It's the way US procurement works. They cry doom and gloom to congress to get money. Lobbyists and direct political donations, get the money. In this case to refit their yards. They have said they can normally do 2 a year. With covid and lifetime parts that failed and no spares. They took them from current builds. This also slowed things up to the 1.5 a year. So the real base is 2 a year, but they have previously said they can do 3, if they get the money.