The  GOES-R series is the next generation of satellites that NOAA is planning;  the satellites are planned for launch beginning in 2015. 3). As a result, NOAA may not be able  to meet its policy of having a backup satellite in orbit at all times, which  could lead to a gap in satellite coverage if an existing satellite fails  prematurely. In addition to planning for the continuity of its ground systems, NOAA has  established a policy to ensure the continuity of its geostationary  satellites—and high-level plans if that policy is not met. However, this group only includes  membership from NOAA offices, such as NWS and NESDIS, and does not  include membership from other federal agencies. The lack of involvement by federal agencies in GOES-R requirements  definition and prioritization is due to weaknesses in NOAA’s processes for  defining and prioritizing satellite data requirements. However, the GOES-R program has undergone significant changes over  the course of its acquisition lifecycle, and these changes have not been  communicated to GOES data users outside of NOAA. While the GOES-R program has awarded most development  contracts, two instruments have experienced technical challenges that led  to contract cost increases, and significant work remains on the program’s  flight and ground projects. In addition, continued delays in the launch date  of the first two satellites in the GOES-R series have endangered satellite  continuity because these delays extend the time in which there will not be a  backup satellite in orbit. The risk of a gap in coverage is further exacerbated because NOAA has not  established adequate continuity plans. Finally, NOAA has taken steps to identify GOES data users, prioritize their  data needs, and communicate program changes, but has not adequately  involved or communicated with key external users. For example, while  NOAA involved internal users in its process for defining and prioritizing  the GOES-R requirements, improvements are needed in these processes to  ensure that other federal agencies that rely on GOES data have a means to  provide documented input to the requirements and the prioritization of  those requirements. Until  these improvements are made, important GOES users may lose access to  critical data products and future GOES acquisitions may not meet the  mission requirements of these users. Recommendations for Executive Action

To improve NOAA’s ability to maintain geostationary satellites continuity  and improve efforts to involve key GOES data users, we recommend that  the Secretary of Commerce direct the NOAA Administrator to ensure that  the following three actions are taken:    Develop and document continuity plans for the operation of geostationary  satellites that include the implementation procedures, resources, staff  roles, and timetables needed to transition to a single satellite, an  international satellite, or other solution. Agency Comments

We received written comments on a draft of this report from the Secretary  of Commerce, who transmitted NOAA’s comments. The department  agreed with our recommendations and identified plans to implement them. Appendix I: Objectives, Scope, and Methodology

Our objectives were to (1) determine the status of the Geostationary  Operational Environmental Satellite-R (GOES-R) series acquisition,  including cost, schedule, and performance trends; (2) evaluate whether  the National Oceanic and Atmospheric Administration (NOAA) has  established adequate contingency plans in the event of delays; and (3)  assess NOAA’s efforts to identify GOES data users, prioritize their data  needs, and communicate with them about the program’s status. We also interviewed agency  officials from NOAA and the National Aeronautics and Space  Administration (NASA) to determine key dates for future GOES-R  acquisition efforts and milestones and progress made on current  development efforts.
Why GAO Did This Study

The Department of Commerce's National Oceanic and Atmospheric Administration (NOAA), with the aid of the National Aeronautics and Space Administration (NASA), is to procure the next generation of geostationary operational environmental satellites, called Geostationary Operational Environmental Satellite-R (GOES-R) series. The GOES-R series is to replace the current series of satellites, which will likely begin to reach the end of their useful lives in approximately 2015. This new series is considered critical to the United States' ability to maintain the continuity of data required for weather forecasting through the year 2028. GAO was asked to (1) determine the status of the GOES-R acquisition; (2) evaluate whether NOAA has established adequate contingency plans in the event of delays; and (3) assess NOAA's efforts to identify GOES data users, prioritize their data needs, and communicate with them about the program's status. To do so, GAO analyzed contractor and program data and interviewed officials from NOAA, NASA, and other federal agencies that rely on GOES data.

What GAO Found

NOAA has made progress on the GOES-R acquisition, but key instruments have experienced challenges and important milestones have been delayed. The GOES-R program awarded key contracts for its flight and ground projects, and these are in development. However, two instruments have experienced technical issues that led to contract cost increases, and significant work remains on other development efforts. In addition, since 2006, the launch dates of the first two satellites in the series have been delayed by about 3 years. As a result, NOAA may not be able to meet its policy of having a backup satellite in orbit at all times, which could lead to a gap in coverage if GOES-14 or GOES-15 fails prematurely. Even though there may be a gap in backup coverage, NOAA has not established adequate continuity plans for its geostationary satellites. To its credit, NOAA has established a policy to always have a backup satellite available and high-level plans if that policy is not met. Specifically, in the event of a satellite failure with no backup available, NOAA plans to reduce to a single satellite and, if available, rely on a satellite from an international partner. However, NOAA does not have plans that include processes, procedures, and resources needed to transition to a single or an international satellite. Without such plans, NOAA faces an increased risk that users will lose access to critical data. While NOAA has identified GOES data users and involved internal users in developing and prioritizing the GOES-R requirements, it has not adequately involved other federal users that rely on GOES data. Specifically, NOAA's processes for developing and prioritizing satellite requirements do not include documented input from other federal agencies. Further, since 2006, the GOES-R program has undergone significant changes (such as the removal of certain satellite data products), but these have not been communicated to federal agencies. Until improvements are made in NOAA's processes for involving key federal users, these users may not be able to meet mission requirements.

What GAO Recommends

GAO is recommending that NOAA address weaknesses in its continuity plans and improve its processes for involving other federal agencies. In commenting on a draft of this report, the Secretary of Commerce agreed with GAO's recommendations and identified plans for implementing them.