Polar Satellites
Agencies Need to Address Potential Gaps in Weather and Climate Data Coverage Gao ID: GAO-11-945T September 23, 2011In Process
In May 2010, GAO reported on the transition from NPOESS to two separate programs, and recommended that both NOAA and DOD expedite decisions on the cost, schedule, and capabilities of their respective programs. Since that time, both agencies have made progress on their programs, but neither has finalized its plans or fully implemented the recommendations. NOAA is currently focusing on the October 2011 launch of the NPOESS Preparatory Project satellite--a demonstration satellite that the agency now plans to use operationally in order to minimize potential gaps in coverage. In addition, NOAA has transferred contracts for satellite sensors from the NPOESS program to the JPSS program. However, NOAA officials stated that the agency slowed down the development of the first JPSS satellite due to budget constraints, causing a delay in the launch date. As a result, NOAA is facing a potential gap in satellite data continuity. Such a delay could significantly impact the nation's ability to obtain advanced warning of extreme weather events such as hurricanes. Meanwhile, DOD began planning for its satellite program. Department officials reported that DWSS is to consist of two satellites with three sensors: an imager, microwave imager/sounder, and a space environment sensor. The first satellite is to be launched no earlier than 2018. The department has not, however, finalized the cost, schedule, and functionality of the program. It expects to do so in early 2012. Until both NOAA and DOD develop and finalize credible plans for their respective programs, it will not be clear what the programs will deliver, when, and at what cost. In its prior report, GAO also recommended that NOAA and DOD establish plans to mitigate key risks in transitioning from NPOESS to the successor programs, including ensuring effective oversight of JPSS program management, and addressing cost and schedule implications from contract and program changes. Both agencies have taken steps to mitigate these risks, but more remains to be done. For example, NOAA could not provide firm time frames for completing its management control plan or addressing residual contracting issues. Moving forward, it will be important for the agencies to continue efforts to mitigate these risks in order to ensure the success of their respective programs. GAO is not making new recommendations in this statement.
GAO-11-945T, Polar Satellites: Agencies Need to Address Potential Gaps in Weather and Climate Data Coverage
This is the accessible text file for GAO report number GAO-11-945T
entitled 'Polar Satellites: Agencies Need to Address Potential Gaps in
Weather and Climate Data Coverage' which was released on September 23,
2011.
This text file was formatted by the U.S. Government Accountability
Office (GAO) to be accessible to users with visual impairments, as
part of a longer term project to improve GAO products' accessibility.
Every attempt has been made to maintain the structural and data
integrity of the original printed product. Accessibility features,
such as text descriptions of tables, consecutively numbered footnotes
placed at the end of the file, and the text of agency comment letters,
are provided but may not exactly duplicate the presentation or format
of the printed version. The portable document format (PDF) file is an
exact electronic replica of the printed version. We welcome your
feedback. Please E-mail your comments regarding the contents or
accessibility features of this document to Webmaster@gao.gov.
This is a work of the U.S. government and is not subject to copyright
protection in the United States. It may be reproduced and distributed
in its entirety without further permission from GAO. Because this work
may contain copyrighted images or other material, permission from the
copyright holder may be necessary if you wish to reproduce this
material separately.
United States Government Accountability Office:
GAO:
Testimony:
Before the Subcommittees on Investigations and Oversight and Energy
and Environment, Committee on Science, Space, and Technology, House of
Representatives:
For Release on Delivery:
Expected at 10:00 a.m. EDT:
Friday, September 23, 2011:
Polar Satellites:
Agencies Need to Address Potential Gaps in Weather and Climate Data
Coverage:
Statement of David A. Powner, Director:
Information Technology Management Issues:
GAO-11-945T:
GAO Highlights:
Highlights of GAO-11-954T, a testimony before the Subcommittees on
Oversight and Investigations and Energy and Environment, Committee on
Science, Space, and Technology, House of Representatives.
Why GAO Did This Study:
Environmental satellites provide critical data used in weather
forecasting and measuring variations in climate over time. In February
2010, the White House‘s Office of Science and Technology Policy
disbanded the National Polar-orbiting Operational Environmental
Satellite System (NPOESS)-”a tri-agency satellite acquisition that had
encountered continuing cost, schedule, and management problems-”and
instructed the National Oceanic and Atmospheric Administration (NOAA)
and the Department of Defense (DOD) to undertake separate
acquisitions. Both agencies have begun planning their respective
programs”-the Joint Polar Satellite System (JPSS) and the Defense
Weather Satellite System (DWSS)”-including creating program offices
and transitioning contracts.
GAO was asked to summarize the status of ongoing work assessing (1)
NOAA‘s and DOD‘s plans for their separate acquisitions and (2) the key
risks in transitioning from NPOESS to these new programs. In preparing
this statement, GAO relied on the work supporting previous reports,
attended monthly program management meetings, reviewed documentation
on both programs, and interviewed agency officials.
What GAO Found:
In May 2010, GAO reported on the transition from NPOESS to two
separate programs, and recommended that both NOAA and DOD expedite
decisions on the cost, schedule, and capabilities of their respective
programs. Since that time, both agencies have made progress on their
programs, but neither has finalized its plans or fully implemented the
recommendations. NOAA is currently focusing on the October 2011 launch
of the NPOESS Preparatory Project satellite”a demonstration satellite
that the agency now plans to use operationally in order to minimize
potential gaps in coverage. In addition, NOAA has transferred
contracts for satellite sensors from the NPOESS program to the JPSS
program. However, NOAA officials stated that the agency slowed down
the development of the first JPSS satellite due to budget constraints,
causing a delay in the launch date. As a result, NOAA is facing a
potential gap in satellite data continuity. Such a delay could
significantly impact the nation‘s ability to obtain advanced warning
of extreme weather events such as hurricanes.
Figure: Potential Gaps in Satellite Coverage:
[Refer to PDF for image: illustration]
Years noted are fiscal years:
Satellite: NPOESS Preparatory Project;
On-orbit check out: 2012-2013;
Expected life: 2013-2017;
Potential gap if NPP fails after 3 years: 2015-2017;
Potential gap if JPSS-1 has further delays: 2017 and beyond.
Satellite: First JPSS Satellite;
On-orbit check out: 2017;
Expected life: 2017-2024;
Potential gap if NPP fails after 3 years: 2015-2017;
Potential gap if JPSS-1 has further delays: 2017 and beyond.
Source: GAO analysis of NOAA data.
[End of figure]
Meanwhile, DOD began planning for its satellite program. Department
officials reported that DWSS is to consist of two satellites with
three sensors: an imager, microwave imager/sounder, and a space
environment sensor. The first satellite is to be launched no earlier
than 2018. The department has not, however, finalized the cost,
schedule, and functionality of the program. It expects to do so in
early 2012. Until both NOAA and DOD develop and finalize credible
plans for their respective programs, it will not be clear what the
programs will deliver, when, and at what cost.
In its prior report, GAO also recommended that NOAA and DOD establish
plans to mitigate key risks in transitioning from NPOESS to the
successor programs, including ensuring effective oversight of JPSS
program management, and addressing cost and schedule implications from
contract and program changes. Both agencies have taken steps to
mitigate these risks, but more remains to be done. For example, NOAA
could not provide firm time frames for completing its management
control plan or addressing residual contracting issues. Moving
forward, it will be important for the agencies to continue efforts to
mitigate these risks in order to ensure the success of their
respective programs.
What GAO Recommends:
GAO is not making new recommendations in this statement.
View [hyperlink, http://www.gao.gov/products/GAO-11-954T] or key
components. For more information, contact David A. Powner at (202) 512-
9286 or pownerd@gao.gov.
[End of section]
Chairman Broun, Chairman Harris, Ranking Member Miller, Ranking Member
Edwards, and Members of the Subcommittees:
Thank you for the opportunity to participate in today's hearing on
efforts to disband and replace the National Polar-orbiting Operational
Environmental Satellite System (NPOESS). NPOESS was planned to be a
state-of-the-art, environment-monitoring satellite system that would
replace two existing polar-orbiting environmental satellite systems.
Managed jointly by the Department of Commerce's National Oceanic and
Atmospheric Administration (NOAA), the Department of Defense
(DOD)/U.S. Air Force, and the National Aeronautics and Space
Administration (NASA), the program was considered critical to the
nation's weather forecasting and climate monitoring needs through the
year 2026. However, to address continuing cost, schedule, management,
and technical challenges, the White House's Office of Science and
Technology Policy decided in February 2010 to disband the NPOESS
acquisition and, instead, to have NOAA and DOD undertake separate
acquisitions. As requested, this statement summarizes ongoing work we
are doing for your full committee to assess the status of NOAA's and
DOD's plans for separate acquisitions and key risks in transitioning
from NPOESS to these new programs.
In preparing this testimony, we relied on the work supporting our
previous reports[Footnote 1] and on observations from our ongoing
work. To obtain updated information, we attended NOAA's monthly
program management council meetings, reviewed briefings for both
programs, and interviewed officials from NOAA, NASA, and DOD. All of
our work for the prior reports and this testimony was performed 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.
Background:
Since the 1960s, the United States has used satellites to observe the
earth and its land, oceans, atmosphere, and space environments.
Satellites provide a global perspective of the environment and allow
observations in areas that may be otherwise unreachable or unsuitable
for measurements. Used in combination with ground, sea, and airborne
observing systems, satellites have become an indispensable part of
measuring and forecasting weather and climate. For example, satellites
provide the graphical images used to identify current weather
patterns, as well as the data that go into numerical weather
prediction models. These models are used to forecast weather 1 to 2
weeks in advance and to issue warnings about severe weather, including
the path and intensity of hurricanes. Satellite data are also used to
warn infrastructure owners when increased solar activity is expected
to affect key assets, including communication satellites or the
electric power grid. When collected over time, satellite data can also
be used to observe climate change--the trends and changes in the
earth's climate. These data are used to monitor and project seasonal,
annual, and decadal changes in the earth's temperature, vegetation
coverage, and ozone coverage.
The NPOESS Program: Inception, Challenges, and Divergence:
Since the 1960s, the United States has operated two separate
operational polar-orbiting meteorological satellite systems: the Polar-
orbiting Operational Environmental Satellite (POES) series, which is
managed by NOAA, and the Defense Meteorological Satellite Program
(DMSP), which is managed by the Air Force.[Footnote 2] Two operational
DMSP satellites and one operational POES satellite are currently in
orbit and are positioned so that they cross the equator in the early
morning, midmorning, and early afternoon. In addition, the government
relies on a European satellite, called the Meteorological Operational
satellite, for data in the midmorning orbit.[Footnote 3] Together,
they ensure that, for any region of the earth, the data provided to
users are generally no more than 6 hours old.
With the expectation that combining the POES and DMSP programs would
reduce duplication and result in sizable cost savings, a May 1994
Presidential Decision Directive required NOAA and DOD to converge the
two satellite programs into a single satellite program--NPOESS--
capable of satisfying both civilian and military requirements.
[Footnote 4] To manage this program, DOD, NOAA, and NASA formed a tri-
agency Integrated Program Office, with NOAA responsible for overall
program management for the converged system and for satellite
operations, the Air Force responsible for acquisition, and NASA
responsible for facilitating the development and incorporation of new
technologies into the converged system.
When its primary contract was awarded in August 2002, NPOESS was
estimated to cost about $7 billion through 2026 and was considered
critical to the United States' ability to maintain the continuity of
data required for weather forecasting and global climate monitoring.
To reduce the risk involved in developing new technologies and to
maintain climate data continuity, the program planned to launch a
demonstration satellite, called the NPOESS Preparatory Project (NPP)
in May 2006. NPP was to demonstrate selected instruments that would
later be included on the NPOESS satellites. The first NPOESS satellite
was to be available for launch in March 2008.
However, in the years after the program was initiated, NPOESS
encountered significant technical challenges in sensor development,
program cost growth, and schedule delays. By November 2005, we
estimated that the program's cost had grown to $10 billion, and the
schedule for the first launch was delayed by almost 2 years. These
issues led to a 2006 restructuring of the program, which reduced the
program's functionality by decreasing the number of planned
satellites, orbits, and instruments. The restructuring also led agency
executives to decide to mitigate potential data gaps by using NPP as
an operational satellite.[Footnote 5] Even after the restructuring,
however, the program continued to encounter technical issues in
developing two sensors, significant tri-agency management challenges,
schedule delays, and further cost increases. To help address these
issues, in recent years we have made a series of recommendations to,
among other things, improve executive-level oversight and develop
realistic time frames for revising cost and schedule baselines.
[Footnote 6]
Faced with costs that were expected to exceed $14 billion and launch
schedules that were delayed by over 5 years, in August 2009, the
Executive Office of the President formed a task force, led by the
Office of Science and Technology Policy, to investigate the management
and acquisition options that would improve the NPOESS program. As a
result of this review, the Director of the Office of Science and
Technology Policy announced in February 2010 that NOAA and DOD would
no longer jointly procure the NPOESS satellite system; instead, each
agency would plan and acquire its own satellite system.[Footnote 7]
Specifically, NOAA is responsible for the afternoon orbit and the
observations planned for the first and third NPOESS satellites. DOD is
responsible for the early-morning orbit and the observations planned
for the second and fourth NPOESS satellites. The partnership with the
European satellite agencies for the midmorning orbit is to continue as
planned.
Prior GAO Work Evaluated Preliminary Plans for Separate NOAA and DOD
Satellite Programs and Recommended Actions to Solidify Plans and
Address Risks:
In May 2010, we reported on NOAA's and DOD's preliminary plans for
initiating new environmental satellite programs and highlighted key
transition risks facing the agencies.[Footnote 8] At that time, NOAA
had developed preliminary plans for its new satellite acquisition
program--called the Joint Polar Satellite System (JPSS). Specifically,
NOAA planned to acquire two satellites (called JPSS-1 and JPSS-2) for
launch in 2015 and 2018.[Footnote 9] NOAA also planned technical
changes to the satellites, including using a smaller spacecraft than
the one planned for NPOESS and removing sensors that were planned for
the NPOESS satellites in the afternoon orbit.[Footnote 10]
In addition, NOAA planned to transfer the management of the satellite
acquisition from the NPOESS program office to NASA's Goddard Space
Flight Center so that it could be co-located at a space system
acquisition center, as advocated by an independent review team. NOAA
developed a team to lead the transition from NPOESS to JPSS and
planned to begin transitioning in July 2010 and complete a transition
plan--including cost and schedule estimates--by the end of September
2010. NOAA estimated that the JPSS program would cost approximately
$11.9 billion to complete through 2024.[Footnote 11] It also
anticipated funding of about $1 billion in fiscal year 2011 to set up
the new program office and handle the costs associated with
transitioning contracts from the Air Force to NASA while continuing to
develop NPP and the first JPSS satellite.
DOD was at an earlier stage in its planning process at the time of our
June 2010 testimony, in part because it had more time before the first
satellite in the morning orbit was needed. DOD officials were
developing plans--including costs, schedules, and functionality--for
their new program, called the Defense Weather Satellite System (DWSS).
At that time, DOD expected to make final decisions on the spacecraft,
sensors, procurement strategy, and staffing in August 2010, and to
begin the program immediately.
In our report, we noted that both agencies faced key risks in
transitioning from NPOESS to their separate programs. These risks
included the loss of key staff and capabilities, delays in negotiating
contract changes and establishing new program offices, the loss of
support for the other agency's requirements, and insufficient
oversight of new program management. We reported that until these
risks were effectively mitigated, it was likely that the satellite
programs' costs would continue to grow and launch dates would continue
to be delayed. We also noted that further delays could lead to gaps in
the continuity of critical satellite data.
We made recommendations to ensure that the transition from NPOESS to
its successor programs was efficiently and effectively managed. Among
other things, we recommended that the Secretaries of Defense and
Commerce direct their respective NPOESS follow-on programs to expedite
decisions on the expected cost, schedule, and capabilities of their
planned programs and to direct their respective follow-on programs to
develop plans to address the key transition risks we identified. As
discussed below, the agencies have not yet fully implemented these
recommendations.
NOAA and DOD Have Made Progress, but Decisions are Needed to Address
Potential Gaps in Weather and Climate Data:
Over the last year, NOAA and NASA have worked to establish the JPSS
program, to keep the NPP satellite's development on track, and to
begin developing plans for the JPSS satellite. However, of the funding
made available to NOAA in its fiscal year 2011 appropriations, JPSS
was allocated $471.9 million--far less than the $1 billion identified
in the President's budget to establish a program and stay on track
with satellite deliverables. As a result, the JPSS program office
decided to focus on developing NPP and the satellite's ground system
so that it could remain on track for an October 2011 launch. The
program slowed development efforts on the first JPSS satellite and
halted work on the second JPSS satellite. Table 1 shows the status of
key components of NPP and JPSS-1.
Table 1: Status of NPP and JPSS-1 as of August 2011:
Satellite: NPP;
Status:
* All of the sensors have been integrated onto the NPP spacecraft;
* Environmental testing and ground compatibility testing have been
completed;
* NASA plans to complete the final operational and mission readiness
reviews in early September;
* The launch date is currently planned for October 25, 2011.
Satellite: JPSS-1;
Status:
* Contracts for all sensors have been transferred to NASA;
* Work on most sensors, including the Clouds' and the Earth's Radiant
Energy System, the Visible/Infrared Imager/Radiometer Suite, Total
Solar Irradiance Sensor, Cross-Track Infrared Sounder, and Ozone
Mapper/Profiler Suite, is under way;
* Technical issues found on the Cross-Track Infrared Sounder and the
Ozone Mapper/Profiler Suite will need to be addressed, but are not
expected to affect the JPSS-1 launch date;
* NOAA has not yet determined how it will accommodate sensors and
subsystems that are part of the JPSS program but not included on the
JPSS-1 satellite: the Search and Rescue Satellite Aided Tracking, the
Advanced Data Collection System, or the Total Solar Irradiance Sensor.
Source: GAO analysis of NOAA and NASA data.
[End of table]
Although we recommended in May 2010 that NOAA expedite decisions on
the cost, schedule, and capabilities of JPSS, NOAA has not yet done
so. According to NOAA officials, uncertainty surrounding the agency's
fiscal year 2011 budget has made it difficult to establish a program
baseline. However, NOAA has developed a requirements document and is
obtaining an independent cost estimate. The agency expects to have a
complete program baseline in place by February 2012. Until this
baseline is in place, it is not clear what functionality will be
delivered by when and at what cost. Given the critical development
activities planned for 2012, it is imperative that NOAA move
expeditiously to establish a credible program baseline.
NOAA Faces A Potential Gap in Satellite Data Continuity and Is
Considering Options to Minimize That Gap:
NOAA is facing a potential gap in satellite data continuity. When
NPOESS was first disbanded, program officials anticipated launching
the JPSS satellites in 2015 and 2018 (while acknowledging that these
dates could change as the program's plans were firmed up). Over the
past year, as program officials made critical decisions to defer work
on JPSS in order to keep NPP on track, the launch dates for JPSS-1 and
JPSS-2 have changed. Program officials currently estimate that the
satellites will launch in late 2016 and 2021.
There are two key scenarios that could lead to a gap in satellite data
in the afternoon orbit between the end of life of the NPP satellite
and the availability of the first JPSS satellite. Under the first
scenario, NPP sensors may not last until JPSS-1 is launched. The NASA
Inspector General reported that NASA is concerned that selected NPP
sensors may last only 3 years because of workmanship issues.[Footnote
12] The second scenario for a satellite data gap involves further
delays in the JPSS-1 launch date. This could occur due to shortfalls
in program funding or technical issues in the development of the
satellite. Figure 1 depicts possible gaps.
Figure 1: Potential Gaps in Polar Satellite Data in the Afternoon
Orbit:
[Refer to PDF for image: illustration]
Years noted are fiscal years:
Satellite: NOAA-19;
On-orbit check out: 2009-2010;
Expected life: 2010-2013+;
Potential Life: 2013+-2014+.
Satellite: NPP;
On-orbit check out: 2012-2013+;
Expected life: 2013+-2017;
Potential gap if NPP fails after 3 years: 2015-2017+;
Potential gap if JPSS-1 has further delays: 2017 and beyond.
Satellite: JPSS-1;
On-orbit check out: 2017;
Expected life: 2017-2024;
Potential gap if NPP fails after 3 years: 2015-2017;
Potential gap if JPSS-1 has further delays: 2017 and beyond.
Source: GAO analysis of NOAA data.
[End of figure]
According to NOAA, a data gap would lead to less accurate and timely
weather prediction models used to support weather forecasting, and
advanced warning of extreme events--such as hurricanes, storm surges,
and floods--would be diminished. The agency reported that this could
place lives, property, and critical infrastructure in danger. In
addition, NOAA estimated that the time it takes to respond to
emergency search and rescue beacons could double.
Given the potential for a gap in satellite data, NOAA officials are
considering whether to remove functionality from JPSS-1 in order to
allow it to be developed--and launched--more quickly. For example,
program officials are considering increasing the time it takes for
data processing centers to receive the data, removing the ground
systems' ability to process some data, and removing sensors.
DOD Is Planning for DWSS; Critical Milestones Lie Ahead:
DOD has developed draft plans for its DWSS program. The DWSS
satellites will take over the morning orbit after the remaining DMSP
satellites reach the end of their respective lives.[Footnote 13] The
DWSS program will be comprised of two satellites--the first expected
to be launched no earlier than 2018. Each will have three sensors: a
Visible/Infrared Imager/Radiometer Suite, a Space Environment Monitor,
and a microwave imager/sounder. DOD plans to formally review system
requirements in December 2011 and to conduct a preliminary design
review by September 2012. In addition, DOD plans to develop a
requirements document and obtain an independent cost estimate during
fiscal year 2012.
Although we recommended in May 2010 that DOD expedite decisions on the
cost, schedule, and capabilities of DWSS, DOD has not yet finalized
the functionality that will be provided by the DWSS program, or
developed a cost and schedule baseline. For example, DOD has not yet
decided what microwave sounder will be developed for DWSS, and whether
it will merely meet legacy requirements or provide the full scope of
functionality originally planned for NPOESS. Until DOD defines the
scope of its program, including the capabilities each satellite will
provide, both military and civilian users will be unable to prepare
for DWSS satellite data and any data shortfalls.
NOAA and DOD Continue to Face Key Transition Risks:
Over a year ago, we identified key transition risks facing NOAA and
DOD, including the need to support the other agency's requirements,
ensure effective oversight of new program management, manage cost and
schedule implications from contract and other program changes, and
ensure the availability of key staff and capabilities, and we
recommended that the agencies move to mitigate these risks. Today, the
agencies continue to face key risks in transitioning from NPOESS to
their new programs. These risk areas are discussed below.
* Supporting the other agency's requirements: As a joint program,
NPOESS was expected to fulfill many military, civilian, and research
requirements for environmental data. However, because the requirements
of NOAA and DOD are different, the agencies may develop programs that
meet their own needs but not the other's. Because both NOAA and DOD
have not decided on the final functionality of their respective
programs, each could choose to remove functionality that is important
to the other agency and its users. This has started to occur. NOAA has
already made decisions to remove a transmission capability that is
important to the Navy. Other functions that are currently under
consideration (such as delaying receipt of the data or removing ground
processing functions) could also affect military operations. Agency
officials reported that they formed a joint working group in July 2011
to discuss and mitigate these issues, but it is too soon to determine
what progress has been made, if any. If the agencies cannot find a way
to build an effective partnership that facilitates both efficient and
effective decision-making on data continuity needs, the needs of both
agencies--and their users--may not be adequately incorporated into the
new programs.
* Oversight of new program management: Under its new JPSS program,
NOAA plans to transfer parts of the NPOESS program to NASA, but it has
not yet defined how it will oversee NASA's efforts. We have reported
that NASA has consistently underestimated time and cost and has not
adequately managed risk factors such as contractor performance.
[Footnote 14] Because of such issues, we listed NASA's acquisition
management as a high-risk area in 1990, and it remains a high-risk
area today.[Footnote 15] NOAA officials reported that they are
developing a management control plan with NASA and intend to perform
an independent review of this plan when it is completed. This plan has
now been in development for about 18 months, and neither NOAA nor NASA
could provide a firm time frame for its completion. Without strong
NOAA oversight of NASA's management of program components, JPSS may
continue to face the same cost, schedule, and contract management
challenges as the NPOESS program.
* Cost and schedule implications resulting from contract and program
changes: NASA has transferred the sensor development and common ground
systems contracts from the NPOESS contract. However, NOAA has been in
negotiations for at least 6 months with the NPOESS contractor
regarding intellectual property rights for components of JPSS. The
agency could not provide a time frame for when it expects this issue
to be resolved. Until these issues are resolved, the full cost and
schedule implications of contract and program changes will be unknown.
* Ensuring key staff and capabilities: The NPOESS program office was
composed of NOAA, NASA, Air Force, and contractor staff with knowledge
and experience in the status, risks, and lessons learned from the
NPOESS program. This knowledge would be important to both programs
after the transition period. According to NOAA and NASA officials, the
JPSS program office is now fully staffed. On the other hand, the DOD
program has only staffed approximately 80 out of 155 positions in its
program office. In addition, NOAA officials acknowledged that they had
estimated that a contractor workforce of approximately 1,600 would
work on JPSS activities; however, only 819 are on board due to budget
constraints. Unless DOD is proactive in ensuring that its program
office is fully staffed and NOAA contractors are able to fill all
necessary positions, the new programs may not be able to complete work
as scheduled and satellite launches could be delayed.
In summary, the NPOESS program was disbanded in the hope that separate
DOD and NOAA programs could prove more successful than the joint
program, that costs and schedules might finally begin to stabilize,
and that the continuity of satellite data critical to both military
and civilian missions would be assured. However, over 18 months later,
NOAA and DOD are still scrambling to establish their respective
programs and to develop baseline cost and schedule estimates for those
programs. As a result, it still is not clear what the programs will
deliver, when, and at what cost.
In addition, the agencies continue to face a number of transition
risks, including the continued need to support each other's
requirements and residual contracting issues. As NOAA makes difficult
decisions on whether to remove promised JPSS functionality in order to
mitigate a satellite data gap, it will be important to prioritize the
functionality and to work with DOD to ensure that critical
requirements are still met. Timely decisions on cost, schedule, and
capabilities are needed to allow both acquisitions to move forward and
to ensure that painful gaps in satellite data can be minimized. Until
both NOAA and DOD can develop and finalize credible plans for their
respective programs, and mitigate or minimize the risks, neither
agency's users can plan for how to address this gap.
Chairman Broun, Chairman Harris, Ranking Member Miller, Ranking Member
Edwards, and Members of the Subcommittees, this completes my prepared
statement. I would be pleased to respond to any questions that you may
have at this time.
GAO Contact and Staff Acknowledgments:
If you have any questions on matters discussed in this testimony,
please contact David A. Powner at (202) 512-9286 or at
pownerd@gao.gov. Other key contributors include Colleen Phillips
(Assistant Director), Kate Agatone, Franklin Jackson, Fatima Jahan,
and Lee McCracken.
[End of section]
Footnotes:
[1] GAO, Polar-orbiting Environmental Satellites: Agencies Must Act
Quickly to Address Risks That Jeopardize the Continuity of Weather and
Climate Data, [hyperlink, http://www.gao.gov/products/GAO-10-558]
(Washington, D.C.: May 27, 2010); Polar- orbiting Environmental
Satellites: With Costs Increasing and Data Continuity at Risk,
Improvements Needed in Tri-agency Decision Making, [hyperlink,
http://www.gao.gov/products/GAO-09-564] (Washington, D.C.: June 17,
2009); Environmental Satellites: Polar-orbiting Satellite Acquisition
Faces Delays; Decisions Needed on Whether and How to Ensure Climate
Data Continuity, [hyperlink, http://www.gao.gov/products/GAO-08-518]
(Washington, D.C.: May 16, 2008); and Polar-orbiting Operational
Environmental Satellites: Restructuring Is Under Way, but Technical
Challenges and Risks Remain, [hyperlink,
http://www.gao.gov/products/GAO-07-498] (Washington, D.C.: Apr. 27,
2007).
[2] NOAA provides command and control for both the POES and DMSP
satellites after they are in orbit.
[3] The European Organisation for the Exploitation of Meteorological
Satellites' MetOp program is a series of three polar-orbiting
satellites dedicated to operational meteorology. MetOp satellites are
planned to be launched sequentially over 14 years. The first of these
satellites was launched in 2006 and is currently operational. The next
two are expected to launch in 2012 and 2017, respectively.
[4] Presidential Decision Directive NSTC-2, May 5, 1994.
[5] Using NPP as an operational satellite means that its data will be
used to provide climate and weather products.
[6] [hyperlink, http://www.gao.gov/products/GAO-09-564], [hyperlink,
http://www.gao.gov/products/GAO-08-518], and [hyperlink,
http://www.gao.gov/products/GAO-07-498].
[7] The announcement accompanied the release of the President's fiscal
year 2011 budget request.
[8] [hyperlink, http://www.gao.gov/products/GAO-10-558].
[9] NOAA officials noted that these dates could change as transition
plans were further developed.
[10] NOAA officials planned to exclude (1) the Space Environment
Monitor (which collects data to predict the effects of space weather
on technological systems) and instead, to obtain this information from
DOD's DWSS satellites, and (2) the Microwave Imager/Sounder (which
collects microwave images and data needed for measurements such as
rain rate and soil moisture) and instead to obtain these data through
an agreement with the Japan Aerospace Exploration Agency. Although
they plan to launch the Total and Spectral Solar Irradiance Suite,
NOAA officials had not made a decision on which satellite will host
the sensor.
[11] This estimate includes approximately $2.9 billion in NOAA funds
spent on NPOESS through fiscal year 2010, but does not include
approximately $2.9 billion that DOD has spent through fiscal year 2010
on NPOESS. NOAA officials also reported that the JPSS cost estimate is
at a higher confidence level than the previous NPOESS life-cycle cost
estimates.
[12] NASA Office of Inspector General, NASA's Management of the NPOESS
Preparatory Project, IG-11-018 (Washington, D.C.: June 2, 2011).
[13] DMSP-17 and 18 are currently in morning orbits. DOD has two more
DMSP satellites (called DMSP-19 and 20) and expects to launch them no
earlier than 2012 and 2015, respectively.
[14] See, for example, GAO, NASA: Assessments of Selected Large-Scale
Projects, [hyperlink, http://www.gao.gov/products/GAO-11-239SP]
(Washington, D.C.:, Mar. 3, 2011).
[15] GAO, High-Risk Series: An Update, [hyperlink,
http://www.gao.gov/products/GAO-09-271] (Washington, D.C.: January
2009).
[End of section]
GAO's Mission:
The Government Accountability Office, the audit, evaluation and
investigative arm of Congress, exists to support Congress in meeting
its constitutional responsibilities and to help improve the performance
and accountability of the federal government for the American people.
GAO examines the use of public funds; evaluates federal programs and
policies; and provides analyses, recommendations, and other assistance
to help Congress make informed oversight, policy, and funding
decisions. GAO's commitment to good government is reflected in its core
values of accountability, integrity, and reliability.
Obtaining Copies of GAO Reports and Testimony:
The fastest and easiest way to obtain copies of GAO documents at no
cost is through GAO's Web site [hyperlink, http://www.gao.gov]. Each
weekday, GAO posts newly released reports, testimony, and
correspondence on its Web site. To have GAO e-mail you a list of newly
posted products every afternoon, go to [hyperlink, http://www.gao.gov]
and select "E-mail Updates."
Order by Phone:
The price of each GAO publication reflects GAO‘s actual cost of
production and distribution and depends on the number of pages in the
publication and whether the publication is printed in color or black and
white. Pricing and ordering information is posted on GAO‘s Web site,
[hyperlink, http://www.gao.gov/ordering.htm].
Place orders by calling (202) 512-6000, toll free (866) 801-7077, or
TDD (202) 512-2537.
Orders may be paid for using American Express, Discover Card,
MasterCard, Visa, check, or money order. Call for additional
information.
To Report Fraud, Waste, and Abuse in Federal Programs:
Contact:
Web site: [hyperlink, http://www.gao.gov/fraudnet/fraudnet.htm]:
E-mail: fraudnet@gao.gov:
Automated answering system: (800) 424-5454 or (202) 512-7470:
Congressional Relations:
Ralph Dawn, Managing Director, dawnr@gao.gov:
(202) 512-4400:
U.S. Government Accountability Office:
441 G Street NW, Room 7125:
Washington, D.C. 20548:
Public Affairs:
Chuck Young, Managing Director, youngc1@gao.gov:
(202) 512-4800:
U.S. Government Accountability Office:
441 G Street NW, Room 7149:
Washington, D.C. 20548:
