What is the Global Combat Air Programme (GCAP)?

The Global Combat Air Programme (GCAP), established in 2022, is an international partnership between the UK, Japan and Italy which will design, manufacture, and deliver a next-generation crewed combat aircraft.

The need for a new combat aircraft

In 2018 the UK Government published its Combat Air Strategy (“the Strategy”). In what it described as “an ambitious vision for the future”, the strategy formally established a new acquisition programme to identify and deliver the next-generation combat air capabilities to replace the Eurofighter Typhoon, which will begin to leave service during the 2030s.

The strategy noted that experience on Typhoon and other multilateral fighter programmes such as Tornado and F-35 had positioned the UK as a world leader in combat air manufacturing. One of its key aims was to retain and develop the sovereign capability to design and manufacture combat aircraft within the UK.

The capability acquisition programme established by the strategy is now referred to as the Future Combat Air System (FCAS). FCAS encompasses the UK’s next-generation combat air capability development, including uncrewed aircraft and weapons. At its heart is a next-generation crewed combat aircraft, commonly referred to in the UK as “Tempest”, which is the capability that the Global Combat Air Programme will deliver.

Which countries are involved?

The Combat Air Strategy made clear that the UK Government intended to collaborate with other countries on the development of its new fighter, as it had with Typhoon. Early exploratory work was undertaken in conjunction with Sweden, but it was with Japan and Italy that the UK eventually formally partnered. In December 2022 the leaders of the three countries signed an agreement bringing the Global Combat Air Programme (GCAP) into existence and announcing that they would work together on delivering a next-generation combat aircraft by 2035.

Treaty and a new organisation

In December 2023, the partnership was given Treaty status and further details were finalised when the Defence Ministers of the three partner countries signed the Convention on the Establishment of the Global Combat Air Programme – GCAP International Government Organisation. The UK Government ratified the Treaty in October 2024.

The December 2023 Treaty established the GCAP International Government Organisation (referred to as the GIGO). It will be headquartered in the UK, with its first CEO from Japan. 

In July 2024 Parliament approved the Global Combat Air Programme International Government Organisation (Immunities and Privileges) Order 2024, enabling the establishment of the GIGO within the UK as an independent international organisation with relevant immunities and privileges.

How much will it cost?

At this stage the unit price of each aircraft and the size of the UK order are unknown, meaning that the total cost of the programme remains unquantified. 

The Ministry of Defence has committed £2 billion to GCAP since 2021 and has budgeted over £12 billion for the programme over the next ten years. Further budget approvals will be required in the 2024/2025 financial year to launch the development phase. According to the MOD, the eventual costs will depend on “the solutions proposed, how efficient the international delivery model is, and our ability to deliver at pace”.

When will it enter service?

Tempest is expected to enter service in 2035.

The programme’s concept and assessment phase is expected to complete in 2025. It will be followed by a design development phase during which the first flight of a demonstrator aircraft is due to take place in 2027.

Parliamentary scrutiny

The Defence Committee published a report on aviation procurement in September 2023, and subsequently launched a follow-on inquiry into future aviation capabilities, including GCAP. The committee did not report before the dissolution of Parliament in May 2024. In October 2024 the Defence Committee decided to continue with its inquiry into future aviation capabilities. The Committee has said it does not expect to hold further evidence sessions on this inquiry.