity between the F-15 items eoproduced andthe tems actually supplied to US civil aircraft
We conducted our work between August 1991 and February 1992 in accordance with generally accepted government auditing standards except as noted above,
Trang 18open _ -= —=
Japanese Aircraft Industry Production and Trade
Figure: Japanese Avera ae
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Appendix
Major Japanese Participants in U.S Civil Aircraft Programs
‘Tablet: The Bosing Company
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Trang 23ApeendkV
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Trang 25
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