The space shuttle, NASA’s largest individual program, is an essential  element of NASA’s ability to implement the Vision because it is the only  launch system presently capable of transporting the remaining  components necessary to complete assembly of the ISS. However, NASA is currently examining alternative ISS configurations to  meet the goals of the Vision and satisfy NASA’s international partners,  while requiring as few space shuttle flights as possible to complete  assembly. At the same time, NASA will begin the process of closing out or  transitioning its space shuttle assets that are no longer needed to support  the program —such as its workforce, hardware, and facilities—to other  NASA programs. Retiring the space shuttle and, in the larger context, implementing the  Vision, will require that the Space Shuttle Program rely on its most  important asset—its workforce. While NASA recognizes the importance of having in place a  strategy for sustaining a critically skilled workforce to support space  shuttle operations, it has only taken preliminary steps to do so. For  example, the program identified lessons-learned from the retirement of  programs comparable to the space shuttle, such as the Air Force Titan IV  Rocket Program. The Potential Impact of Workforce Problems and Other Challenges the Space Shuttle Program Faces Highlight the Need for Workforce Planning

Making progress toward developing a detailed strategy for sustaining a  critically skilled space shuttle workforce through the program’s retirement  is important given the impact that workforce problems could have on  NASA-wide goals. Impact on the prime contractor for space shuttle operations. Several Factors Have Impeded Workforce Planning Efforts

While the Space Shuttle Program is still in the early stages of planning for  the program’s retirement, its development of a detailed long-term strategy  to sustain its future workforce is being hampered by several factors:    Near-term focus on returning the space shuttle to flight. Uncertainties with respect to implementing the Vision. For example, NASA has not yet determined the final  configuration of the ISS, the final number of flights for the space  shuttle, how ISS operations will be supported after the space shuttle is  retired, or the type of vehicle that will be used for space exploration. In our March 2005 report, we made recommendations aimed at better  positioning NASA to sustain a critically skilled space shuttle workforce  through retirement. Scenario planning  can allow the agency to progress with workforce planning, even when  faced with uncertainties such as those surrounding the final number of  space shuttle flights, the final configuration of the ISS and the vehicle that  will be developed for exploration. Since we issued our report and made our recommendation, NASA has  taken action and publicly recognized that human capital management and  critical skills retention will be a major challenge for the agency as it moves  toward retiring the space shuttle. This recognition was most apparent at  NASA’s Integrated Space Operations Summit held in March 2005. Despite  a limited focus on human capital management in the past, NASA now  acknowledges that it faces significant challenges in sustaining a critically  skilled workforce and has taken steps to address these issues.
Why GAO Did This Study

The National Aeronautics and Space Administration's (NASA) space shuttle program is key to implementing the President's vision for space exploration, which calls for completing the assembly of the International Space Station (ISS) by the end of the decade. Currently, the space shuttle, which is to be retired after ISS assembly is completed, is the only launch system capable of transporting ISS components. To meet the goals of the President's vision and satisfy ISS's international partners, NASA is examining alternative launch vehicles and ISS configurations. Retiring the space shuttle and, in the larger context, implementing the President's vision, will require NASA to rely on its most important asset--its workforce. Because maintaining a skilled workforce through retirement will be challenging, GAO was asked to discuss the actions NASA has taken to sustain a skilled space shuttle workforce and the challenges it faces in doing so--findings reported on in March 2005 (see GAO, Space Shuttle: Actions Needed to Better Position NASA to Sustain Its Workforce through Retirement, GAO-05-230).

What GAO Found

While NASA recognizes the importance of sustaining a critically skilled workforce to support space shuttle operations, it has made limited progress toward developing a detailed long-term strategy to do so. At the time of our March 2005 review, the Space Shuttle Program had identified lessons learned from the retirement of comparable programs, and United Space Alliance--NASA's prime contractor for space shuttle operations--had begun to prepare for the impact of the space shuttle's retirement on its workforce. However, timely action to address workforce issues is critical given their potential impact on NASA-wide goals. Significant delays in implementing a strategy to sustain the space shuttle workforce would likely lead to larger problems, such as overstretched funding and failure to meet NASA program schedules. NASA and United Space Alliance acknowledge that sustaining their workforces will be difficult, particularly if a career path beyond the space shuttle's retirement is not apparent. Fiscal challenges facing the federal government also make it unclear whether funding for retention tools, such as bonuses, will be available. Our March 2005 report identified several factors that have hampered the Space Shuttle Program's workforce planning efforts. For example, the program's near-term focus on returning the space shuttle safely to flight has delayed other efforts that will help the program determine its workforce requirements, such as assessing hardware and facility needs. Program officials also noted that due to uncertainties in implementing the President's vision for space exploration, requirements on which to base workforce planning efforts have yet to be defined. Despite these factors, our work on strategic workforce planning has shown that even when faced with uncertainty, successful organizations take steps, such as scenario planning, to better position themselves to meet future workforce requirements. Since we issued our report and made our recommendation, NASA has publicly recognized, at its Integrated Space Operations Summit, that human capital management and critical skills retention will be a major challenge for the agency as it progresses toward retirement of the space shuttle.