Additional Cost Transparency and Design Criteria Needed for National Aeronautics and Space Administration (NASA) Projects
Gao ID: GAO-11-364R March 3, 2011
GAO published its third annual assessment of selected large-scale NASA projects. During this assessment we identified several issues that merit NASA's management attention. The federal government faces real fiscal limitations and will have to make difficult choices about upcoming priorities. This reality makes it more important than ever that NASA manage its programs and projects as efficiently and effectively as possible and within a budget that over recent years has remained relatively constant. It will also require that NASA make tough decisions about which projects to fund among core missions in science, aeronautics, and human space flight and exploration. Our work over the past three years has shown that NASA's major projects are frequently approved without evidence of a sound business case--ensuring a match between requirements and resources--and, therefore, cost more and take longer to develop than planned. Our March 2011 assessment found that 13 NASA projects that established baselines prior to fiscal year 2009 had experienced an average cost growth of almost 55 percent, with a combined increase in development costs of almost $2.5 billion from their baselines established at their Confirmation Review. While NASA has taken steps over recent years to help improve its acquisition management through several initiatives aimed at improving cost estimating and management oversight, the overall outcomes of these efforts will take time to become apparent. Based on the findings of our past three assessments, we are recommending that NASA (1) provide increased transparency into project costs to the Congress to conduct oversight and ensure earlier accountability and (2) develop a common set of measurable and proven criteria to assess the design stability of projects before proceeding into later phases of development.
Lack of Transparency Into Early Project Development Costs: Currently, NASA does not provide to the Congress cost and schedule information for projects in the early, critical phases of development and makes this information public only after the projects have been formally approved to enter implementation. Projects establish preliminary cost estimates in the formulation phase; these estimates, however, are for planning purposes only as they enable NASA decision-makers to better manage the overall portfolio of projects. NASA does not report deviations from these early estimates to the Congress. Although progress is not measured or reported externally against early planning baselines, cost growth and schedule delays can and do occur during the formulation phase. NASA's internal analysis of past projects indicates that there is an average of 14 percent growth in the development cost estimates during the formulation phase. Lack of Design Metric May Contribute to Project Cost Growth: During the course of our past three reviews of large-scale NASA projects and other work examining NASA's acquisition management, we found that NASA does not use a common, proven metric to assess design stability before allowing programs to move from the design phase to the test and integration phase of the development process. NASA's acquisition policy does not specify a metric by which a project's design stability is measured at the critical design review. Guidance in NASA's "Systems Engineering Handbook," however, mirrors an accepted best practice that at least 90 percent of engineering drawings should be releasable by the critical design review, although projects are not required to follow this guidance. We have found that if design stability is not achieved at the critical design review, but product development continues, costly re-designs to address changes to project requirements and unforeseen challenges can occur. Nearly all of the projects we reviewed over the last three years held their critical design review without 90 percent of engineering drawings being releasable--failing to meet NASA's Systems Engineering Handbook guidance and our best practices criteria for design stability. The only two projects in our 2011 review that met the design criteria--Orbiting Carbon Observatory-2 and Tracking and Data Relay Satellite Replenishment--to date have experienced no cost growth; however, these projects are based heavily on previous designs. To provide increased transparency into project risks, we recommend that the Direct the Office of the Chief Financial Officer (OCFO) to provide more transparency into project costs in the early, critical phases of development so that the Congress has sufficient information to conduct oversight and ensure earlier accountability. Specifically, the OCFO should provide progress reports for NASA space flight programs and projects in formulation that include information on cumulative prior budget authority and current cost ranges in NASA's annual budget submission to the Congress to enhance the knowledge with which they base funding decisions for NASA. To provide NASA decision-makers with a mechanism to consistently and accurately judge design stability, we recommend that the Direct the Office of the Chief Engineer to develop a common set of measurable and proven criteria, such as the percentage of releasable design drawings, to assess design stability and to allow decision-makers to make more informed, consistent determinations of approval for projects to proceed from the final design phase to the assembly, integration, and test phase of the development process and amend NASA's systems engineering policy, accordingly.
Recommendations
Our recommendations from this work are listed below with a Contact for more information. Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.
Director:
Cristina T. Chaplain
Team:
Government Accountability Office: Acquisition and Sourcing Management
Phone:
(202) 512-4859
GAO-11-364R, Additional Cost Transparency and Design Criteria Needed for National Aeronautics and Space Administration (NASA) Projects
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GAO-11-364R:
United States Government Accountability Office:
Washington, DC 20548:
March 3, 2011:
The Honorable Charles Bolden:
Administrator:
National Aeronautics and Space Administration:
300 E Street, SW:
Washington, DC 20024-3210:
Subject: Additional Cost Transparency and Design Criteria Needed for
National Aeronautics and Space Administration (NASA) Projects:
Dear Administrator Bolden:
Today, GAO published its third annual assessment of selected large-
scale NASA projects.[Footnote 1] During this assessment we identified
several issues that merit your management attention.
The federal government faces real fiscal limitations and will have to
make difficult choices about upcoming priorities. This reality makes
it more important than ever that NASA manage its programs and projects
as efficiently and effectively as possible and within a budget that
over recent years has remained relatively constant. It will also
require that NASA make tough decisions about which projects to fund
among core missions in science, aeronautics, and human space flight
and exploration. Our work over the past three years has shown that
NASA's major projects are frequently approved without evidence of a
sound business case--ensuring a match between requirements and
resources--and, therefore, cost more and take longer to develop than
planned. Our March 2011 assessment found that 13 NASA projects that
established baselines prior to fiscal year 2009 had experienced an
average cost growth of almost 55 percent, with a combined increase in
development costs of almost $2.5 billion from their baselines
established at their Confirmation Review.[Footnote 2] While NASA has
taken steps over recent years to help improve its acquisition
management through several initiatives aimed at improving cost
estimating and management oversight, the overall outcomes of these
efforts will take time to become apparent. Based on the findings of
our past three assessments, we are recommending that NASA (1) provide
increased transparency into project costs to the Congress to conduct
oversight and ensure earlier accountability and (2) develop a common
set of measurable and proven criteria to assess the design stability
of projects before proceeding into later phases of development.
Lack of Transparency Into Early Project Development Costs:
As we have reported, NASA does not provide enough transparency into
costs during early project development to provide the Congress with
sufficient information to conduct oversight and ensure earlier
accountability.[Footnote 3] While there is a need to allow projects a
period of time for discovery and to pursue different concepts,
projects can spend significant sums of time and money before they
enter implementation[Footnote 4] and are held accountable to a formal
baseline. For example, authorized in 2005 and 2006 respectively, the
Ares and Orion projects[Footnote 5] have spent over $9 billion
combined, but neither has reached implementation. Furthermore, the
James Webb Space Telescope was authorized in 1999, reached
implementation in 2008, and spent nearly $2 billion during those 9
years. The Senate Committee on Commerce, Science, and Transportation
recently asked GAO to testify on how NASA can improve its overall
transparency and accountability.
Currently, NASA does not provide to the Congress cost and schedule
information for projects in the early, critical phases of development
and makes this information public only after the projects have been
formally approved to enter implementation. Projects establish
preliminary cost estimates in the formulation phase; these estimates,
however, are for planning purposes only as they enable NASA decision-
makers to better manage the overall portfolio of projects. NASA does
not report deviations from these early estimates to the Congress.
Although progress is not measured or reported externally against early
planning baselines, cost growth and schedule delays can and do occur
during the formulation phase. NASA's internal analysis of past
projects indicates that there is an average of 14 percent growth in
the development cost estimates during the formulation phase.
Additionally, NASA does not report information on the funding that has
been authorized to date for the projects in formulation, as it does in
its annual budget submission for projects in implementation.
Additional insight into costs would provide critical information to
help match project requirements to resources and could better enable
the Congress to make more informed decisions when approving the
projects through the annual appropriations process. Our prior reports
have shown that early insight into project progress can put decision-
makers in a better position to ensure projects have the resources
necessary for success.
Lack of Design Metric May Contribute to Project Cost Growth:
During the course of our past three reviews of large-scale NASA
projects and other work examining NASA's acquisition management,
[Footnote 6] we found that NASA does not use a common, proven metric
to assess design stability before allowing programs to move from the
design phase to the test and integration phase[Footnote 7] of the
development process. NASA's acquisition policy does not specify a
metric by which a project's design stability is measured at the
critical design review.[Footnote 8] Guidance in NASA's Systems
Engineering Handbook, however, mirrors an accepted best practice
[Footnote 9] that at least 90 percent of engineering drawings should
be releasable by the critical design review, although projects are not
required to follow this guidance.[Footnote 10] We have found that if
design stability is not achieved at the critical design review, but
product development continues, costly re-designs to address changes to
project requirements and unforeseen challenges can occur. As shown in
figure 1, nearly all of the projects we reviewed over the last three
years held their critical design review without 90 percent of
engineering drawings being releasable--failing to meet NASA's Systems
Engineering Handbook guidance and our best practices criteria for
design stability. The only two projects in our 2011 review that met
the design criteria--Orbiting Carbon Observatory-2 and Tracking and
Data Relay Satellite Replenishment--to date have experienced no cost
growth; however, these projects are based heavily on previous designs.
Ten projects did not meet the design criteria and, of those, nine had
experienced development cost growth since their baseline.
Figure 1: 2009-2011 Trend of Design Criteria for Projects in
Implementation:
[Refer to PDF for image: vertical bar graph]
Year: 2009;
Projects in implementation not meeting design criteria: 100%.
Year: 2010;
Projects in implementation not meeting design criteria: 100%.
Year: 2011;
Projects in implementation meeting design criteria: 83%;
Projects in implementation not meeting design criteria: 17%.
Source: GAO analysis data provided by NASA.
Note: In our 2009, 2010, and 2011 assessments we reviewed 10, 9, and
12 projects, respectively, that were in implementation and had held
their critical design review.
[End of figure]
Some of the projects we reviewed in the past three years identified
other activities that occurred prior to the critical design review as
evidence of design stability. In addition to releasable engineering
drawings, NASA relies on subject matter experts in the design review
process and other methods to assess design stability. For example, a
panel of experts within NASA provides an assessment of the technical
and programmatic approach, risk posture, and progress against the
project baseline at key decision points to be assured that the project
has a stable design. Some projects rely on using engineering models
and engineering test units to assess design stability. According to
NASA's systems engineering policy, at the critical design review the
project's design should be stable enough to support full scale-
fabrication, assembly, integration, and test.[Footnote 11] However, a
recent study by the National Research Council[Footnote 12] found that
the critical design review milestone for many NASA missions may be
held prematurely--driven by schedule rather than driven by design
maturity. Furthermore, we found that the majority of the 12 projects
in our March 2011 review[Footnote 13] that had held their critical
design review experienced increases in the number of engineering
drawings that were expected after that review--an indication of an
unstable design after the critical design review. This is particularly
evident for the four projects that held their critical design reviews
prior to fiscal year 2009--the projects that entered the test and
integration phase in 2009 or before and have more of a history to
track variances.[Footnote 14] As shown in figure 2 below, the four
projects, on average, had a 107 percent increase in expected
engineering drawings after the critical design review after having
only 36 percent of drawings releasable at that review. The remaining
eight projects that held their critical design review in fiscal year
2009 or later have not reported a large increase in expected drawings.
All of these projects will enter or have entered the test and
integration phase in 2010 or later. A National Research Council study
states that approval of an immature design at the critical design
review can cause problems during test and integration such as
integration difficulties and late design changes. An increase in
design drawings is one indication of late design changes.
Figure 2: Comparison of Design Drawing Increase for Projects with
Critical Design Review (CDR) prior to and since Fiscal Year 2009:
[Refer to PDF for image: vertical bar graph]
Projects with CDR prior to FY 2009:
Average drawings released at CDR: 36%;
Average increase in expected drawings after CDR: 105%.
Projects with CDR in FY 2009 or later:
Average drawings released at CDR: 75%;
Average increase in expected drawings after CDR: 10%.
[End of figure]
Regardless of how stability is measured, consistent, proven, and
quantitative measures employed at the critical design review--such as
the percentage of engineering drawings--can provide evidence that the
design is stable and will meet performance requirements. These
measures can also be an indication to decision-makers that the
requisite knowledge has been attained to allow the project to proceed
in its development lifecycle and better enable them to assess the
performance of individual projects against the overall portfolio of
projects.
Conclusions:
Over the past several years, our assessments have shown that NASA's
major acquisitions have been marked by cost overruns and schedule
delays. Given the multiple priorities that NASA must balance--coupled
with the constraints that will continue to bind the government's
fiscal resources for many years--ensuring that NASA is basing its
acquisition decisions on correct, timely, and consistent information
is critical. While NASA has undertaken several initiatives aimed at
improving its acquisition management, the lack of transparency into
the cost of projects in the early, critical phases of development
leaves the Congress with incomplete knowledge to inform its oversight
and ensure earlier accountability. While there is a need to allow
projects a period of time for discovery and to pursue different
concepts, particularly highly complex efforts, inadequate transparency
into project progress for what sometimes amounts to 5 or more years
can preclude effective oversight and accountability and make it even
more difficult to stop projects that are not on track to meet the
agency's goals with available resources. Finally, without a standard
design metric to measure the projects' progress at crucial points in
the development life cycle, NASA cannot be assured that its decisions
will result in the best possible return on its investments.
Recommendations for Executive Action:
To provide increased transparency into project risks, we recommend
that you:
* Direct the Office of the Chief Financial Officer (OCFO) to provide
more transparency into project costs in the early, critical phases of
development so that the Congress has sufficient information to conduct
oversight and ensure earlier accountability. Specifically, the OCFO
should provide progress reports for NASA space flight programs and
projects in formulation that include information on cumulative prior
budget authority and current cost ranges in NASA's annual budget
submission to the Congress to enhance the knowledge with which they
base funding decisions for NASA.
To provide NASA decision-makers with a mechanism to consistently and
accurately judge design stability, we recommend that you:
* Direct the Office of the Chief Engineer to develop a common set of
measurable and proven criteria, such as the percentage of releasable
design drawings, to assess design stability and to allow decision-
makers to make more informed, consistent determinations of approval
for projects to proceed from the final design phase to the assembly,
integration, and test phase of the development process and amend
NASA's systems engineering policy, accordingly.
Agency Comments and Our Evaluation:
In written comments on a draft of this report, the Deputy
Administrator of NASA partially concurred with our first
recommendation and concurred with our second the recommendation.
NASA's comments are reprinted in the Enclosure.
NASA partially concurred with our recommendation to provide more
transparency into project costs in the early, critical phases of
development in order to provide the Congress sufficient information to
conduct oversight and ensure earlier accountability. While NASA agreed
that clarity is needed into life-cycle cost range estimates, it stated
that the estimates developed during formulation are not a baseline,
and therefore not a basis for measurement of cost growth. Preliminary
cost estimates are used by NASA to determine whether there is a good
match between requirements and resources when designing a project.
NASA stated that it currently provides these preliminary cost range
estimates upon request, and is considering providing increased
information for projects in early formulation in the annual budget
submission to the Congress. NASA did not commit, however, to providing
information to the Congress on the cumulative prior budget authority
for projects in formulation, as we recommended. We understand that
preliminary cost estimates are distinct from the baseline costs of the
project and are not intended as a basis to measure cost growth. These
early cost estimates do, however, provide the basis of the financial
investment that the agency is committing the government to and should
be transparent to Congressional decision-makers for their deliberation
and decision-making. The lack of transparency into project progress
early in development can preclude the ability of the Congress to
conduct oversight and ensure accountability and make it even more
difficult to stop projects that are not on track to meet the agency's
goals with available resources. Similarly, given NASA's various
accounting changes throughout the past decade, it is difficult if not
impossible for the Congress and parties external to NASA to determine
the cumulative budget authority or the investment to date that has
been given to a particular project. Providing this type of budget
information would allow Congressional decision-makers insight into the
commitments to the project thus far to make informed decisions about
their continued approval.
NASA concurred with our second recommendation that the agency develop
a common set of measurable and proven criteria to assess design
stability. NASA stated that the drawing release metric is a legacy
standard developed prior to the use of computerized drawings, and
hence does not take into account improvements due to the use of this
technology. We acknowledge this point, but our analysis of NASA
projects shows that those projects that have met or come close to
meeting the best practices drawing release metric have fared better
with regard to cost and schedule than those projects that did not come
close to meeting the metric. NASA recognizes the need for metrics for
greater insight into project formulation and development and stated
that it is developing a common set of measurable and proven criteria
to assess design maturity, which it will provide to GAO no later than
March 31, 2011.
Scope and Methodology:
The majority of our findings in this correspondence were based on work
completed as part of our 2011 Assessments of Selected Large-Scale
Projects. In the assessment, we reviewed cost growth and design
maturity of 21 projects, each with an estimated life-cycle cost of
over $250 million. We conducted interviews with project officials and
examined the current phase of a project's development and how each
project was advancing. NASA provided updated cost and schedule data as
of February 2011 for 16 of the 21 projects. We reviewed and compared
that data to previously established cost and schedule baselines. We
assessed each project's cost and schedule and characterized growth in
either as significant if it exceeded the thresholds that trigger
reporting to the Congress under the law.[Footnote 15] We also reviewed
NASA's February 2011 budget submission to the Congress and noted
differences between cost information provided for projects in
implementation versus cost information provided for projects in
formulation. In addition, NASA provided cost and schedule information
from previously reported projects that we used for historical
analysis. Through a standardized data collection instrument, we
gathered basic information about the projects as well as current and
projected development activities for those projects, including
information concerning the project's engineering design drawings. We
used this data to assess design stability against GAO's established
criteria for knowledge-based acquisitions and on other GAO work on
system acquisitions. We reviewed and discussed NASA policies and in-
house practices related to evaluating the design stability of each
project. We took appropriate steps to address data reliability.
We conducted this performance audit in February 2011 in accordance
with generally accepted government auditing standards. Those standards
require that we plan and perform the audit to obtain sufficient,
appropriate evidence to provide a reasonable basis for our findings
and conclusions based on our audit objectives. We believe that the
evidence obtained provides a reasonable basis for our findings and
conclusions based on our audit objectives.
We are sending copies of this report to interested congressional
committees. In addition, the report will be available at no charge on
GAO's Web site at [hyperlink, http://www.gao.gov]. If you have any
questions, please contact me at (202) 512-4841 or chaplainc@gao.gov.
Contact points for our Offices of Congressional Relations and Public
Affairs may be found on the last page of this letter.
Key contributors to this report were Shelby S. Oakley, Assistant
Director; Jessica M. Berkholtz; Richard A. Cederholm; Laura Greifner,
Kristine R. Hassinger, and Roxanna T. Sun.
Signed by:
Cristina Chaplain:
Director:
Acquisition and Sourcing Management:
[End of section]
Enclosure: Comments from the National Aeronautics and Space
Administration:
National Aeronautics and Space Administration:
Office of the Administrator:
Washington, DC 20546-0001:
February 23, 2011:
Ms. Christina Chaplain:
Director:
Acquisition and Sourcing Management:
United States Government Accountability Office:
Washington, DC 20548:
Dear Ms. Chaplain:
The National Aeronautics and Space Administration (NASA) appreciates
the opportunity to review the Government Accountability Office (GAO)
draft correspondence entitled "Additional Cost Transparency and Design
Criteria Needed for National Aeronautics and Space Administration
(NASA) Projects" (GAO-11-364R). NASA values the continued open
communications between NASA and the GAO team on the annual assessment
of large-scale projects and appreciates the constructive comments
arising as a result of this effort.
NASA agrees with the GAO's concern about managing programs and
projects as efficiently and effectively as possible, especially within
a budget that is likely to be constrained due to the fiscal
limitations currently faced by all Federal Government agencies.
Consequently, NASA remains dedicated to continuous improvement of
acquisition management processes and performance. We are pleased that
GAO recognizes NASA's ongoing efforts to mitigate acquisition
management risk and lay a stronger foundation for reducing project
cost and schedule growth. As was highlighted in the annual assessment,
NASA implemented a Joint Cost and Schedule Confidence Level (JCL)
policy in 2009 to increase the likelihood of project success at the
specified funding level. Since institution of this policy, the average
cost growth for NASA's large scale projects has remained below the 15
percent threshold which, if breached, requires special notification to
Congress. NASA will continue to assess the effect of utilizing JCLs to
manage project cost and schedule growth. With the completion and
launch of three missions in 2011, NASA will have a better measure of
the impact of our acquisition management improvement efforts over the
last five years.
In the draft report, GAO makes two recommendations to the
Administrator intended to increase transparency into project risks and
to provide NASA decision makers with a mechanism to consistently and
accurately judge design stability, specifically:
Recommendation 1: Direct the Office of the Chief Financial Officer
(OCFO) to provide more transparency into project costs in the early,
critical phases of development so that the Congress has sufficient
information to conduct oversight and ensure earlier accountability.
Specifically, the ()CFO should provide progress reports for NASA space
flight programs and projects in formulation that include information
on cumulative prior budget authority and current cost ranges in NASA's
annual budget submission to the Congress to enhance the knowledge with
which they base funding decisions for NASA.
Management's Response: Partially concur. NASA agrees with the need to
provide clarity on life-cycle cost range estimates, but the estimates
developed during formulation are not a baseline, and therefore not a
basis for measurement of cost growth. As recognized by GAO, these
estimates are used by NASA decision makers to manage the overall
portfolio of projects. Furthermore, these preliminary estimates are
used to help NASA determine whether there is a good match between
requirements and resources given the project design trades at that
point in time. The decision to approve a mission to proceed to
development involves a complex balance between a mission's technical
design, scientific and technical priorities, schedule, available
resources within a portfolio of projects, and overall risk assessment
of mission success given the requirements and constraints. Trades
between all of these areas may or may not lead to growth in the cost
estimate. When a project is approved to proceed to development, these
trades are complete; NASA confirms that the requirements match the
available resources, and commits to complete the project within the
life-cycle cost estimate based on this match.
NASA currently provides preliminary cost range estimates, inclusive of
prior year costs, for projects that have passed Key Decision Point B
(KDP-B), upon request. For example, these ranges are published
annually as part of the GAO's assessment of NASA's large-scale
projects. NASA is also considering providing increased information for
projects in early formulation in the annual budget submission.
Recommendation 2: Direct the Office of the Chief Engineer to develop a
common set of measurable and proven criteria, such as the percentage
of releasable design drawings, to assess design stability and to allow
decision-makers to make more informed, consistent determinations of
approval for projects to proceed from the final design phase to the
assembly, integration, and test phase of the development process and
amend NASA's systems engineering policy, accordingly.
Management's Response: Concur. NASA agrees that projects should have a
stable design before starting assembly, integration, and test.
Standing Review Boards (SRB) comprised of independent technical and
programmatic experts are asked to assess design stability at
Preliminary Design Review (PDR) and Critical Design Review (CDR) using
a number of criteria that are outlined in NASA's system engineering
and independent review policies. The drawing release metric referenced
in NASA's Systems Engineering Handbook is a legacy standard developed
prior to the use of computerized drawings and hence does not take into
account improvements due to the use of this technology. For this
reason, although NASA continues to use drawing release as one of many
indicators, the Agency does not place as much emphasis on drawing
release when considered holistically along with other criteria to
assess design stability. NASA does recognize the need for metrics for
greater insight into project formulation and development. NASA concurs
with GAO's recommendation to develop a common set of criteria to
assess design stability. NASA is developing a common set of measurable
and proven criteria to assess design maturity. The metrics will be
provided to GAO no later than March 31, 2011.
NASA will continue to follow through with our new policies and
management attention on cost and schedule growth and project
management in the coming year. We are committed to continuous
improvement in order to explore and utilize space in an affordable way
for the benefit of the Nation. To this end, we look forward to
continuing to work with the GAO to measure and improve our performance
and management practices.
Thank you for the opportunity to comment on this draft report. If you
have any questions or require additional information, please contact
Katie Gallagher at (202) 358-2185.
Sincerely,
Signed by:
Lori B. Garver:
Deputy Administrator:
[End of section]
Footnotes:
[1] GAO, NASA: Assessments of Selected Large-Scale Projects,
[hyperlink, http://www.gao.gov/products/GAO-11-239SP] (Washington,
D.C.: Mar. 3, 2011).
[2] The confirmation review is the point at which cost and schedule
baselines are established and approved for the project. Project
progress is measured against these baselines.
[3] GAO, NASA: Issues Implementing the NASA Authorization Act of 2010,
[hyperlink, http://www.gao.gov/products/GAO-11-216T] (Washington,
D.C.: Dec. 1, 2010); GAO-11-239SP.
[4] There are two phases in NASA's project life cycle--the formulation
phase and the implementation phase. In the formulation phase, the
project defines requirements--what the project is being designed to do--
matures technology, establishes a schedule, estimates costs, and
produces a plan for implementation. In the implementation phase, the
project carries out these plans, performing final design and
fabrication as well as testing components and system assembly,
integrating these components and testing how they work together, and
launching the project. This phase also includes the period from
project launch through mission completion.
[5] As part of the Constellation Program, the Ares I Crew Launch
Vehicle was designed to carry the Orion Crew Exploration Vehicle into
low-Earth orbit for missions to the International Space Station and
the Moon.
[6] GAO, NASA: Implementing a Knowledge-Based Acquisition Framework
Could Lead to Better Investment Decisions and Project Outcomes,
[hyperlink, http://www.gao.gov/products/GAO-06-218] (Washington, D.C.:
Dec. 21, 2005); GAO, NASA: Assessments of Selected Large-Scale
Projects, [hyperlink, http://www.gao.gov/products/GAO-09-306SP]
(Washington, D.C.: Mar. 2, 2009); GAO, NASA: Assessments of Selected
Large-Scale Projects, [hyperlink,
http://www.gao.gov/products/GAO-10-227SP] (Washington, D.C.: Feb. 1,
2010); [hyperlink, http://www.gao.gov/products/GAO-11-239SP]; and
[hyperlink, http://www.gao.gov/products/GAO-11-216T].
[7] During the design phase, the project completes its preliminary
design and technology development and begins fabrication of test and
flight article components, assemblies, and subsystems. In the test and
integration phase, the project initiates system assembly, integration
and test in preparation for flight.
[8] According to NASA Interim Directive for NASA Procedural
Requirements 7120.5D, Table 2-7 (Sept. 22, 2009), the critical design
review demonstrates that the maturity of the design is appropriate to
support proceeding with full-scale fabrication, assembly, integration,
and test, and that the technical effort is on track to complete the
flight and ground system development and mission operations in order
to meet mission performance requirements within the identified cost
and schedule constraints. Progress against management plans, budget,
and schedule, as well as risk assessments, are presented.
[9] GAO, Best Practices: Capturing Design and Manufacturing Knowledge
Early Improves Acquisition Outcomes, [hyperlink,
http://www.gao.gov/products/GAO-02-701] (Washington, D.C.: July 15,
2002).
[10] Engineering drawings are considered to be a good measure of the
demonstrated stability of a product's design because the drawings
represent the language used by engineers to communicate to the
manufacturers the details of a new product design--what it looks like,
how its components interface, how it functions, how to build it, and
what critical materials and processes are required to fabricate and
test it. Once the design of a product is finalized, the drawing is
"releasable".
[11] NASA Procedural Requirement 7123.1A, NASA Systems Engineering
Processes and Requirements Appendix G, paragraph G.8 (Mar. 26, 2007).
[12] Controlling Cost Growth of NASA Earth and Space Science Missions,
National Research Council, The National Academies, Washington D.C.
2010.
[13] Sixteen projects in our 2011 review were in the implementation
phase. Of those, twelve projects had held their critical design
reviews and could provide information on the number of design drawings.
[14] We began tracking the percentage of drawing releasable as a
measure of the design stability of selected large-scale NASA projects
in our 2009 assessment. Since then, NASA provides drawing information
on projects included in our yearly assessment on a semiannual basis.
[15] NASA is required to report to Congress if development cost of a
program is likely to exceed the baseline estimate by 15 percent or
more, or if a milestone is likely to be delayed by 6 months or more.
42 U.S.C. § 16613(d).
[End of section]
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