NASA:
Actions Needed to Improve the Management of Human Spaceflight Programs
GAO-19-716T: Published: Sep 18, 2019. Publicly Released: Sep 18, 2019.
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Contact:
(202) 512-4841
chaplainc@gao.gov
Office of Public Affairs
(202) 512-4800
youngc1@gao.gov
NASA is developing 3 systems to put astronauts into space—the Orion crew vehicle, Space Launch System, and Exploration Ground Systems. NASA will need these systems for its human space exploration goals, including sending astronauts to the moon as soon as 2024.
We’ve been concerned about how NASA is managing these large and complex efforts. Past reports have noted that schedules were overly optimistic and that NASA’s reporting of cost growth for SLS and Orion is distorted.
This testimony provides an update on the progress NASA has made developing these systems and some lessons NASA could apply in managing the human spaceflight programs.
Orion’s Launch Abort System at Kennedy Space Center
View of NASA's Orion’s launch
Additional Materials:
- Highlights Page:
- Full Report:
- Accessible Version:
Contact:
(202) 512-4841
chaplainc@gao.gov
Office of Public Affairs
(202) 512-4800
youngc1@gao.gov
What GAO Found
The National Aeronautics and Space Administration's (NASA) three related human spaceflight programs are in the integration and test phase of development, a phase of the acquisition process that often reveals unforeseen challenges leading to cost growth and schedule delays. Since GAO last reported on the status of these programs in June 2019, each program has made progress. For example, the Orion program conducted a key test to demonstrate the ability to abort a mission should a life-threatening failure occur during launch. As GAO found in June 2019, however, the programs continue to face significant schedule delays. In November 2018, within one year of announcing an up to 19-month delay for the three programs—the Space Launch System (SLS) vehicle, the Orion crew spacecraft, and Exploration Ground Systems (EGS)—NASA senior leaders acknowledged the revised launch date of June 2020 is unlikely. In addition, any issues uncovered during integration and testing may push the date as late as June 2021. Moreover, GAO found that NASA's calculations of cost growth for the SLS program is understated by more than 750 million dollars.
Artist Rendering of Space Launch System
GAO's past work has identified a number of lessons that NASA can apply to improve its management of its human spaceflight programs. For example, NASA should enhance contract management and oversight to improve program outcomes. NASA's past approach in this area has left it ill-positioned to identify early warning signs of impending schedule delays and cost growth or reap the benefits of competition. In addition, NASA's approach to incentivizing contractors through contract award fees did not result in desired outcomes for the SLS and Orion programs. Further, NASA should minimize risky programmatic decisions to better position programs for successful execution. This includes providing sufficient cost and schedule reserves to, among other things, address unforseen risk. Finally, realistic cost estimates and assessments of technical risk are particularly important at the start of an acquisition program. But NASA has historically provided little insight into the future cost of these human spaceflight programs, limiting the information useful to decision makers.
Why GAO Did This Study
NASA is undertaking a trio of closely related programs to continue human space exploration beyond low-Earth orbit. These three programs include a launch vehicle, a crew capsule, and the associated ground systems at Kennedy Space Center. All three programs are working towards a launch readiness date of June 2020 for the first mission. NASA then plans for these systems to support future human space exploration goals, which include seeking to land two astronauts on the lunar surface. GAO has a body of work highlighting concerns over NASA's management and oversight of these programs.
This statement discusses (1) the cost and schedule status of NASA's human spaceflight programs and (2) lessons that NASA can apply to improve its management of its human spaceflight programs. This statement is based on eight reports issued from 2014 to 2019 and selected updates as of September 2019. For the updates, GAO analyzed recent program status reports on program progress.
What GAO Recommends
GAO has made 19 recommendations in these eight prior reports to strengthen NASA's acquisition management of SLS, Orion, and EGS. NASA generally agreed with GAO's recommendations, and has implemented seven recommendations. Further action is needed to fully implement the remaining recommendations.
For more information, contact Cristina T. Chaplain at (202) 512-4841 or chaplainc@gao.gov.
Dec 22, 2020
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Commercial Space Transportation:
FAA Should Examine a Range of Options to Support U.S. Launch InfrastructureGAO-21-154: Published: Dec 22, 2020. Publicly Released: Dec 22, 2020.
Dec 15, 2020
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NASA Human Space Exploration:
Significant Investments in Future Capabilities Require Strengthened Management OversightGAO-21-105: Published: Dec 15, 2020. Publicly Released: Dec 15, 2020.
Apr 30, 2020
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Priority Open Recommendations:
National Aeronautics and Space AdministrationGAO-20-526PR: Published: Apr 23, 2020. Publicly Released: Apr 30, 2020.
Apr 29, 2020
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NASA:
Assessments of Major ProjectsGAO-20-405: Published: Apr 29, 2020. Publicly Released: Apr 29, 2020.
Jan 29, 2020
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NASA Commercial Crew Program:
Significant Work Remains to Begin Operational Missions to the Space StationGAO-20-121: Published: Jan 29, 2020. Publicly Released: Jan 29, 2020.
Jan 28, 2020
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James Webb Space Telescope:
Technical Challenges Have Caused Schedule Strain and May Increase CostsGAO-20-224: Published: Jan 28, 2020. Publicly Released: Jan 28, 2020.
Dec 19, 2019
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NASA Lunar Programs:
Opportunities Exist to Strengthen Analyses and Plans for Moon LandingGAO-20-68: Published: Dec 19, 2019. Publicly Released: Dec 19, 2019.
Jun 20, 2019
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NASA Commercial Crew Program:
Schedule Uncertainty Persists for Start of Operational Missions to the International Space StationGAO-19-504: Published: Jun 20, 2019. Publicly Released: Jun 20, 2019.
Jun 19, 2019
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NASA Human Space Exploration:
Persistent Delays and Cost Growth Reinforce Concerns over Management of ProgramsGAO-19-377: Published: Jun 19, 2019. Publicly Released: Jun 19, 2019.
May 30, 2019
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NASA:
Assessments of Major ProjectsGAO-19-262SP: Published: May 30, 2019. Publicly Released: May 30, 2019.
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