In 1949, the Soviet Union developed a preliminary design for a missile submarine under the designation Project P-2 [pl], intended to strike land targets.[6] The design was developed by CKB-18 (later the Rubin Design Bureau). The submarine was projected to have a surface displacement of nearly 5,400 tons and to carry 12 R-1 missiles (Soviet versions of the V-2) and Lastochka cruise missiles.[7] However, the program encountered numerous issues that the designers could not overcome,[3] including, among others, problems with stabilizing the missile prior to launch.[8] In the early phase of developing sea-to-land missile systems, the Soviet Union regarded this kind of weapon solely as a tactical asset without strategic significance.[3]