The GOES-R series is the next generation of  satellites that NOAA is planning. The GOES-R program has completed important steps in developing its  first satellite. For  example, the program has defect management procedures in place as  part of its overall testing program. However, the issue affected more than  documentation. Unless the program can find a way to unite these disparate approaches to  provide consistency in the methods by which defects are identified,  prioritized, captured, and tracked, it will be more difficult for management  to analyze and understand trends in opening and closing high-priority  defects or to make decisions on how to best resolve the defects. Facing a Gap in Backup Satellite Coverage, the GOES-R Program Has Improved Contingency Plans Though Shortfalls Remain

GOES satellite data are considered a mission-essential function because  of their criticality to weather observations and forecasts. Without a full complement of operational GOES satellites, the nation’s  ability to maintain the continuity of data required for effective weather  forecasting could be compromised. However, it continues to face  challenges in maintaining its schedule and controlling its costs. The  program continues to experience delays in remaining major milestones,  which could result in further delays to the launch date. While NOAA and its contractors have implemented a  defect management process which is successful in many areas, there are  shortfalls in how the program defines defects, monitors trends, and  reports on defects and defect metrics. Until the program addresses these shortfalls  and reduces the number of open defects, it may not have a complete  picture of remaining issues and faces an increased risk of further delays  to the GOES-R launch date. NOAA could experience a gap in satellite data coverage if GOES-R is  delayed further and one of the two remaining operational satellites  experiences a problem. Specifically, we  recommend that the Secretary of Commerce direct the NOAA  Administrator to:  investigate and address inconsistencies totaling hundreds of  thousands of dollars in monthly earned value data reporting for the  GLM and ABI instruments; address shortfalls in defect management identified in this report,  including the lack of clear guidance on defect definitions, what defect  metrics should be collected and reported, and how to establish a  defect’s priority or severity; and  reduce the number of unresolved defects on the GOES ground  system and spacecraft. In addition, because NOAA has not fully implemented our prior  recommendation to improve its satellite gap mitigation plan, we  recommend that the Secretary of Commerce direct the NOAA  Administrator to: add information to the GOES satellite contingency plan on steps  planned or underway to mitigate potential launch delays, the potential  impact of failure scenarios in the plan, and the minimum performance  levels expected under such scenarios. NOAA  concurred with all four of our recommendations and identified steps that it  plans to take to implement them. Appendix I: Objectives, Scope, and Methodology

Our objectives were to (1) assess progress on the GOES-R program with  respect to planned schedule, cost, and functionality; (2) assess efforts to  identify and address issues discovered during integration and testing; and  (3) evaluate the likelihood of a gap in satellite coverage and analyze the  adequacy of contingency actions in place to prevent or mitigate such a  gap. As allowed by NOAA’s guidance, contractors on the spacecraft track  defects differently than the ground system contractors do.
Why GAO Did This Study

NOAA, with the aid of the National Aeronautics and Space Administration (NASA), is procuring the next generation of geostationary weather satellites. 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 2015. This new series is considered critical to the United States' ability to maintain the continuity of satellite data required for weather forecasting through 2036.
GAO was asked to evaluate GOES-R. GAO's objectives were to (1) assess progress on program schedule, cost, and functionality; (2) assess efforts to identify and address issues discovered during integration and testing; and (3) evaluate the likelihood of a gap in satellite coverage and actions to prevent or mitigate such a gap. To do so, GAO analyzed program and contractor data, earned value data information, and defect reports, compared both defect management policies and contingency plans to best practices by leading organizations, and interviewed officials at NOAA and NASA.

What GAO Found

The National Oceanic and Atmospheric Administration (NOAA)'s Geostationary Operational Environmental Satellite-R (GOES-R) program has made major progress in developing its first satellite, including completing testing of satellite instruments. However, the program continues to face challenges in the areas of schedule, cost, and functionality. Specifically, the program has continued to experience delays in major milestones and cost overruns on key components. Also, in order to meet the planned launch date, the program has deferred some planned functionality until after launch, and program officials acknowledge that they may defer more.
NOAA and its contractors have implemented a defect management process as part of their overall testing approach that allows them to identify, assess, track, resolve, and report on defects. However, shortfalls remain in how defects are analyzed and reported. For example, contractors manage, track, and report defects differently due to a lack of guidance from NOAA. Without consistency among contractors, it is difficult for management to effectively prioritize and oversee defect handling. In addition, more than 800 defects in key program components remained unresolved. Until the program makes progress in addressing these defects, it may not have a complete picture of remaining issues and faces an increased risk of further delays to the GOES-R launch date.
As the GOES-R program approaches its expected launch date of March 2016, it faces a potential gap of more than a year during which an on-orbit backup satellite would not be available. This means that if an operational satellite experiences a problem, there could be a gap in GOES coverage. NOAA has improved its plan to mitigate gaps in satellite coverage. However, the revised plan does not include steps for mitigating a delayed launch, or details on potential impacts and minimum performance levels should a gap occur. Until these shortfalls are addressed, NOAA management cannot fully assess all gap mitigation strategies, which in turn could hinder the ability of meteorologists to observe and report on severe weather conditions.

What GAO Recommends

GAO is recommending that NOAA address shortfalls in its defect management approach, reduce the number of open high-priority defects, and add information to its satellite contingency plan. NOAA concurred with GAO's recommendations and identified steps it plans to take to implement them.