NOAA’S OBSERVING 

SYSTEMS

Additional Steps 

Needed to Achieve an

Integrated, CostEffective Portfolio

Report to Congressional Committees

November 2014

GAO-15-96

United States Government Accountability Office
United States Government Accountability Office

Highlights of GAO-15-96, a report to 

congressional committees

November 2014

NOAA’S OBSERVING SYSTEMS

Additional Steps Needed to Achieve an Integrated, 

Cost-Effective Portfolio

Why GAO Did This Study

NOAA operates and maintains a 

portfolio of observing systems to 

capture the environmental data needed 

to achieve its diverse missions. Some 

of these systems focus on the oceans, 

coasts, and Great Lakes. An observing 

system is a collection of one or more 

sensing elements that measures

specific environmental conditions and 

resides on fixed or mobile platforms, 

such as buoys or satellites. 

The House Appropriations Committee 

fiscal year report for the Department of 

Commerce’s 2013 appropriations bill 

mandated GAO to review NOAA’s 

ocean and coastal data collection 

systems. This report (1) identifies and 

describes the ocean, coastal, and 

Great Lakes observing systems NOAA 

operates; (2) identifies the annual 

operations and maintenance costs of 

these systems for fiscal years 2012 

through 2014; and (3) examines the 

extent to which NOAA has taken steps 

to integrate and improve the costeffectiveness of its observing systems

portfolio. GAO analyzed agency 

documentation on, among other things,

the characteristics and management of 

NOAA’s observing systems, reviewed

cost data from fiscal year 2012 through 

2014, and interviewed NOAA officials.

What GAO Recommends

GAO recommends that NOAA develop 

a plan to guide the integration of its 

observing systems, analyze whether 

unnecessary duplication exists in its 

observing systems portfolio, and 

develop a standardized methodology 

for the routine preparation and 

reporting of observing systems costs. 

NOAA generally agreed with the 

recommendations.

What GAO Found

The National Oceanic and Atmospheric Administration (NOAA) in the 

Department of Commerce operates 41 ocean, coastal, and Great Lakes 

observing systems. NOAA’s Office of Oceanic and Atmospheric Research and 

National Ocean Service manage 25 of these observing systems, with 

management of the remaining 16 systems split among four other NOAA offices. 

The majority of NOAA’s ocean, coastal, and Great Lakes observing systems use 

one of three platforms—buoys, satellites, or ships—to collect a range of 

environmental data, which are used to produce a variety of products, such as 

weather forecasts and navigational tools.

NOAA estimates it spent an average of approximately $430 million annually to 

operate and maintain its ocean, coastal, and Great Lakes observing systems in 

fiscal years 2012 through 2014. This is approximately 9 percent of NOAA’s total 

annual appropriations for these years. In reviewing these estimates, GAO found 

NOAA’s annual costs for these observing systems ranged from about $22 million 

for systems managed by the National Marine Fisheries Service to $198 million for 

systems managed by the Office of Marine and Aviation Operations in fiscal year 

2014. 

NOAA has not taken all of the steps it has identified as important to integrate and 

improve the cost-effectiveness of its observing systems portfolio. Since 2002, 

NOAA has identified the need to move toward an integrated observing systems 

portfolio. GAO’s previous work has found that, in undertaking initiatives such as 

this, federal agencies can benefit from following leading practices for strategic 

planning, which include defining goals and performance measures to track 

progress. NOAA has not, however, developed a plan that clearly sets forth its 

vision for an integrated observing systems portfolio, the steps it needs to take to 

achieve this vision, or how it will evaluate its progress. NOAA officials said they 

have focused on taking specific steps toward integration rather than developing 

an integration plan. Without a plan, however, NOAA cannot be assured it has 

established a framework to effectively guide and assess the success of its 

observing system integration efforts. NOAA has also not assessed whether its

observing systems are collecting unnecessarily duplicative data even though 

NOAA documents have identified the need to reduce duplication. NOAA officials 

told GAO that duplication is not a significant problem requiring further analysis. 

However, in the absence of an analysis, NOAA cannot know whether it is missing 

opportunities to achieve cost savings. NOAA has taken steps to integrate the

management of its observing systems, including creating an observing systems 

council to provide a more centralized perspective on systems management. The 

agency has also developed analytical tools to assess its observing system 

capabilities and requirements, including a model to analyze investment options. 

Reliable cost data are needed to ensure the most accurate results from this 

model, but NOAA does not have a standard methodology for tracking its 

observing systems costs. NOAA officials said the agency is considering 

developing a better method for tracking observing system costs but has not 

established a time frame for doing so. Without accurate and consistent cost 

information, it will be difficult for NOAA to reliably compare the cost-effectiveness 

of its observing systems and make informed investment decisions.

View GAO-15-96. For more information, 

contact Anne-Marie Fennell at (202) 512-3841 

or fennella@gao.gov.
Page i GAO-15-96 NOAA's Observing System

Letter 1

Background 3

NOAA Operates 41 Ocean, Coastal, and Great Lakes Observing 

Systems 6

NOAA Spent about $430 Million Annually from Fiscal Year 2012 

through 2014 on the Operations and Maintenance of Its Ocean, 

Coastal, and Great Lakes Observing Systems 13

NOAA Has Not Taken All of the Steps It and Others Have 

Identified to Integrate and Improve the Cost-Effectiveness of Its 

Observing Systems Portfolio 17

Conclusions 29

Recommendations for Executive Action 29

Agency Comments and Our Evaluation 30

Appendix I Objectives, Scope, and Methodology 32

Appendix II GAO Identified Ocean and Coastal Environmental Parameters 37

Appendix III Alphabetized List of National Oceanic and Atmospheric Administration’s 

41 Ocean, Coastal, and Great Lakes Observing Systems and Office 39

Appendix IV National Oceanic and Atmospheric Administration’s 41 Ocean, Coastal, 

and Great Lakes Observing Systems by Office 41

Appendix V National Oceanic and Atmospheric Administration’s Annual Estimated 

Operations and Maintenance Costs for the Ocean, Coastal, and Great 

Lakes Observing Systems by Office for Fiscal Years 2012 through 2014

51

Appendix VI Comments from the Department of Commerce 53

Contents
Page ii GAO-15-96 NOAA's Observing System

Appendix VII GAO Contact and Staff Acknowledgments 57

Tables

Table 1: Number of National Oceanic and Atmospheric 

Administration Ocean, Coastal, and Great Lakes 

Observing Systems by Office 7

Table 2: National Oceanic and Atmospheric Administration’s 

Estimated Annual Operations and Maintenance Costs for 

Its Ocean, Coastal, and Great Lakes Observing Systems 

by Office, Fiscal Years 2012 to 2014 14

Table 3: Ten National Oceanic and Atmospheric Administration 

Ocean, Coastal, and Great Lakes Observing Systems 

with the Highest Estimated Annual Operations and 

Maintenance Costs, Fiscal Years 2012 to 2014 16

Table 4: Environmental Parameters Measured Most Often by 

National Oceanic and Atmospheric Administration’s 

Ocean, Coastal, and Great Lakes Observing Systems 22

Figures

Figure 1: Locations of Chesapeake Bay Interpretive Buoy System 

Buoys 8

Figure 2: Configuration of a Tropical Atmospheric Ocean Buoy 10

Figure 3: Data Collection Process for the Global Ocean Observing 

System Argo Profiling Floats 11
Page iii GAO-15-96 NOAA's Observing System

Abbreviations

GPRA Government Performance and Results Act of 1993

IOOS Integrated Ocean Observing System

NOAA National Oceanic and Atmospheric Administration

NOSC NOAA Observing System Council

OMB Office of Management and Budget

TPIO Technology, Planning and Integration for 

Observation

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Page 1 GAO-15-96 NOAA's Observing System

441 G St. N.W.

Washington, DC 20548

November 17, 2014

The Honorable Barbara Mikulski

Chairwoman

The Honorable Richard Shelby

Ranking Member

Subcommittee on Commerce, Justice, Science and Related Agencies 

Committee on Appropriations

United States Senate

The Honorable Frank Wolf

Chairman 

The Honorable Chaka Fattah

Ranking Member

Subcommittee on Commerce, Justice, Science and Related Agencies 

Committee on Appropriations

House of Representatives

The nation depends on data collected by ocean and coastal observing 

systems to help produce a wide variety of products including weather 

forecasts, tsunamis warnings, and nautical charts to support marine 

commerce. An observing system is a collection of one or more sensing 

elements that reside on a fixed or mobile platform, such as a buoy or 

satellite. The sensing elements collect data to measure specific 

environmental conditions, such as sea surface temperature or wave height. 

The National Oceanic and Atmospheric Administration (NOAA), in the 

Department of Commerce, is the federal agency responsible for managing 

and operating a large portfolio of observing systems, a subset of which 

gather ocean and coastal environmental data.

The House Appropriations Committee report for the Department of 

Commerce’s fiscal year 2013 appropriations bill mandated GAO to report on 

NOAA’s ocean and coastal data collection systems.1 This report (1) 

 1

H.R. Rep. No. 112-463, at 20 (2012); see also 159 Cong. Rec. S1287, S1300 (daily ed. Mar. 

11, 2013) (explanatory statement with regard to H.R. 933, which became the Consolidated 

and Further Continuing Appropriations Act, 2013, Pub. L. No. 113-6 (2013), and which 

incorporated the House report by reference). The National Oceanic and Atmospheric 

Administration (NOAA) refers to its systems that collect data on the oceans and coasts not as 

“data collection systems” but rather as “observing systems,” which is the term we use 

throughout this report.
Page 2 GAO-15-96 NOAA's Observing System

identifies and describes the ocean, coastal, and Great Lakes observing 

systems NOAA operates; (2) identifies the annual operations and 

maintenance costs of these systems for fiscal years 2012 through 2014; and 

(3) examines the extent to which NOAA has taken steps to integrate and 

improve the cost-effectiveness of its portfolio of observing systems, including 

ocean, coastal, and Great Lakes systems.2

To identify which of NOAA’s observing systems collect data on oceans, 

coasts, and the Great Lakes, we first identified a list of environmental 

variables, known as “parameters,” related to the ocean, coast, and Great 

Lakes. We identified 75 environmental parameters, such as wave direction, 

salinity, and ocean temperature. We then reviewed NOAA’s entire observing 

systems portfolio to identify which of the systems collect data on at least one 

of these environmental parameters. We provided the list of ocean, coastal, 

and Great Lakes observing systems we identified to NOAA officials and 

incorporated their views into our final list as appropriate. To obtain 

descriptive information about the systems, we reviewed agency 

documentation, such as NOAA’s observing system summary reports, and

we interviewed NOAA officials.3 To identify NOAA’s costs to operate and 

maintain its ocean, coastal, and Great Lakes observing systems, we asked 

NOAA officials to provide cost data for these systems. NOAA does not have 

a process to track observing system operations and maintenance costs. 

However, as part of an analysis of its observing systems portfolio, NOAA 

gathered cost information for fiscal years 2012 through 2014 by surveying 

agency officials. We assessed the reliability of the information they provided 

by, among other things, reviewing documentation of NOAA’s data collection 

procedures and interviewing agency officials, including observing system 

program managers. We found the data to be sufficiently reliable for the 

purpose of our report, which is to provide an overview of the costs for 

NOAA’s ocean, coastal, and Great Lakes observing systems. The data may 

not, however, be sufficiently reliable for other purposes that require more 

accurate cost data, such as for making comparisons of the relative costeffectiveness of different observing systems. To determine the extent to 

which NOAA has taken steps to integrate and improve the cost-

 2

We included the Great Lakes in our review because some of the ocean and coastal 

observing systems we identified also maintain observing platforms in the Great Lakes. 

3

Observing system summary reports provide basic information about an observing system, 

such as the system’s name, its acronym, and the environmental parameters it measures, 

among other things.
Page 3 GAO-15-96 NOAA's Observing System

effectiveness of its portfolio of ocean, coastal, and Great Lakes observing 

systems, we reviewed agency and external documentation. Specifically, we 

reviewed NOAA plans related to managing the agency’s observing systems

portfolio and documentation of the agency’s observing systems

management activities. In addition, we reviewed internal NOAA reports and

external reviews that identified opportunities to improve the management 

and integration of the agency’s observing systems portfolio. We also 

interviewed NOAA officials regarding the agency’s observing systems 

management plans and activities. Appendix I contains a more detailed 

description of our objectives, scope, and methodology. See appendix II for a 

list of the ocean, coastal, and Great Lakes environmental parameters we 

identified.

We conducted this performance audit from September 2013 to November 

2014 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.

Six organizational entities within NOAA have responsibilities related to its 

ocean, coastal, and Great Lakes observing systems. NOAA has six line 

offices, which are responsible for executing the agency’s broad mission and 

programs. Five of those line offices operate and maintain observing 

systems.4 Staff offices support the line offices in achieving their missions 

and one staff office—the Office of Marine and Aviation Operations—also 

operates and maintains ocean, coastal, and Great Lakes observing systems. 

The missions of the six offices with responsibilities related to ocean, coastal, 

and Great Lakes observing systems are as follows:

• National Environmental Satellite, Data, and Information Service:

Provides timely access to global environmental data from satellites and 

other sources to promote, protect, and enhance the nation's economy, 

security, environment, and quality of life.

 4

The sixth line office, known as the Office of Program, Planning, and Integration, is 

responsible for coordinating agency-wide planning and evaluation activities.

Background 
Page 4 GAO-15-96 NOAA's Observing System

• National Marine Fisheries Service: Promotes stewardship of living 

marine resources through science-based conservation and management 

and the promotion of healthy ecosystems.

• National Ocean Service: Provides science-based solutions through 

collaborative partnerships to address evolving economic, environmental, 

and social pressures on the nation’s oceans and coasts. 

• National Weather Service: Provides weather, water, and climate data, 

forecasts, and warnings for the protection of life and property and 

enhancement of the national economy.

• Office of Oceanic and Atmospheric Research: Provides the research 

foundation for understanding the complex systems that support the 

planet.

• Office of Marine and Aviation Operations: Delivers effective earth 

observation capabilities, integrates emerging technologies, and provides 

a specialized, flexible, and reliable team responsive to NOAA and the 

nation. This office manages, maintains, and operates NOAA’s fleet of 

ships and aircraft, which the line offices use to gather data they need to

help achieve their missions.

NOAA is the lead federal agency responsible for implementing the 

Integrated Coastal and Ocean Observation System Act of 2009 and has 

established the U.S. Integrated Ocean Observing System (IOOS) program 

office.5 This office is part of NOAA’s National Ocean Service and works with 

18 federal agencies and 11 regional associations to expand, standardize, 

and integrate ocean observing systems and data.6 The U.S. IOOS program 

relies on the voluntary participation of its federal and regional partners to 

achieve its coordination objectives, which have focused primarily on 

increasing the data compatibility and integration among the observing 

systems owned by NOAA, other federal agencies, and regional partners. 

According to NOAA officials, the program does not manage any of these 

systems, including those ocean, coastal, and Great Lakes observing 

systems operated by NOAA.

 5

Pub. L. No. 111-11, tit. XII, subtit. C, 123 Stat. 991, 1427 (2009), codified at 33 U.S.C. §§

3601-3610.

6

Regional associations are made up of representatives of federal, state, local, and tribal 

governments; academic and research institutions, and other private entities. These 

associations have primary responsibility for coordination of the observing systems within their 

geographic regions, developing and integrating these assets with the federal system, data 

management, education, outreach, and delivering timely and effective products to meet user 

needs. 
Page 5 GAO-15-96 NOAA's Observing System

On the basis of our review of NOAA documents and discussions with 

agency officials, there are several ways in which integration could take place 

in the context of an observing systems portfolio. One way is by changing 

how a portfolio of observing systems is managed. This type of management 

integration could occur to different degrees along a continuum. At one end of 

the continuum, each individual observing system would be operated and 

managed separately by its program manager, with little or no higher-level 

organizational oversight. This would result in little to no integration because 

decisions about operating and maintaining each individual system would be 

made in isolation from each other. At the other end of the continuum, all the 

observing systems would be managed centrally, rather than at the individual 

program level. In this scenario, top-level managers would make decisions 

about operating and maintaining the organization’s portfolio of systems by 

considering trade-offs among all of the systems the organization manages. 

Between the two extremes of individual and central management, a number 

of other management approaches would offer different degrees of 

integration. For example, several observing systems within the portfolio 

could be grouped together and managed by a small number of 

organizational units or individual programs could manage their systems but 

also have some sort of oversight from higher levels in the organization. 

Another way that integration can occur is for data collected by observing 

systems to be integrated. For example, using a standardized data collection 

format and quality control protocols increases the comparability of data 

obtained from different observing systems. This would allow data from 

multiple systems to be combined more efficiently for analysis and to produce 

products, such as weather forecasts. Integration can also occur by 

combining physical components (hardware) of various observing systems, 

for example, by placing additional sensors on an existing platform to collect 

data on different environmental parameters. 

NOAA recognized the need to begin taking steps toward integrating its 

observing systems portfolio in 2002, when the Under Secretary of 

Commerce for Oceans and Atmosphere initiated a review to examine 

NOAA’s strengths and identify opportunities for improvement.7 Historically, 

most of NOAA’s observing systems were designed individually to meet 

specific data collection needs. For example, the Marine Optical Buoy 

observing system was designed to collect data on an environmental 

 7

National Oceanic and Atmospheric Administration, Program Review Report to Vice Admiral 

Conrad C. Lautenbacher, Jr. USN (Retired) Under Secretary of Commerce for Oceans and 

Atmosphere/ NOAA Administrator (May 22, 2002).
Page 6 GAO-15-96 NOAA's Observing System

parameter that is used by multiple satellites to validate their ocean color 

imagery data. 8 Most observing systems also used different data collection 

formats, which historically made it difficult to combine and use data from 

different systems. Management of NOAA’s observing systems portfolio was 

decentralized and, according to NOAA documents, the agency considered 

its systems to be “stovepiped.” The 2002 review generated many 

recommendations, one of which called for NOAA to centrally plan and 

integrate all observing systems. The report did not specify what central 

planning and integration of NOAA’s observing systems portfolio would look 

like or how the agency would accomplish these goals. NOAA officials we 

spoke with described this review as the catalyst for the actions the agency 

has taken since 2002 to address observing systems integration issues. 

We identified 41 ocean, coastal, and Great Lakes observing systems at 

NOAA. The Office of Oceanic and Atmospheric Research manages 14 of 

NOAA’s ocean, coastal, and Great Lakes observing systems and the 

National Ocean Service manages 11 observing systems. Management of 

the remaining 16 systems is split between four other NOAA offices. Table 1 

shows the number of ocean, coastal, and Great Lakes observing systems 

each NOAA office manages. See appendix III for an alphabetized list of the 

entire portfolio of NOAA’s ocean, coastal, and Great Lakes observing 

systems we identified and appendix IV for a list and descriptions of the 

systems organized by the office that manages them.

 8

Ocean color is the water hue due to the presence of tiny plants containing the pigment 

chlorophyll, sediments, and colored dissolved organic material.

NOAA Operates 41 

Ocean, Coastal, and 

Great Lakes 

Observing Systems 
Page 7 GAO-15-96 NOAA's Observing System

Table 1: Number of National Oceanic and Atmospheric Administration Ocean, Coastal, 

and Great Lakes Observing Systems by Office

Office

Number of ocean, coastal, 

and Great Lakes observing 

systems

National Environmental Satellite, Data, and 

Information Service 

5

National Marine Fisheries Service 3

National Ocean Service 11

National Weather Service 6

Office of Oceanic and Atmospheric Research 14

Office of Marine and Aviation Operations 2

Total

a

41

Source: GAO analysis of National Oceanic and Atmospheric Administration documentation. | GAO-15-96

a

The Office of Marine and Aviation Operation’s two observing systems—NOAA Ships and NOAA 

Aircraft—are fleets of 16 ships and 9 aircraft. 

The majority of NOAA’s ocean, coastal, and Great Lakes observing systems 

use one of three types of platforms—buoys, ships, or satellites—to collect 

data on environmental parameters.9 Buoys are used by 18 of the agency’s 

ocean, coastal, and Great Lakes observing systems. For example, the 

Chesapeake Bay Interpretive Buoy System consists of 11 buoys located in 

the Chesapeake Bay that collect meteorological, oceanographic, and waterquality data used to help protect and restore the area. (See fig. 1 for a map 

of the buoy’s locations in the Chesapeake Bay.) Five of the observing 

systems use a combination of NOAA ships or chartered vessels to collect 

data. The National Marine Fisheries Service’s Fish Surveys, for example, 

are conducted from ships and collect data on the distribution and abundance 

of commercially-targeted and ecologically-important fish species. Four of the 

observing systems use satellites as their primary platform. For example, the 

Jason Ocean Surface Topography Mission satellite collects data for use in 

ocean models to predict severe storm intensity. Other ocean and coastal 

observing systems also use satellites to transmit their data to land-based 

data centers. 

 9

A platform is the physical object where an observing system’s sensing element resides to 

collect or transmit data. While NOAA considers its fleets of ships and aircraft each to be 

observing systems, the individual ships and aircraft also serve as observing platforms. 
Page 8 GAO-15-96 NOAA's Observing System

Figure 1: Locations of Chesapeake Bay Interpretive Buoy System Buoys

Thirty-three of the 41 ocean, coastal, and Great Lakes observing system 

platforms are located in situ—meaning situated where the data are 

measured. For these systems, that means in the water. The other systems 

are located remotely (either on land or in the atmosphere) and look down at 

the environment they are measuring. Some in situ systems are on a fixed 

platform, such as a moored buoy. These types of platforms are used to 

obtain a series of measurements over a long time at the same location. For 

example, the National Weather Service’s Tropical Atmospheric Ocean buoy 

array was designed to study and predict climate variations due to the El Niño 
Page 9 GAO-15-96 NOAA's Observing System

Southern Oscillation on a year-to-year basis.10 This moored buoy system is 

located in the equatorial oceans and it collects data on several 

environmental parameters, such as air temperature and sea surface 

temperature, as shown in figure 2. The data are transmitted via satellite to 

NOAA and are used to assist in monitoring, predicting, and understanding El 

Niño and La Niña events. 

 10The El Niño Southern Oscillation is a naturally occurring phenomenon that involves 

fluctuating ocean temperatures in the equatorial Pacific Ocean. The pattern generally 

fluctuates between two states: warmer than normal temperatures in the central and eastern 

equatorial Pacific (El Niño) and cooler than normal temperatures in the central and eastern 

equatorial Pacific (La Niña).
Page 10 GAO-15-96 NOAA's Observing System

Figure 2: Configuration of a Tropical Atmospheric Ocean Buoy 

In contrast, other in situ systems use mobile platforms that measure how 

environmental parameters vary spatially, temporally, and geographically. For 

example, the Global Ocean Observing System Argo Profiling Floats use a 

free-drifting buoy system to collect data on the heat content and salinity of 

the upper ocean over a predetermined depth (up to 2,000 meters) and cycle 

time (10 days) as shown in figure 3. Data collected by an Argo float is 

available within hours of collection, which allows for continuous monitoring of 
Page 11 GAO-15-96 NOAA's Observing System

the state of the ocean and provides data for other scientific uses, such as 

weather forecasting and climate modeling, according to a NOAA official.

Figure 3: Data Collection Process for the Global Ocean Observing System Argo Profiling Floats

The agency’s ocean, coastal, and Great Lakes observing systems gather a 

broad range of data that NOAA uses to create a variety of products. In some 

cases, NOAA prepares products directly from data from an individual 
Page 12 GAO-15-96 NOAA's Observing System

observing system and, in other cases, the agency prepares products by 

combining and analyzing data from a number of observing systems. Some 

of NOAA’s products include the following: 

• Forecasts and warnings. NOAA provides weather, water, and climate 

forecasts and warnings for the nation, its territories, adjacent waters, and 

ocean areas that are used by the private and public sectors. The 

forecasts and warnings are derived from weather prediction models that 

use the data collected by the ocean, coastal, and Great Lakes observing 

systems. For example, the Coastal Weather Buoys observing system 

measures barometric pressure, wind direction, and air and sea 

temperature, and these data are used in weather prediction models to 

create forecasts. In addition, data from aircraft and satellites that observe 

ocean environmental parameters are used to develop severe storm and 

flash flood warnings.

• Scientific research. Data collected by the agency’s ocean, coastal, and 

Great Lakes observing systems are used to support NOAA’s research 

projects and activities.11 For example, the Ecosystems and FisheriesOceanography Coordinated Investigations observing system was 

established in 1984 and collects data on ecosystem changes in the Gulf 

of Alaska, Bering Sea, and Arctic Ocean. Scientists use the data to 

determine how biological and physical environmental trends, such as the 

loss of sea ice in the Bering Sea, are affecting Alaska’s marine 

ecosystems. In addition, the observing systems that comprise the Global 

Ocean Observing Systems collect long-term measurements of 

environmental parameters such as sea surface temperature and ocean 

current speed that can be used to help assess climate change.12 

• Navigation tools. Navigation tools are some of NOAA’s most important 

products, according to NOAA documents, because they help ensure the 

safe navigation of ports and harbors. Data collected by some of NOAA’s 

ocean, coastal, and Great Lakes observing systems are used to 

generate nautical charts. For example, the National Ocean-Shoreline 

observing system surveys the nation’s shorelines, and the Hydrographic 

Surveying observing system measures, among other things, the depth 

between the sea’s surface and the sea floor and the locations of 

 11NOAA’s data are also used by external organizations, such as federal, state, local, and 

tribal entities, according to NOAA officials.

12The Global Ocean Observing System is made up of several observing systems including 

Argo Profiling Floats, Ocean Carbon Networks, Ocean Reference Stations, Global Drifter 

Program, and the Global Tropical Moored Buoys.
Page 13 GAO-15-96 NOAA's Observing System

potentially hazardous obstructions. Data from both of these systems are 

used to create nautical charts of coastlines and ports that are used by 

ships engaged in maritime commerce. These charts are also used for 

other activities, such as port and harbor maintenance. 

• Emergency management and response. NOAA uses its ocean, 

coastal, and Great Lakes observing systems to provide data and 

information that the agency uses in its emergency response and 

management efforts. For example, the National Ocean Service’s 

National Water Level Observation Network observing system collects 

data on water levels and currents that are used to develop plans to 

contain oil spills. In addition, the Office of Marine and Aviation 

Operations uses its ships and aircraft to collect data on severe weather 

events, such as hurricanes, and in federal disaster response efforts.

NOAA estimates it spent approximately $430 million annually on average 

to operate and maintain its ocean, coastal, and Great Lakes observing 

systems in fiscal years 2012 through 2014.13 That amount is about 9 

percent of NOAA’s total annual appropriations for these years.14 NOAA 

provided us with estimated cost information because its budget structure 

and accounting system are not designed to capture costs at the observing 

system level.15 Of the 41 ocean, coastal, and Great Lakes observing 

systems, 4 have line items in NOAA’s budget that identify the amount of 

money dedicated to operating and maintaining those systems.16 Funding 

for the other observing systems comes from the budgets of various NOAA 

programs that cover multiple program activities, including the observing 

 13NOAA’s estimated costs for fiscal years 2012 and 2013 were based on final appropriations 

for those years. The estimates for fiscal year 2014 were based on the fiscal year 2014 

President’s budget request. 

14NOAA’s discretionary appropriation was $4.91 billion in fiscal year 2012 and $4.75 billion in 

fiscal year 2013, and the agency requested $5.45 billion in appropriations for fiscal year 2014. 

15Federal cost accounting standards require agencies to accumulate and report the costs of 

their activities on a regular basis for management information purposes. These standards 

establish objectives for agency cost accounting systems, but the standards do not impose a 

specific methodology on federal agencies to meet the objectives. Federal agencies have the 

flexibility to design cost accounting systems that best meet their needs. See Federal 

Accounting Standards Advisory Board: The Statement of Federal Financial Accounting 

Standards No. 4: Managerial Cost Accounting Standards and Concepts (Washington, D.C.: 

July 1995).

16The four observing systems are Hydrographic Surveying, Regional Ocean Observing

System, NOAA Ships, and NOAA Aircraft.

NOAA Spent about 

$430 Million Annually 

from Fiscal Year 2012 

through 2014 on the 

Operations and 

Maintenance of Its

Ocean, Coastal, and 

Great Lakes 

Observing Systems 
Page 14 GAO-15-96 NOAA's Observing System

systems. For example, the Sustained Ocean Observations and Monitoring 

program17 in the Office of Oceanic and Atmospheric Research provides 

funding for a variety of activities, including operating several observing 

systems, such as the Global Ocean Observing System Argo Profiling Floats, 

Ocean Reference Stations, and Ocean Carbon Networks, that are key 

components of the Global Ocean Observing System.18 All of the activities 

and observing systems within the Sustained Ocean Observations and 

Monitoring program are funded through a single line item in the NOAA 

budget, which does not identify specific amounts for each of the observing 

systems. 

According to NOAA’s estimated cost information, the agency’s annual 

operations and maintenance costs ranged from about $22 million at the 

National Marine Fisheries Service to $198 million at the Office of Marine and 

Aviation Operations in fiscal year 2014 (see table 2).

Table 2: National Oceanic and Atmospheric Administration’s Estimated Annual 

Operations and Maintenance Costs for Its Ocean, Coastal, and Great Lakes Observing 

Systems by Office, Fiscal Years 2012 to 2014 

Dollars in millions

Office

Fiscal year 

2012

Fiscal year 

2013

Fiscal year 

2014

Office of Marine and Aviation Operations $175 $181 $198 

National Ocean Service 72 73 76

National Environmental Satellite, Data, and 

Information Service 72 66 69

Office of Oceanic and Atmospheric Research 54 40 41

National Weather Service 34 33 37

National Marine Fisheries Service 25 24 22 

Total $432 $417 $443

Source: National Oceanic and Atmospheric Administration. | GAO-15-96

Note: Amounts rounded to nearest million.

 17The program’s objectives include improving the understanding of the physics, chemistry, 

and ecology of oceanic, coastal, and Great Lakes systems, and changes in these 

environments and the impacts of stressors such as pollution and invasive species.

18The Global Ocean Observing System provides data for climate research and prediction, 

weather and ecosystems research, weather and ocean predictions, and validation for NOAA 

satellite products.
Page 15 GAO-15-96 NOAA's Observing System

The two line offices with the highest reported annual costs for their 

observing systems for fiscal years 2012 through 2014 were the Office of 

Marine and Aviation Operations and the National Ocean Service. For the 

Office of Marine and Aviation Operations, these costs include operation and 

maintenance of NOAA’s fleet of specialized ships and aircraft, including the 

scientific and technical equipment they carry to collect data, according to 

NOAA documentation. For example, in fiscal year 2013, NOAA’s fleet 

included 16 active ships that provided 1,702 days at sea and 9 aircraft that 

provided 2,503 flight hours to programs in each of NOAA’s line offices to 

support observational activities needed to achieve their environmental and 

scientific missions.19 The National Ocean Service’s costs include operating 

11 ocean, coastal, and Great Lakes observing systems that collect data 

NOAA describes as being essential to safe, efficient, and sustainable uses 

of busy coastal areas and waterways. For example, some of these costs 

were for the Hydrographic Surveying observing system that provides data 

that are used primarily to develop nautical charts. The costs also included 

operating and maintaining the National Water Level Observation Network 

and the National Current Observation Program observing systems that

monitor tides, currents, water levels, and other environmental parameters. 

The data from these systems are used to create navigational products and 

provide other services. 

NOAA’s estimated annual costs vary widely across the different observing 

systems. In fiscal year 2014, NOAA’s costs ranged from nearly $170 million 

to operate the NOAA-owned ships that collect ocean and fisheries-related 

data, to $80,000 for the Ocean Acoustic Monitoring System. That system 

consists of mobile underwater hydrophones in the Pacific Ocean that are 

primarily used to listen for earthquakes, but they can also be used for 

observing some endangered marine species. The 10 systems with the 

highest estimated annual costs, as shown in table 3, together accounted for 

approximately 79 percent of NOAA’s annual costs to operate and maintain 

its ocean, coastal, and Great Lakes observing systems in fiscal year 2014. 

The largest item in the annual operations and maintenance costs for the 10 

systems varies depending on the type of observing system. For example, 

most of the costs for the Global Ocean Observing System Argo Profiling 

Float system are for the acquisition of new floats since deployed floats are 

not retrieved for maintenance. But, for the Coastal Weather Buoys, the 

 19These totals include ship days and flight hours provided using the Office of Marine and 

Aviation funding. They do not include additional ship days and flight hours that programs can 

obtain on NOAA’s ships and aircraft using their own funding. 
Page 16 GAO-15-96 NOAA's Observing System

major cost is labor to maintain the systems’ stations, sensors, and 

instruments. For other systems, such as Fish Surveys, ship time accounts 

for a majority of the annual operations costs. See appendix V for the annual 

costs for each of NOAA’s 41 ocean, coastal, and Great Lakes observing 

systems for fiscal years 2012 to 2014.

Table 3: Ten National Oceanic and Atmospheric Administration Ocean, Coastal, and Great Lakes Observing Systems with the 

Highest Estimated Annual Operations and Maintenance Costs, Fiscal Years 2012 to 2014 

Dollars in millions

Observing system Office

Fiscal year 

2012

Fiscal year 

2013

Fiscal year 

2014

NOAA Ships Office of Marine and Aviation 

Operations $147 $153 $170

Polar-Orbiting Operational 

Environmental Satellite

National Environmental Satellite, 

Data, and Information Service 32 29 29

NOAA Aircraft Office of Marine and Aviation 

Operations 28 28 28

Geostationary Operational 

Environmental Satellite N/O/P

National Environmental Satellite, 

Data, and Information Service 33 26 26

Hydrographic Surveying National Ocean Service 27 25 25

Regional Ocean Observing System National Ocean Service 16 18 19

Coastal Weather Buoys National Weather Service 20 18 18

Fish Surveys National Marine Fisheries Service 17 16 14

Deep-Ocean Assessment and 

Reporting of Tsunamis

National Weather Service

7 9 12

Global Ocean Observing System Argo 

Profiling Floats

Office of Oceanic and Atmospheric 

Research 10 10 10

Total $337 $332 $351

Source: National Oceanic and Atmospheric Administration. | GAO-15-96

Note: Amounts rounded to the nearest million.
Page 17 GAO-15-96 NOAA's Observing System

NOAA has not developed a plan for achieving an integrated observing 

system nor has it assessed whether there is unnecessary duplication in its 

observing systems. NOAA has created an observing systems council to 

provide a more centralized perspective on observing systems 

management and is working to obtain the capability to conduct analyses to 

help understand how to make its portfolio more cost-effective. However, 

NOAA has not developed a methodology to consistently capture accurate 

observing systems cost information for use in these analyses. 

In a variety of plans and reports NOAA has identified the need to move 

toward an integrated observing systems portfolio. For example: 

• Strategic Plan for Systems Integration. This 2004 plan states that 

NOAA “will manage our processes on a corporate-wide basis to include 

standardizing processes and practices at the enterprise level, moving 

away from the current practice of managing at the system level. We will 

design and plan, engineer and develop, and control and manage at the 

enterprise level as we move away from stovepipe systems and 

programs.”20 

• Buoy Recapitalization Strategic Plan. This 2009 plan, which focused 

on 19 of NOAA’s in situ buoy ocean observing systems, found that 

allowing individual programs within NOAA’s line offices to make portfolio 

management and funding decisions has created “an ever-increasing 

burden on NOAA to sustain a growing number of established systems, 

while continuing to develop new and innovative ones. In addition, the 

systems in the pipeline may not be the ones that NOAA deems most 

critical to the achievement of its future strategy.”21

 20National Oceanic and Atmospheric Administration, Strategic Direction for NOAA’s 

Integrated Global Environmental Observation and Data Management System (July 2004). 

Management at the “corporate-wide” and “enterprise level” in this context refers to centralized 

management across all of NOAA as opposed to management by individual programs or line 

offices.

21National Oceanic and Atmospheric Administration, Buoy Recapitalization Strategic Plan: 

Review of Current Processes (August 2009).

NOAA Has Not Taken 

All of the Steps It and 

Others Have 

Identified to Integrate 

and Improve the 

Cost-Effectiveness of 

Its Observing 

Systems Portfolio 

NOAA Has Not Developed 

a Plan for Achieving an 

Integrated Observing 

Systems Portfolio
Page 18 GAO-15-96 NOAA's Observing System

• 2012 Implementation Plan. NOAA’s 2012 implementation plan for its 

objective to produce accurate observation data identifies the need for 

NOAA to integrate the planning, operation, and data management of its 

observing systems.22

• NOAA Science Advisory Board Report. An April 2013 report from 

NOAA’s Science Advisory Board found that there was room for 

improvement—both in effectiveness and cost-efficiency—for NOAA 

observing systems.23 The report said that “given the need to protect and 

sustain resilient coastal communities, the absence of an integrated 

coastal observation system is a matter of particular concern.” 24

Our previous work has found that, in developing new initiatives, federal 

agencies can benefit from following leading practices for strategic planning.25

Taking steps toward managing NOAA’s observing systems as an integrated 

portfolio is a significant initiative for NOAA. The Government Performance 

and Results Act of 1993 (GPRA), as amended by the GPRA Modernization 

Act of 2010, was enacted to improve the efficiency and accountability of 

federal programs, among other purposes.26 The act, as amended, requires, 

among other things, that federal agencies develop long-term strategic plans 

that include agency-wide goals and strategies for achieving those goals. We 

have reported that these requirements also can serve as leading practices at 

lower levels within federal agencies, such as at NOAA, to assist with 

 22National Oceanic and Atmospheric Administration, NGSP Implementation Plan: Enterprise 

Objective: Accurate and Reliable Data from Sustained and Integrated Earth Observing 

Systems FY 2013-2019 (Nov. 26, 2012). NOAA prepares implementation plans for each of 

the goals and objectives in its strategic plan. The plans describe specific program activities 

and identify their budget requirements, assess risks of not funding these requirements, and 

present options for addressing these risks.

23The NOAA Science Advisory Board was established in 1997 and assists NOAA in 

maintaining a complete and accurate understanding of scientific issues critical to the agency’s 

missions. It has responsibility for advising the Under Secretary of Commerce for Oceans and 

Atmosphere on long- and short-range strategies for research, education, and the application 

of science to resource management and environmental assessment and prediction. 

24National Oceanic and Atmospheric Administration’s Scientific Advisory Board, A Report 

from the NOAA Science Advisory Board: In the Nation’s Best Interest: Making the Most of 

NOAA’s Science Enterprise (Apr. 12, 2013).

25For example, see GAO, Environmental Justice: EPA Needs to Take Additional Actions to 

Help Ensure Effective Implementation, GAO-12-77 (Washington, D.C.: Oct. 6, 2011) and 

GAO, Environmental Protection: EPA Should Develop a Strategic Plan for Its New 

Compliance Initiative, GAO-13-115 (Washington, D.C.: Dec. 120, 2012). 

26Pub. L. No. 103-62, 107 Stat. 285 (1993), amended by Pub. L. No. 111-352, 124 Stat. 3866 

(2011). 
Page 19 GAO-15-96 NOAA's Observing System

planning for individual programs or initiatives.27 Taken together, the strategic 

planning elements established under the act and associated Office of 

Management and Budget guidance and practices we have identified provide 

a framework of leading practices in federal strategic planning.28 These 

practices include defining a program’s or initiative’s goals, defining strategies 

and identifying the resources needed to achieve the goals, and developing 

and using performance measures to track progress in achieving them. 

NOAA has not, however, developed a plan that sets forth a clear vision of 

(1) what it wants its integrated portfolio of observing systems to look like and 

how it will be managed, (2) its strategy for taking the steps necessary to 

move toward this target systems architecture and management approach, or 

(3) how to measure progress toward the goal of an integrated observing 

systems portfolio. A NOAA official told us that the 2004 strategic plan for 

systems integration is not being used to guide its current systems integration 

efforts, and no other integration plan exists. One of the actions identified in 

the 2004 strategic plan was the development of a NOAA observing systems 

architecture master plan. This plan would “allow NOAA leaders to determine 

which future observing and data management systems NOAA needs to 

meet our users’ current and evolving environmental information 

requirements.”29 According to a NOAA official, this plan was never 

developed. One of the long-term outcomes identified by the 2012 

implementation plan, to be accomplished between fiscal years 2014 and 

2018, is the development of a plan for an integrated observing system 

portfolio that meets the full range of needs of NOAA’s strategic objectives. A 

NOAA official also told us that they are not working on developing this 

observing systems integration plan. Instead, the NOAA official said the 

 27For example, see GAO, Foreign Aid Reform: Comprehensive Strategy, Interagency 

Coordination, and Operational Improvements Would Bolster Current Efforts, GAO-09-192

(Washington, D.C.: Apr. 17, 2009) and GAO, Pipeline Safety: Management of the Office of 

Pipeline Safety’s Enforcement Program Needs Further Strengthening, GAO-04-801

(Washington, D.C.: July 23, 2004).

28For example, see GAO, Executive Guide: Effectively Implementing the Government 

Performance and Results Act, GAO/GGD-96-118 (Washington, D.C.: June 1, 1996); GAO, 

Tax Administration: IRS Needs to Further Refine Its Tax Filing Season Performance 

Measures, GAO-03-143 (Washington, D.C.: Nov. 22, 2002); GAO, Managing for Results: 

Strengthening Regulatory Agencies’ Performance Management Practices, GAO/GGD-00-10

(Washington, D.C.: Oct. 28, 1999); and Office of Management and Budget, Circular No. A-11, 

Preparation, Submission, and Execution of the Budget (2014). 

29National Oceanic and Atmospheric Administration, Strategic Direction for NOAA’s 

Integrated Global Environmental Observation and Data Management System.
Page 20 GAO-15-96 NOAA's Observing System

agency has focused on taking tangible actions. For example, the agency 

established an observing systems council to provide a more centralized 

perspective on observing systems management. However, without a plan 

describing what NOAA’s integrated observing systems portfolio should look 

like and how it will be managed, a strategy for moving toward this target 

architecture and management approach, and performance measures related 

to systems integration, NOAA cannot be assured that it has established a 

framework to effectively guide and assess the success of its observing 

systems integration efforts and for its stakeholders to track the agency’s 

efforts and hold it accountable. In addition, without a detailed plan and 

performance measures, NOAA could waste resources, time, and effort in a 

constrained budget environment, pursuing activities that may not prove 

effective in creating an integrated observing systems portfolio.

Since 2010, some NOAA planning documents have identified the need to 

reduce systems costs by eliminating unnecessary duplication.30 For 

example, one of the agency-wide objectives in NOAA’s 2010 strategic plan 

was to collect accurate and reliable data through a sustained and integrated 

observing system. The plan said that pursuing this objective would include 

reducing the costs of observations through, among other things, “reducing

unnecessarily duplicative capabilities.”31 Similarly, NOAA’s 2012 

implementation plan for its objective to produce accurate observation data 

included as a short-term outcome “[r]educed, consolidated, and/or closed 

observing sites and sensors based on quality and utility of observations 

supporting all NOAA needs.”32 NOAA officials did not, however, provide 

documentation of any observing sites that have been reduced, consolidated, 

or closed since the agency developed the 2012 implementation plan even 

though these outcomes were to be accomplished in fiscal years 2012 or 

2013.

 30According to NOAA officials, duplication in data collection can sometimes be necessary if 

the data are needed to meet a critical mission need. The duplicative data would serve as a 

backup to the primary data source if it failed. 

31National Oceanic and Atmospheric Administration, NOAA’s Next-Generation Strategic Plan

(Silver Spring, MD.: December 2010).

32National Oceanic and Atmospheric Administration, NGSP Implementation Plan: Enterprise 

Objective: Accurate and Reliable Data from Sustained and Integrated Earth Observing 

Systems FY 2013-2019.

NOAA Has Not 

Assessed Whether 

There Is Unnecessary 

Duplication in Its 

Observing Systems 

Portfolio
Page 21 GAO-15-96 NOAA's Observing System

Although NOAA documents have indicated a need for the agency to reduce 

unnecessary duplication in observing systems capabilities, NOAA officials 

we spoke with said they were not aware of any duplication in the geographic 

distribution of NOAA’s ocean, coastal, and Great Lakes observing systems 

or of unnecessarily duplicative data being collected. One official said that 

given the vastness of the ocean environment, NOAA’s observing systems 

were more likely under-sampling than over-sampling. In addition, officials 

we spoke with said the agency had not identified any unnecessary 

duplication in the data collected by its observing systems portfolio. NOAA 

officials could not, however, provide documentation of any analyses that 

NOAA has conducted to support its conclusion that unnecessary duplication 

does not exist in the data collected by its ocean, coastal, and Great Lakes 

observing systems. NOAA officials said the agency’s existing analytical tools

have limited ability to determine whether there is duplication in the data 

collected by its observing systems. 

In our analysis of the 75 environmental parameters measured by NOAA’s 

ocean, coastal, and Great Lakes observing systems, we identified several 

parameters that are measured by multiple observing systems, suggesting 

the potential for unnecessary duplication in the data being collected. For 

example, as shown in table 4, 21 observing systems, including at least 1 

system operated by each of NOAA’s line offices, currently collect data on 

sea surface temperature. Not all of these systems may need to collect sea 

surface temperature data to meet the needs of NOAA’s programs. However, 

according to NOAA officials, there are a variety of reasons why multiple 

observing systems might measure the same parameters. First, the systems 

may all be collecting data, such as sea surface temperature, in different 

locations. Second, in some situations, collecting data on the same 

environmental parameter is done purposefully to maintain continuity of data 

collection in the event that one system failed. Third, different observing 

systems may collect data on the same environmental parameter but at 

different times or with different degrees of accuracy. While one or more of 

these reasons, or some other reasons, may be why 21 observing systems 

collect data on sea surface temperature, NOAA officials could not provide 

analysis or documentation to show that unnecessary duplication does not 

exist. NOAA officials told us they do not believe unnecessary duplication in 

data collection in the agency’s observing systems portfolio is a significant 

problem requiring further analysis. However, without analyzing whether 

there is unnecessary duplication or opportunities to reduce or consolidate 

observations, NOAA would not know if there were opportunities to achieve 

cost savings. 
Page 22 GAO-15-96 NOAA's Observing System

Table 4: Environmental Parameters Measured Most Often by National Oceanic and Atmospheric Administration’s Ocean, 

Coastal, and Great Lakes Observing Systems 

Environmental 

parameter

Number of observing 

systems collecting 

data for this 

parameter

Number of observing systems by line office

Total 

number 

of 

offices

National 

Environmental 

Satellite, Data, and 

Information Service

National 

Ocean 

Service

National 

Marine 

Fisheries 

Service

National 

Weather 

Service

Office of 

Oceanic and 

Atmospheric 

Research

Sea surface 

temperature 21 3 5 1 3 9 5

Ocean surface winds: 

speed 14 1 4 1 3 5 5

Ocean temperature: 

profiles 12 a 0 0 0 1 11 2

Ocean surface winds: 

direction 11 0 3 0 3 5 3

Salinity: surface 11 0 4 1 1 5 4

Ocean currents: speed, 

surface 10 0 4 1 1 4 4

Ocean currents: speed, 

profiles 9 0 1 0 1 7 3

Atmospheric pressure: 

sea level 8 0 1 0 3 4 3

Ocean currents: 

direction, surface 8 0 3 1 1 3 4

Ocean currents: 

direction, profiles 7 0 1 0 1 5 3

Source: GAO analysis of National Oceanic and Atmospheric Administration documentation. | GAO-15-96

a

A “profile” is a type of measurement collected at different depths or heights depending on the variable 

being measured.

NOAA’s 2002 agency-wide review recommended the development of a 

“cross-cut team” to centrally plan and integrate the management of its 

observing system portfolio.33 In response to the recommendation, the 

agency created the NOAA Observing System Council (NOSC), which held 

its first meeting in July 2003. The NOSC consists of representatives from 

each of the six line offices, the Office of Marine and Aviation Operations, 

the Chief Financial Officer, and the Chief Information Officer. The 

 33NOAA, Program Review Report to Vice Admiral Conrad C. Lautenbacher, Jr. USN (Retired) 

Under Secretary of Commerce for Oceans and Atmosphere/ NOAA Administrator.

NOAA Has Created a 

Council to Help Integrate 

the Management of Its

Observing Systems 

Portfolio 
Page 23 GAO-15-96 NOAA's Observing System

Assistant Secretary of Commerce for Environmental Observation and 

Prediction chairs the NOSC, with support provided by three vice chairs.34

The purpose of the NOSC is to provide a more centralized, agency-wide 

perspective on the management of NOAA’s observing systems. However, 

according to NOAA officials, individual programs within NOAA’s line offices

are still responsible for operating and managing their observing systems. 

According to NOAA officials and documents, the NOSC coordinates all of 

the agency’s observing systems portfolio and data management activities 

and provides recommendations to the NOAA Executive Council on 

observing system investments. For example, in 2009, the NOSC appointed 

a team, with representation from each line and one staff office, to review 

analyses of 25 alternatives related to NOAA’s observing system portfolio. 

The team recommended whether the various options should or should not 

be funded. For example, the team recommended funding to expand annual 

fish surveys that provide data for fish stock assessments conducted by the 

National Marine Fisheries Service, in part, because the assessments were 

both a line office and agency priority. According to NOAA documentation, 

NOAA’s Program Analysis and Evaluation Office planned to use the team’s 

recommendations as part of the agency’s planning and budgeting process 

for fiscal years 2013 through 2017.35 

The NOSC, in 2004, established the Technology, Planning and Integration 

for Observation (TPIO) program office to assist in conducting technical 

analyses to support the NOSC’s recommendations to NOAA leadership on 

integrating and improving the cost-effectiveness of the agency’s observing 

system portfolio. According to NOAA documentation, TPIO identifies: (1) 

NOAA’s observation requirements, (2) NOAA’s observing system and data 

management capabilities, (3) gaps between observation requirements and 

capabilities, and (4) observing system and data management solutions to 

fulfill NOAA’s observational requirements. For example, in 2011, TPIO 

conducted an analysis of observational needs for six of NOAA’s high priority 

 34The vice chair positions on the NOAA Observing System Council are held by the Assistant 

Administrator for Satellite and Information Services (National Environmental Satellite, Data, 

and Information Service), the Assistant Administrator for Weather Services (National Weather 

Service), and the Director of the Office of Marine and Aviation Operations. 

35NOAA’s Program Analysis and Evaluation office oversaw the agency’ planning and 

budgeting process until a new process—called strategy, execution, and evaluation—was 

implemented in 2011. The Office of Program Planning and Integration is responsible for the 

current process. 
Page 24 GAO-15-96 NOAA's Observing System

program areas, including fisheries management and tide and current data. 

Specifically, the analysis examined the effect to the programs if NOAA no 

longer collected data on key observational requirements.36 For example, 

TPIO’s analysis found that four observing systems collect data on key 

requirements related to tides and currents and, if these systems were no 

longer funded, key data on these requirements would no longer be available. 

The purpose of the analysis was to provide an agency-wide perspective to 

NOAA leadership on which high-priority programs were critical to fund in an 

increasingly constrained fiscal environment. NOAA officials told us this 

particular analysis was only conducted once as the agency decided to invest 

in other analytical tools to assist with its decision making. 

In 2009, the NOSC formed a subcommittee—the Observing Systems 

Committee—consisting of representatives from NOAA’s line and staff 

offices. According to NOAA documentation, the Observing Systems 

Committee’s purpose is to conduct analyses of the current observing 

systems portfolio and provide recommendations to the NOSC for changes in 

the configuration of the portfolio to maximize its benefits. For example, 

according to NOAA officials, one of the Observing Systems Committee’s first 

activities was to develop the criteria to identify NOAA’s “observing systemsof-record.” Observing systems-of-record are those systems that the agency 

deems necessary to meet its mission and receive sustained funding. As of 

2014, the Observing Systems Committee has identified 108 observing 

systems of record, which includes nearly all of the 41 ocean, coastal, and 

Great Lakes systems we identified.37

The NOSC also established a second subcommittee in 2009—the 

Environmental Data Management Committee—which includes members 

from each line office and the Office of Marine and Aviation Operations. This 

subcommittee (1) coordinates the development of NOAA’s data 

management strategy related to its observing systems, (2) provides 

guidance to promote consistent implementation across NOAA, and (3) 

 36An observation requirement is an environmental parameter that a line office needs to 

measure to be able to help achieve its mission. 

37Thirty-nine of the 41 ocean, coastal, and Great Lakes observing systems we identified are 

NOAA systems of record. The other two observing systems—Airborne Oceanographic 

Product and the Ocean Acoustic Monitoring System—NOAA categorizes as “innovative 

technologies” rather than observing systems of record. According to NOAA documentation, 

innovative technologies are promising new concepts or technologies that NOAA funds but 

has not yet transitioned to sustained operations. 
Page 25 GAO-15-96 NOAA's Observing System

identifies opportunities to improve the usability of its data. For example, in 

response to a recommendation from NOAA’s Science Advisory Board, in 

2013 the committee developed an agency-wide environmental data 

management framework that defines the policies, requirements, activities, 

and technical considerations relevant to the management of NOAA’s 

observational data and products.38

To enhance NOAA’s ability to understand and make cost-effective 

management decisions for its entire observing system portfolio, of which the 

ocean, coastal, and Great Lakes observing systems are a part, the agency 

has developed some analytical tools:

• NOAA Observing System Architecture database. The database, 

initially created in 2003, provides a comprehensive list of NOAA’s 

observing systems and their capabilities. Currently, the NOAA Observing 

System Architecture database includes documentation on more than 200 

observing systems that are operational, planned, in development, used 

for research purposes, retired, or canceled. About half of the systems 

are associated with other federal agencies, states and localities, the 

commercial sector, or foreign countries. NOAA includes these systems in 

the database because they are deemed important to the agency’s 

mission, according to NOAA officials. TPIO is responsible for updating 

and managing the database and uses it to analyze NOAA’s observing 

system capabilities. In 2008 and 2009, TPIO used the database to help 

prepare analyses to support observing system investment decisions. For 

example, TPIO examined whether to fund additional aerial data 

collection for shoreline and coastal areas for use in nautical maps. 

• Consolidated Observation Requirements List. The NOSC developed 

this database in 2003 to create a more formalized process for NOAA to 

identify, collect, document, and update its observational needs and 

requirements. After a line office has identified the environmental 

parameters that it believes need to be measured, it assigns each one a 

priority level.39 TPIO and the line office then initiate a validation process 

 38National Oceanic and Atmospheric Administration, NOAA Environmental Data Management 

Framework, Version 1.0 (Mar. 14, 2013). 

39NOAA’s three priority levels are: 1 (mission critical), 2 (mission optimal), and 3 (mission 

enhancing).

NOAA Is Working to 

Develop Analytical 

Capabilities to Improve 

the Cost-Effectiveness of 

Its Observing Systems 

but Has Not Developed a 

Methodology to 

Consistently Capture 

Cost Information 
Page 26 GAO-15-96 NOAA's Observing System

for those observing requirements identified as priority-1.40 According to 

NOAA documentation, the purpose of the validation process is to confirm 

that a program needs to observe a specific environmental parameter. 

After the NOSC reviews and concurs with the validated observation 

requirement, it is added to the database.41 NOAA officials told us the 

database now contains information on more than 1,000 validated 

observation requirements. NOAA officials said the agency still needs to 

document the observing requirements for about 15 percent of the 

agency’s ocean and coastal programs. According to NOAA officials, they 

use the Consolidated Observation Requirements List and the NOAA 

Observing System Architecture databases as analytical tools to help 

focus their investment decisions on high-priority observation 

requirements. For example, TPIO can compare observational 

capabilities listed in the system architecture database with observational 

requirements listed in the requirements list database to identify gaps 

between capabilities and requirements. 

• NOAA Observing Systems Integrated Analysis. The NOAA Observing 

Systems Integrated Analysis model is a tool intended to help compare 

the cost-effectiveness of the agency’s observing systems in obtaining 

mission-critical data and to inform investment decisions. Two external 

reviews conducted in 2010 at the request of NOAA found that the 

agency had developed tools such as the NOAA Observing Systems 

Architecture and Consolidated Observation Requirements List 

databases, but there was no mechanism to evaluate the observing 

systems portfolio agency-wide.42 As a result, NOAA developed a pilot 

integrated analysis model, known as NOSIA-I, which was completed in 

December 2011. The NOSC, in March 2012, decided to expand the pilot 

model so it could analyze the agency’s entire observing systems portfolio 

including operational observing systems and satellites under 

 40The NOSC only reviews and concurs with priority-1 observation requirements; however, the 

Consolidated Observation Requirements List database includes all the observation 

requirements regardless of their priority status. 

41An example of a validated observing requirement is “benthic habitat mapping and 

characterization.” A program office within the National Ocean Service needs to map and 

gather data to characterize the benthic habitat—the ecological region at the lowest level of 

the ocean—at 200 sites in the coastal United States to meet its objective of better 

understanding, protecting, and restoring the health and resilience of coastal ecosystems.

42MITRE, Process Improvement Assessment of NOAA TPIO’s Investment Analysis 

Approach: Final Report, (Aug. 27, 2010) and The Pleiades Institute, Process Improvement 

Assessment of NOAA Technology, Planning and Integration Office Investment Analysis 

Methodology: Final Report (July 29, 2010).
Page 27 GAO-15-96 NOAA's Observing System

development. As of September 2014, the expanded model (NOSIA-II) is 

still in development but, according to NOAA officials, it is expected to be 

fully operational by August 2015. The expanded model includes 

information on NOAA’s strategic goals and objectives, key products, 

qualitative performance ratings of the observing systems, and their 

costs. According to NOAA officials, the cost information is important 

because it will be used in analyses to help inform management decisions 

on observing system investments. For example, NOAA could use it to 

show different ways that the agency could absorb a 5 percent budget cut 

for its observing systems and how best to allocate those cuts to still allow 

the agency to meet its mission. 

However, the two external reviews conducted in 2010 identified concerns 

with the quality of the cost information NOAA collected on its observing 

systems. Specifically: 

• One review found that NOAA does not have guidance on how to capture 

costs associated with its observing systems and has limited 

documentation to support its reported observing systems costs. It also 

found a major weakness in the apparent lack of any formal, documented 

process for preparing and reporting observing system costs. Based on 

their assessment, the reviewers were concerned that there was a low 

level of consistency in observing system cost information across line 

offices.43

• The other review similarly found (1) accurate cost data for NOAA’s 

observing systems appeared very difficult to determine due to 

accounting differences and no standard process for how to record and 

report the data within programs and (2) a lack of consistency in what 

programs included in their observing system costs.44 The review 

concluded that more work was needed to improve the quality and 

accounting of costs for NOAA’s observing systems. 

NOAA documents have also recognized the need for accurate cost 

information for its observing systems in order to assess the costeffectiveness of its portfolio. For example, NOAA’s 2012 implementation 

plan for its objective to collect accurate observation data states that “it is 

critical that NOAA have the capability to determine the optimum portfolio of 

 43MITRE, Process Improvement Assessment of NOAA TPIO’s Investment Analysis 

Approach: Final Report.

44The Pleiades Institute, Process Improvement Assessment of NOAA Technology, Planning 

and Integration Office Investment Analysis Methodology: Final Report.
Page 28 GAO-15-96 NOAA's Observing System

observing systems that enable it to accomplish its mission in the most costeffective, efficient, and economic manner possible.”45 The implementation 

plan further stated that it is critical that NOAA’s Chief Financial Officer 

develop a standardized methodology for obtaining accurate cost information 

to support investment analyses and to improve the cost-effectiveness of 

NOAA’s observing systems portfolio. Specifically, according to NOAA 

documents, it is important that the NOAA Observing Systems Integrated 

Analysis model include accurate, consistent, and up-to-date cost information 

on all of NOAA’s individual observing systems. Without reliable, consistent 

cost data, comparisons of the cost-effectiveness of various systems would 

not be accurate. However, in a 2013 presentation on the status of the 

development of the model, TPIO noted that observing system cost data 

needs to be improved and is likely the weakest component of the model.46

NOAA has taken limited steps to improve the quality of these data. Officials 

from the Office of the Chief Financial Officer told us they were not working 

on developing the methodology identified in NOAA’s 2012 implementation 

plan. The officials told us they do not have the technical expertise and 

knowledge of the operational requirements of the observing systems to 

develop this methodology, and suggested it should be done through the 

NOSC. TPIO officials told us they do not have in-house expertise in this 

area, and that is why the implementation plan delegated this responsibility to 

the NOAA Chief Financial Officer. TPIO officials said that earlier this year 

they had informal discussions with the staff from NOAA’s budget and finance 

offices to address the need for a standardized methodology for estimating 

the costs of its observing systems. According to NOAA officials, the NOAA 

Chief Financial Officer has since asked a committee to explore developing a 

better method for tracking observing system costs though no time frame for 

doing so has been established. Without accurate, consistent, and reliable 

cost information, the observing system integrated analysis model will not 

provide decision makers with the best information to make decisions 

regarding investment trade-offs and to improve the cost-effectiveness of 

NOAA’s observing systems portfolio.

 45National Oceanic and Atmospheric Administration, NGSP Implementation Plan: Enterprise 

Objective: Accurate and Reliable Data from Sustained and Integrated Earth Observing 

Systems FY 2013-2019.

46National Oceanic and Atmospheric Administration, NOAA Observing Systems Integrated 

Analysis (NOSIA) & National Earth Observation Assessment (EOA) PALMA Models: 

Technology, Planning and Integration for Observation Briefing for Dr. Uccellini (Mar. 12, 

2013).
Page 29 GAO-15-96 NOAA's Observing System

NOAA has identified a need to better integrate and improve the costeffectiveness of its portfolio of observing systems, including ocean, 

coastal, and Great Lakes systems. The agency has taken some positive 

steps toward integrating its portfolio, such as creating an observing 

systems council to provide a more centralized, agency-wide perspective 

on the management of its observing systems and developing databases 

that catalogue the agency’s observing requirements and capabilities. The 

agency has not, however, developed a plan for systems integration that 

identifies what it wants the portfolio of observing systems to look like in 

the future and includes ways for NOAA to measure and track its progress 

toward its goals. Without such a plan, NOAA does not have a detailed, 

transparent framework to effectively guide and assess the success of its 

observing systems integration efforts, and it will be difficult for 

stakeholders to hold the agency accountable for meeting its integration 

goals. Also, because NOAA has not assessed whether there is 

unnecessary duplication in its observing systems portfolio, the agency 

may be missing opportunities to reduce duplication and achieve cost 

savings. Finally, NOAA does not have consistent, reliable information on 

the costs associated with operating and maintaining each of its observing 

systems. This will make it difficult for NOAA to use its observing systems 

integrated analysis model to produce accurate comparisons of the costeffectiveness of its observing systems or provide decision makers with 

the best information for making informed investment decisions. 

To help strengthen the management and cost-effectiveness of NOAA’s 

observing systems portfolio, including ocean, coastal, and Great Lakes 

systems, we recommend that the Secretary of Commerce direct the 

NOAA Administrator to take the following three actions:

• Develop a plan for observing systems integration that includes

• a description of what an integrated portfolio of observing systems will 

include and achieve and how it will be managed,

• the steps necessary to move toward an integrated portfolio of 

observing systems, and

• how to measure progress toward the goal of an integrated observing 

systems portfolio.

• Analyze the extent to which unnecessary duplication exists in NOAA’s 

portfolio of observing systems.

• Develop a standardized methodology for the routine preparation and 

reporting of observing systems cost data. 

Conclusions

Recommendations for 

Executive Action
Page 30 GAO-15-96 NOAA's Observing System

We provided a draft of this report to the Department of Commerce for 

comment. In its written comments, (reproduced in appendix VI), NOAA, 

providing comments on behalf of Commerce, generally agreed with our 

recommendations. In commenting on the recommendation that NOAA 

develop a plan for observing systems integration, NOAA’s response focused 

on the 41 ocean, coastal, and Great Lakes observing systems identified in 

the report and acknowledged there is no single observing plan for these 

systems. NOAA listed existing observing plans for several of its ocean, 

coastal, and Great Lakes observing systems and said it plans to build off of 

these and other existing documents to explore the feasibility of enacting this 

recommendation. From NOAA’s response, it appears the agency believes 

that our recommendation was directed only at its 41 ocean, coastal, and 

Great Lakes observing systems. This is not the case. NOAA does not 

manage the 41 ocean, coastal, and Great Lakes observing systems as a 

separate portfolio and we are not recommending that they do so. Rather, we 

recommended that NOAA develop a plan for integrating the agency’s entire 

observing systems portfolio, including the ocean, coastal, and Great Lakes 

observing systems. In response to the recommendation that NOAA analyze 

the extent to which unnecessary duplication exists in NOAA’s portfolio of 

observing systems, NOAA acknowledged a continued need to do so and 

said it has taken steps in this regard with the development of the NOAA 

Observing Systems Integrated Analysis model. In response to our 

recommendation that NOAA develop a standardized methodology for the 

routine preparation and reporting of observing systems cost data, NOAA 

said that it agrees with this recommendation and has already begun talks to 

address how its accounting system could collect and report cost data for all 

observing systems of record. 

NOAA also provided three general comments. First, NOAA said that the title 

of the report should refer to NOAA’s ocean, coastal, and Great Lakes 

observing systems, since that was the original scope of our study. While two 

of the report’s objectives address only ocean, coastal, and Great Lakes 

observing systems, the third objective examines the extent to which NOAA 

has taken steps to integrate and improve the cost-effectiveness of its 

portfolio of observing systems, including ocean, coastal, and Great Lakes 

systems. Our recommendations address the third objective and 

consequently we believe the report title is both accurate and appropriate. 

Second, NOAA said that it has long seen the need for an integrated and 

cost-effective observing systems portfolio, which is vital to maximizing the 

benefits of ocean, coastal, and Great Lakes information for the nation. 

NOAA said it has dedicated a large effort over the past decade to 

systematically develop management structures as well as tools to address 

these issues. We agree that NOAA has developed management structures 

and tools and the report includes examples of both. Third, NOAA said that 

Agency Comments 

and Our Evaluation
Page 31 GAO-15-96 NOAA's Observing System

the fact that key parameters, such as temperature, are measured by multiple 

observing systems is not in itself an indicator of potential duplication. We 

agree. However, our report noted that multiple systems measuring the same 

parameter suggested the potential for unnecessary duplication and we 

recommended that NOAA analyze the extent to which unnecessary 

duplication exists in its portfolio of observing systems. NOAA also provided 

technical comments that we incorporated into the report as appropriate.

We are sending copies of this report to the appropriate congressional 

committees, the Secretary of Commerce, the NOAA Administrator, and other 

interested parties. In addition, the report is available at no charge on the 

GAO website at http://www.gao.gov. 

If you or your staff members have any questions about this report, please 

contact me at (202) 512-3841 or fennella@gao.gov. Contact points for our 

Office of Congressional Relations and Public Affairs may be found on the 

last page of this report. Key contributors to this report are listed in appendix 

VII. 

Anne-Marie Fennell 

Director, Natural Resources and Environment 
Appendix I: Objectives, Scope, and Methodology

Page 32 GAO-15-96 NOAA's Observing System

This report (1) identifies and describes the ocean, coastal, and Great Lakes 

observing systems the National Oceanic and Atmospheric Administration’s 

(NOAA) operates, (2) identifies the annual operations and maintenance 

costs of these systems for fiscal years 2012 through 2014, and (3) examines 

the extent to which NOAA has taken steps to integrate and improve the costeffectiveness of its portfolio of observing systems, including ocean, coastal, 

and Great Lakes systems.

To identify which of NOAA’s observing systems collect data on oceans, 

coasts, and the Great Lakes, we first identified a list of environmental 

variables, known as “parameters” related to the ocean, coast, and Great 

Lakes. After consulting with NOAA officials, we determined that National 

Aeronautics and Space Administration’s Global Change Master Directory 

contained the federal government’s most complete list of these 

environmental parameters. The directory is a Web-based catalogue that we 

accessed in October 2013 to identify the 74 environmental parameters it 

contained related to the oceans, coasts, and Great Lakes.1 For example, the 

environmental parameters we identified included wave direction, sea level, 

salinity, and ocean temperature. In addition, we also identified another 

environmental parameter, stock assessment, based on NOAA 

documentation and interviews with NOAA officials. Our final number of 

environmental parameters related to NOAA’s ocean, coastal, and Great 

Lakes observing systems totaled 75. See appendix II for a list of the 75 

environmental parameters we identified. 

We then reviewed all of the systems that make up NOAA’s observing 

systems portfolio, as captured in its observing system architecture database, 

to identify which ones collect data on at least one of the 75 environmental 

parameters. This review identified 47 ocean, coastal, and Great Lakes 

observing systems. To obtain our final list of 41 systems, we excluded 

observing systems that, according to NOAA documentation, are not yet 

deployed or collect data for short-term, limited-scope research experiments. 

If NOAA’s documentation was unclear for a specific observing system, we 

spoke with the NOAA officials responsible for the system to determine 

whether the system was operational. The observing systems we excluded 

were (1) Joint Polar Satellite System, (2) Geostationary Operational 

Environmental Satellite I-P, (3) Marine Sound, (4) Jason Ocean Surface 

 1

The National Aeronautics and Space Administration’s Global Change Master Directory’s url 

address is http://gcmd.nasa.gov/. 

Appendix I: Objectives, Scope, and 

Methodology 
Appendix I: Objectives, Scope, and Methodology

Page 33 GAO-15-96 NOAA's Observing System

Topography Mission 3, (4) Autonomous Underwater Vehicles, (5) 

Unmanned Aerial System, and (6) Animal Borne Tagging and Bar Code. We 

provided the list of ocean, coastal, and Great Lakes observing systems we 

identified with NOAA officials for their review and comment and incorporated 

their views into our final list as appropriate. See appendix III for an 

alphabetized list of the 41 NOAA ocean, coastal, and Great Lakes observing 

systems we identified.

To obtain descriptive information about the systems we identified, we 

reviewed agency documentation, including NOAA’s observing system 

summary reports, budget summaries, and agency reports and 

presentations.2 We also interviewed NOAA officials, such as the principal 

investigators for individual observing systems, program managers that 

oversee more than one observing system, or line office officials familiar with 

the observing systems operated and maintained by their offices. We 

provided our descriptions of NOAA’s ocean, coastal, and Great Lakes 

observing systems with NOAA officials for their review and comment and 

incorporated their views into our final descriptions as appropriate. See 

appendix IV for a list and descriptions of the observing systems organized 

by the office that manages them. 

To identify NOAA’s annual costs to operate and maintain its ocean, coastal, 

and Great Lakes observing systems, we asked NOAA officials to provide 

cost data for these systems. In response, NOAA officials explained that this 

information is not readily available as the agency does not routinely collect 

data on observing system operation and maintenance costs in the ordinary 

course of business. They indicated that the most recent and best available 

observing system cost data were collected in 2013 by its Technology, 

Planning and Integration for Observation (TPIO) office for use in NOAA’s 

Observing Systems Integrated Analysis model.3 To collect the data, TPIO 

developed a spreadsheet template that requested specific cost information 

in a particular format. TPIO sent the template to each line office and asked 

them to provide annual costs for their observing systems for fiscal years 

2012 through 2014. TPIO officials told us they intended the cost information 

 2

Observing system summary reports provide basic information about an observing system, 

such as the system’s name, its acronym, and the environmental parameters it measures, 

among other things.

3

The NOAA Observing Systems Integrated Analysis model is a tool intended to help compare 

the cost-effectiveness of the agency’s observing system in obtaining mission-critical data and 

to inform investment decisions. 
Appendix I: Objectives, Scope, and Methodology

Page 34 GAO-15-96 NOAA's Observing System

they requested from the line office to be actual expenditures for fiscal years 

2012 and 2013 and estimates for costs in fiscal year 2014 based on 

amounts in the 2014 presidential budget request. However, they said the 

observing systems costs reported by the line offices for fiscal years 2012 

and 2013 are estimates because NOAA’s budget structure and accounting 

systems are not set up to track actual spending at the observing system 

level. 

According to TPIO officials, the cost information provided by the line offices 

was not reviewed by TPIO or the Chief Financial Officers for each of the line 

offices prior to being entered into a database. After we requested the 

observing systems cost information TPIO had collected, NOAA’s Budget 

Office requested the data be reviewed to assess the accuracy of the 

information prior to releasing it to us. According to NOAA budget officials, 

they asked program managers to review the data they reported to TPIO for 

their respective observing systems and they asked each of the line office 

Chief Financial Officers to review the combined costs for the observing 

systems operated by their line offices. The purpose of the review was to 

verify that the cost information NOAA was providing to us accurately 

represented the information that had been reported to TPIO. The line office 

Chief Financial Officers also evaluated whether the costs were consistent 

with the program’s budget allocation based on NOAA’s appropriation levels 

for the fiscal years covered by the request. According to NOAA officials, the 

review resulted in mostly minor adjustments to the cost information originally 

collected by TPIO, and the information we received was the most accurate 

cost information NOAA has for its ocean, coastal, and Great Lakes 

observing systems portfolio. 

We also took steps to assess the reliability of NOAA’s observing system cost 

information by, among other things, reviewing documentation of NOAA’s 

data collection procedures and interviewing agency officials, line office Chief 

Financial Officers, and observing system program managers. We found the 

data to be sufficiently reliable for the purpose of our report, which is to 

provide a general sense of the costs for NOAA’s ocean, coastal, and Great 

Lakes observing systems. While we believe the cost information are 

sufficiently reliable for this purpose, they may not be sufficiently reliable for 

other purposes that require more accurate cost data, such as for making 

comparisons of the relative cost-effectiveness of different observing 

systems. In addition, to obtain other information related to observing system 

costs, we reviewed agency documents, including budget requests, 

guidance, and policies, and documentation of NOAA’s managerial cost 

accounting system. We also interviewed NOAA headquarters and line office 

officials about NOAA’s budget structure and cost accounting practices. See 
Appendix I: Objectives, Scope, and Methodology

Page 35 GAO-15-96 NOAA's Observing System

appendix V for the annual costs of each of NOAA’s 41 ocean, coastal, and 

Great Lakes observing systems for fiscal years 2012 to 2014. 

To determine the extent to which NOAA has taken steps to integrate and 

improve the cost-effectiveness of its portfolio of observing systems, including 

ocean, coastal, and Great Lakes systems, we reviewed agency documents 

and interviewed NOAA officials responsible for implementing the agency’s 

observing systems management activities. Specifically, we reviewed plans 

related to managing the agency’s observing systems portfolio, such as a 

2004 strategic plan for system integration and plans related to implementing 

aspects of NOAA’s 2010 next generation strategic plan.4 In addition, we 

reviewed internal NOAA reports and external reviews that identified 

opportunities to improve the management and integration of the agency’s 

observing system portfolio.5 We interviewed officials in NOAA’s six line 

offices and in the one staff office that operates and maintains observing 

systems.6 In these interviews, we discussed the offices’ approaches to 

managing their observing systems, their budgeting processes, and NOAA’s 

efforts to integrate its observing systems portfolio. We also interviewed 

officials on NOAA’s Observing Systems Council about their efforts to create 

a more integrated, cost-effective observing systems portfolio and from TPIO 

about their development of analytical tools to support the agency’s observing 

system integration efforts. In addition, we reviewed GAO’s work on strategic 

planning and performance measurement to identify leading practices in 

 4

National Oceanic and Atmospheric Administration, Strategic Direction for NOAA’s Integrated 

Global Environmental Observation and Data Management System (July 2004); NOAA, 

NOAA’s Next-Generation Strategic Plan (Silver Spring, Md.: December 2010); and NOAA, 

Next Generation Strategic Plan Implementation Plan: Enterprise Objective: Accurate and 

Reliable Data from Sustained and Integrated Earth Observing Systems FY 2013-2019 (Nov. 

26, 2012).

5

National Oceanic and Atmospheric Administration, Buoy Recapitalization Strategic Plan: 

Review of Current Processes (August 2009); NOAA, A Report from the NOAA Science 

Advisory Board: In the Nation’s Best Interest: Making the Most of NOAA’s Science Enterprise 

(Apr. 12, 2013); MITRE, Process Improvement Assessment of NOAA TPIO’s Investment 

Analysis Approach: Final Report, (Aug. 27, 2010.); and The Pleiades Institute, Process 

Improvement Assessment of NOAA Technology, Planning and Integration Office Investment 

Analysis Methodology: Final Report (July 29, 2010).

6

NOAA’s six line offices are the National Environmental Satellite, Data, and Information 

Service; the National Marine Fisheries Service; the National Ocean Service; the National 

Weather Service; the Office of Oceanic and Atmospheric Research; and the Office of 

Program Planning and Integration. The one staff office is the Office of Marine and Aviation 

Operations.
Appendix I: Objectives, Scope, and Methodology

Page 36 GAO-15-96 NOAA's Observing System

these areas.7 We also reviewed Office of Management and Budget (OMB) 

guidance to identify leading practices in planning and management.8 

We conducted this performance audit from September 2013 to November

2014 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.

 7

For example, see GAO-09-192; GAO-04-801; and GAO-12-77. 

8

Office of Management and Budget, Circular No. A-11, Preparation, Submission, and 

Execution of the Budget (2014).
Appendix II: GAO Identified Ocean and Coastal 

Environmental Parameters

Page 37 GAO-15-96 NOAA's Observing System

1. Ambient Noise: Biological

2. Ambient Noise: Total

3. Atmospheric Pressure: Sea Level

4. Bathymetry

5. Buoy Support

6. Carbon Dioxide: Partial Pressure

7. Carbon Dioxide: Profiles

8. Carbon Dioxide: Surface

9. Carbon: Profiles

10. Chlorophyll Concentration

11. Conductivity: Profiles

12. Conductivity: Surface

13. Convection

14. Coral Reef Assessment

15. Diffuse Attenuation Coefficient

16. Dissolved Gases: Oxygen

17. Gravity Field: Airborne

18. Gravity Field: Ground Based

19. Hydrography: Bathymetry + Water Depth

20. Ice Age

21. Ice Concentration

22. Ice Depth/Thickness

23. Ice Extent

24. Ice Motion: Direction

25. Ice Motion: Speed

26. Ice Origin

27. Ice Temperature

28. Ice Topography

29. Marine Debris Removal

30. Net Heat Flux

31. Nitrate Particles: Profiles

32. Nitrate Particles: Surface

33. Nitrogen Oxides: Profiles

34. Nitrogen Oxides: Surface

35. Nutrients: Profiles

36. Nutrients: Surface

37. Ocean Color

38. Ocean Color: Turbidity

39. Ocean Contaminants

40. Ocean Currents Subsurface

Appendix II: GAO Identified Ocean and 

Coastal Environmental Parameters 
Appendix II: GAO Identified Ocean and Coastal 

Environmental Parameters

Page 38 GAO-15-96 NOAA's Observing System

41. Ocean Currents: Direction, Profiles

42. Ocean Currents: Direction, Surface

43. Ocean Currents: Speed, Profiles

44. Ocean Currents: Speed, Surface

45. Ocean Optical Properties: Fluorescence

46. Ocean Optical Properties: Water-leaving Radiances

47. Ocean Surface Winds: Direction

48. Ocean Surface Winds: Speed

49. Ocean Temperature: Profiles

50. pH: Ocean

51. Photosynthetically Active Radiation

52. Radiance

53. Salinity: Profiles

54. Salinity: Surface

55. Sea Level

56. Sea Surface Height

57. Sea Surface Temperature

58. Shoreline Mapping

59. Significant Wave Height

60. Snow Depth

61. Stock assessment

62. Swell Direction

63. Swell Height

64. Swell Period

65. Total Alkalinity

66. Trace Gases/Trace Species

67. Tsunamis

68. Turbulence

69. Water Pressure

70. Water Quality/Physical Oceanographic Research

71. Wave Direction

72. Wave Height

73. Wave Period

74. Wave Spectra

75. Wind Shear
Appendix III: Alphabetized List of National Oceanic 

and Atmospheric Administration’s 41 Ocean, 

Coastal, and Great Lakes Observing Systems and 

Office

Page 39 GAO-15-96 NOAA's Observing System

Observing System Office

Airborne Oceanographic Product Office of Oceanic and Atmospheric Research

Arctic Observing Network Office of Oceanic and Atmospheric Research

Chesapeake Bay Interpretive Buoy System National Marine Fisheries Service

Coastal Weather Buoys National Weather Service

Coastal-Marine Automated Network National Weather Service

Coral Reef Ecosystem Integrated Observing System/ National Coral Reef 

Monitoring Plan

National Ocean Service 

Deep-Ocean Assessment and Reporting of Tsunamis National Weather Service

Ecosystem Surveys National Marine Fisheries Service

Ecosystems and Fisheries-Oceanography Coordinated Investigations Office of Oceanic and Atmospheric Research

Fish Surveys National Marine Fisheries Service

Geostationary Operational Environmental Satellite N/O/P National Environmental Satellite, Data, and Information 

Service

Global Ocean Observing System Argo Profiling Floats Office of Oceanic and Atmospheric Research

Global Ocean Observing System Global Drifter Program Office of Oceanic and Atmospheric Research

Global Ocean Observing System Global Sea Level Observing System Office of Oceanic and Atmospheric Research

Global Ocean Observing System Global Tropical Moored Buoy ArrayPrediction and Research Moored in the Atlantic Office of Oceanic and Atmospheric Research

Global Ocean Observing System Global Tropical Moored Buoys ArrayResearch Moored for African-Asian-Australian Monsoon Analysis Office of Oceanic and Atmospheric Research

Global Ocean Observing System Ocean Carbon Networks Office of Oceanic and Atmospheric Research

Global Ocean Observing System Ocean Reference Stations Office of Oceanic and Atmospheric Research

Global Ocean Observing System- Ships of Opportunity Office of Oceanic and Atmospheric Research

Global Ocean Observing System Tropical Atmosphere Ocean Array National Weather Service

Hydrographic Surveying National Ocean Service 

Integrated Ocean Observing System High Frequency Radars National Ocean Service 

Jason Ocean Surface Topography Mission (2, 3 & CS) National Environmental Satellite, Data, and Information 

Service

Marine Optical Buoy National Environmental Satellite, Data, and Information 

Service

National Current Observation Program National Ocean Service 

National Estuarine Research Reserves System System-Wide Management 

Program 

National Ocean Service 

National Marine Sanctuary System-Wide Monitoring Program: SystemWide MonitoringNational Ocean Service 

National Ocean Service-Shoreline National Ocean Service 

National Status and Trends Program National Ocean Service 

National Water Level Observation Network National Ocean Service 

NOAA Aircraft Office of Marine and Aviation Operations 

NOAA Ships Office of Marine and Aviation Operations 

Appendix III: Alphabetized List of National Oceanic

and Atmospheric Administration’s 41 Ocean, 

Coastal, and Great Lakes Observing Systems and 

Office
Appendix III: Alphabetized List of National Oceanic 

and Atmospheric Administration’s 41 Ocean, 

Coastal, and Great Lakes Observing Systems and 

Office

Page 40 GAO-15-96 NOAA's Observing System

Observing System Office

Ocean Acoustic Monitoring System Office of Oceanic and Atmospheric Research

Pacific Tsunami Warning Center Sea Level Network National Weather Service

Physical Oceanographic Real-Time System National Ocean Service 

Polar-Orbiting Operational Environmental Satellite National Environmental Satellite, Data, and Information 

Service

Real-time Coastal Observation Network Office of Oceanic and Atmospheric Research

Regional Ocean Observing System National Ocean Service 

Suomi National Polar-Orbiting Partnership Satellite National Environmental Satellite, Data, and Information 

Service

Voluntary Observing Ship National Weather Service 

Western Boundary Time Series and South Atlantic Meridional Overturning 

Circulation

Office of Oceanic and Atmospheric Research

Source: National Oceanic and Atmospheric Administration. | GAO-15-96
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 41 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

National Environmental Satellite, Data, and Information Service

Geostationary 

Operational 

Environmental Satellite 

N/O/P

This two-satellite system maintains 

a constant view of the earth from 

an orbit of about 22,000 miles in 

space and focuses primarily on the 

United States. The system provides 

timely environmental data about the 

earth’s atmospheric, cloud cover, 

and surface conditions. The system 

observes the development of 

hazardous weather conditions, 

such as hurricanes, and tracks their 

movement and intensity to protect 

life and property. The satellite 

sensors also provide the capability 

to detect ice fields and map the 

movements of sea and lake ice.

The data are primarily used by 

meteorologists for weather 

observation, monitoring, and 

forecasting. The data also 

support improved atmospheric 

science research, weather 

prediction models, and 

environmental sensor design and 

development.

Satellite 2 1994

Jason Ocean Surface 

Topography Mission (2, 3 

& CS)

The system measures sea surface 

height using a sensor mounted on 

a low-earth orbiting satellite.

The data are used to model the 

ocean, forecast weather events 

such as El Niño and La Nina, and 

predict hurricane intensity.

Satellite

b

1 2008

Marine Optical Buoy The system consists of a single 

moored buoy deployed off the 

coast of Hawaii. The system’s 

primary purpose is to measure 

visible and near-infrared radiation 

entering and emanating from the 

ocean. Measurements are taken at 

the sea surface and three deeper 

depths.

The data collected by the system 

are used by satellite systems to 

adjust their sensors that measure 

ocean color.c

Buoy

Because of their 

remote location, satellites may 

experience interference in their 

measurements of ocean color. 

This system provides data to 

correct this interference.

1 1995

Polar-orbiting 

Operational 

Environmental Satellite

The system uses polar-orbiting 

satellites to support environmental 

observations for imaging and 

measuring the earth’s atmosphere, 

surface, and cloud cover. The 

system measures three ocean and 

coastal environmental 

parameters—sea surface 

temperature, sea ice extent, and 

coral reef assessments.

The data are processed to 

provide graphical weather 

images and specialized weather 

products. The data are also 

primary inputs into models used 

for developing weather forecasts 

up to 3 days in advance, and can 

be used to monitor environmental 

phenomena such as ozone 

depletion. The data can also be 

used in climate studies.

Satellite 3 1976

Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 42 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

Suomi National PolarOrbiting Partnership 

Satellite

The system has a joint mission to 

gather data to support long-term 

monitoring of climate trends and for 

weather forecasts. The satellite is 

equipped with five different sensors 

that collect environmental data 

such as ice thickness, ocean color, 

and sea surface temperature.

The data are used in models to 

generate advance forecasts and 

warnings for severe weather. The 

data are also used for fisheries 

and coastal zone management 

and long-term monitoring of 

climate trends such as El Niño. 

Satellite 1 2011

National Marine Fisheries Service

Chesapeake Bay 

Interpretive Buoy System

The system is a network of buoys 

in the Chesapeake Bay that collect 

meteorological, oceanographic, and 

water-quality data.

Data collected by the buoys are 

delivered to users in real-time via 

wireless technology.d

Buoy

Users 

include scientists and students 

who use the data to help protect, 

restore, and manage the 

Chesapeake Bay. In addition, the 

data are used as a resource for 

boaters to alert them to boating 

conditions.

11 2009

Ecosystem Surveys The system is designed to monitor 

the health and status of living 

marine resources and their habitats 

in Alaska and New England. The 

goal of the observing system is to 

characterize the changing states of 

the ecosystems and forecast any 

subsequent impact on fisheries 

productivity. Data are collected 

primarily by research ships; 

however, satellites, buoys, and 

other methods are also used.

The data are used for the 

assessment and management of 

fish species and in a wide variety 

of research programs.

Mix Varies 

annually

1940

Fish Surveys The system monitors the 

distribution and abundance of 

commercially-targeted and 

ecologically-important fish species. 

The surveys occur in all of the 

oceans surrounding the nation; 

however, the frequency of the 

surveys is contingent on available 

funding each year.

The data are used in models by 

fishery managers to determine 

the effects of fishing on fish 

populations.

Ship Varies 

annually

1963
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 43 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

National Ocean Service

Coral Reef Ecosystem 

Integrated Observing 

System/National Coral 

Reef Monitoring Plan

The system uses buoys to collect 

data to understand the condition of, 

and the processes influencing, the 

nation’s coral reef ecosystems. 

Since 2013, the system has been 

part of the National Coral Reef 

Monitoring Plan, with a goal of 

monitoring the status and trends of 

the country’s coral reefs.

The data are used to make better 

informed and timely management 

decisions related to the 

conservation of coral reefs. For 

example, the data are used to 

model and forecast climaterelated risks and vulnerabilities to 

coral reefs.

Buoy 49 2001

Hydrographic Surveying The system uses boats to conduct 

surveys of the physical parameters 

and waterbody features in the 

nation’s coastal areas. The areas 

covered by the surveys are 

prioritized based on a variety of 

factors, including the amount of 

time elapsed since an area was 

previously surveyed. The data 

include information on water depth 

and the nature of the sea floor, 

which has implications for 

anchoring, dredging, and fisheries 

habitat. 

The data are used to support a 

variety of products including 

nautical charts. The charts are 

then used for port and harbor 

maintenance, coastal 

engineering, coastal zone 

management, and resource 

development offshore. 

Ships Varies 

annually

1970

Integrated Ocean 

Observing System HighFrequency Radars

This system measures the speed 

and direction of ocean surface 

currents in near real-time. The 

radars can measure currents up to 

200 kilometers offshore and can 

operate under any weather 

conditions. The radars are located 

along both the east and west 

coastlines of the United States. 

The data from the radars are 

used in a variety of applications 

including to support pollutant 

tracking, search and rescue 

efforts, and management of the 

country’s coastal resources. 

Radar 123 2011

National Current 

Observation Program

The buoy system collects data on 

ocean velocity, salinity, and 

temperature to determine the 

circulation along the United State’s 

coasts and estuaries.

The data are used to principally 

produce the National Oceanic 

and Atmospheric Administration’s 

(NOAA) Tidal Current Tables. 

These tables predict the daily 

tidal current for each location 

where the data are collected. The 

tables are publicly available in an 

electronic format.

Buoy 70 1840
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 44 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

National Estuarine 

Research Reserves 

System System-Wide 

Management Program 

The system is located in the 

nation’s major coastal regions—

west, northeast, Great Lakes, midAtlantic, southeast, Gulf of Mexico, 

and Caribbean Sea—to determine 

how reserve conditions, including 

water quality associated 

environmental parameters, are 

changing in both the short-term and 

long-term.

The data are used by many 

groups including researchers, 

educators, and coastal 

managers. For example, data 

from the network of reserves is 

used to help understand the 

effects of climate change in the 

nation’s coastal regions.

Buoy 139 1996

National Marine 

Sanctuary System-Wide 

Monitoring Program: 

System-Wide Monitoring

The system monitors environmental 

conditions, such as water quality, at 

13 marine sanctuaries. The data 

are collected from a variety of 

platforms, including ships and 

buoys.

The data collected are used to 

measure progress toward 

maintaining and improving the 

natural and archaeological 

quality of the national marine 

sanctuary system. 

Mix 13 2007

National Status and 

Trends Program

The system consists of two 

programs—Mussel Watch and 

Bioeffects—that monitor the 

environmental quality of estuarine 

and coastal waters throughout the 

nation. Data are collected from 

multiple sites along the entire 

United States coastline, including 

the Great Lakes.

The data are used to 

characterize and assess the 

environmental impact of new and 

emerging contaminants and 

extreme events (hurricanes and 

oil spills) on the nation’s 

estuarine and coastal waters.

Humanobserver170 1986

National Water Level 

Observation Network

The system is a network that has 

over 200 coastal observing stations 

around the United States that 

collect continuous, long-term water 

level observations.

The data are used primarily to 

support safe navigation of the 

country’s waterways by 

computing tidal and water-level 

datums, producing tide prediction 

tables, and estimating sea-level 

trends.e

Oceanfixed

The data are collected 

and transmitted via satellite to 

their users.

210 1840

National Ocean ServiceShorelineThe system uses aircraft to collect 

aerial imagery of the nation’s 

coastal areas.

The data are primarily used to 

produce nautical charts, which 

are used for a variety of 

purposes including coastal zone 

management and emergency 

response.

Aircraft 4 1919
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 45 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

Physical Oceanographic

Real-Time System

The system was developed to 

provide accurate and reliable realtime information about 

environmental conditions in 

seaports. It collects data on wind, 

water, and air environmental 

parameters.

The data are provided primarily 

to ship masters and pilots in realtime to avoid groundings and 

collisions in the nation’s ports. 

Data on water levels, currents, 

and other oceanographic 

variables are available through a 

variety of formats, including the 

Internet.

Mix 23 1991

Regional Ocean 

Observing System

The system is a network of 

observing instruments and 

platforms used by the U.S. 

Integrated Ocean Observing 

System program’s regional 

associates to collect data on a 

variety of environmental 

parameters in the nation’s coastal 

waters.

Data collected by the regional 

associations are being integrated 

with other data collected by 

NOAA’s National Data Buoy 

Center into a database, which 

the U.S. Integrated Ocean 

Observing System program plans 

to make publicly available.

Buoy 537 2003

National Weather Service

Coastal Weather Buoys The system uses floating buoys 

that are moored at specific 

locations but able to drift up to 2 

miles in all directions. The buoys 

are located throughout the nation’s 

oceans and coastal waters.

The data are used to produce 

forecasts, warnings, and 

atmospheric models. Other uses 

of the data include scientific and 

research programs and to assist 

in emergency response to 

chemical spills. 

Buoy 109 1972

Coastal-Marine 

Automated Network

The system has 60 stations in the 

nation’s coastal zones. Its platforms 

include buoys or land-based tower 

stations. The system was designed 

in the early 1980s in response to 

the need to maintain meteorological 

observations in U.S. coastal areas 

that had previously been gathered 

by U.S. Coast Guard personnel 

stationed at lighthouses.

The data are used to produce 

meteorological observations in 

coastal areas and are relayed to 

users at least once per hour from 

the system’s platforms.

Buoy 51 1982

Deep-Ocean 

Assessment and 

Reporting of Tsunamis

The system consists of an 

anchored seafloor bottom pressure 

recorder and a companion moored 

surface buoy to detect tsunamis in 

U.S. coastal areas.

The data are transmitted in realtime to NOAA’s Tsunami 

Warning Centers via satellite. 

The centers then decide which 

coastal communities are in 

danger and issue warnings.

Buoy 39 2006
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 46 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

Global Ocean Observing 

System Tropical 

Atmosphere Ocean Array

The system is part of the 

multinational Global Ocean 

Observing System. It was designed 

in response to an early 1980s El 

Niño event, which was neither 

predicted nor detected until nearly 

its peak. The system collects data 

on a variety of meteorological 

parameters, such as wind speed, 

and relative humidity, as well as 

ocean current profiles and upper 

ocean temperatures.

The data are collected to help 

predict El Niño events. They are 

transferred to shore in real-time 

using satellites.

Buoy 55 1970

Pacific Tsunami Warning 

Center Sea Level 

Network

The system detects tsunami activity 

around Hawaii using sea-level 

gauges.

The data are used to confirm the 

generation of a tsunami and to 

predict locations where it may 

strike.

Oceanfixed43 1967

Voluntary Observing Ship The system uses ships, both U.S. 

and internationally owned, that 

voluntarily collect data on 

meteorological conditions. The data 

are encoded in a standardized 

format and sent via satellite or radio 

to services that provide marine 

weather forecasts. 

The data are used for a variety of 

purposes, including weather 

forecasts, and to help measure 

extreme weather events and 

long-term climate changes. The 

data are also archived for future 

use by climatologists and other 

scientists.

Ship Varies 

annually

1853

Office of Marine and Aviation Operations

NOAA Aircraft NOAA uses its aircraft to collect 

data on multiple environmental 

parameters, including atmospheric 

pressure and ocean temperature.

f The data are used to support 

global climate change studies, 

assessing marine mammal 

populations, surveying coastal 

erosion, investigating oil spills, 

flight checking aeronautical 

charts, and improving hurricane 

or winter storm prediction 

models.

Aircraft 9 1975

NOAA Ships NOAA’s fleet of ships collects data 

and supports federal disaster 

response around the world. The 

system collects data on multiple 

environmental parameters, 

including ocean pH and water 

depth.

The data are used for 

hydrographic surveys, 

oceanographic research, and 

fisheries research, among other 

things.

Ship 16 1967
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 47 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

Office of Oceanic and Atmospheric Research

Airborne Oceanographic 

Product

The system uses aircraft to collect 

data via aircraft 30 days a year in 

coastal Washington state, the 

Pacific Northwest, and Chesapeake 

Bay on fish and the thin plankton 

layer.

The data are used to support 

scientific research on specific 

parameters such as waves.

g

Aircraft Varies 

annually

1997

Arctic Observing Network The system uses four major types 

of platforms: ocean or sea ice 

platforms, ships, aircraft, and land 

based climate atmospheric 

observatories to study 

meteorological, sea ice, and 

subsurface environmental 

parameters in the Arctic Ocean.

The data are used to understand 

long-term trends in the physical 

and biological state of the Arctic 

Ocean.

Mix 11 2004

Ecosystems and 

Fisheries-Oceanography 

Coordinated 

Investigations

The system is used in the Gulf of 

Alaska, Bering Sea, and Arctic to 

understand ecosystem dynamics 

and the life cycle of commercially 

valuable fish and shellfish stocks.

The data are used to produce 

ecosystem forecasts that help 

guide resource managers in 

making catch share allocations to 

commercial fishermen and to 

mitigate the effects of climate 

change on marine species and 

coastal communities.

Buoy 15 1984

Global Ocean Observing 

System Argo Profiling 

Floats

The system uses free-drifting floats 

to observe the ocean’s upper 2,000 

meters. The mission of the system 

is to describe and understand the 

physical processes responsible for 

climate variability and predictability.

The data are transmitted realtime via satellites to land-based 

receiving stations and are used 

in weather forecasting and 

climate prediction models.

Buoy 3311 2001

Global Ocean Observing 

System Global Drifter 

Program

The system is part of the 

multinational Global Ocean 

Observing System and was 

designed to use drifting buoys 

around the world to measure sea 

surface temperature and currents 

at 15 meters below the water’s 

surface.

The data are used to adjust 

satellite sea surface temperature 

observations and provide realtime data on the structure of 

global surface currents, among 

other things.

Buoy 1250 1988

Global Ocean Observing 

System Global Sea Level 

Observing System

The system is part of the 

multinational Global Ocean 

Observing System and uses fixed 

platforms that are stationed on 

islands and in the coastal zones 

around the world to measure and 

report sea-level information. The 

data are transmitted in real-time 

using satellites.

The data are used in multiple 

NOAA missions including climate 

monitoring and prediction.

Mix 50 1983
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 48 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

Global Ocean Observing

System Global Tropical 

Moored Buoy ArrayPrediction and Research 

Moored in the Atlantic

The system is located in the 

Atlantic Ocean and is part of the 

multinational Global Ocean 

Observing System. It is a buoy 

system used to study oceanatmosphere interactions in the 

tropical Atlantic Ocean that affect 

regional climate variability on 

seasonal, interannual, and longer 

time scales.

The data are transmitted via 

satellite in near real-time and are 

used for developing and 

improving models of the ocean.

Buoy 17 1997

Global Ocean Observing 

System Global Tropical 

Moored Buoys ArrayResearch Moored for 

African-Asian-Australian 

Monsoon Analysis

The system is part of the 

multinational Global Ocean 

Observing System. It is a buoy 

system located in the Indian Ocean 

that gathers data to address 

scientific questions related to ocean 

conditions and monsoons. The 

system collects data on air 

temperature, atmospheric pressure, 

and the direction of ocean currents.

The data are real-time 

measurements that are used in 

climate research and forecasting.

Buoy 21 2004

Global Ocean Observing 

System Ocean Carbon 

Networks

The system obtains ocean 

measurements from around the 

world that contribute to NOAA’s 

understanding of the carbon cycle 

and is part of the multinational 

Global Ocean Observing System.h

The data are used to help with 

forecasting long-term climate 

trends.

Mix 34 2005

Global Ocean Observing 

System Ocean 

Reference Stations

The system is part of the 

multinational Global Ocean 

Observing System and uses buoys 

to maintain long-term observing 

capabilities on ocean and climate 

environmental parameters.

The data are transmitted by 

satellites, which enables users 

(scientists and the public) access 

in near real-time for use in 

products such as climate studies.

Buoy 21 1970
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 49 GAO-15-96 NOAA's Observing System

Observing system 

managing office and 

name System description Data uses and products

Primary 

type of 

platform

used by 

system

Number of 

operational

platforms 

as of 

September 

2014

Initially 

deployed 

(fiscal 

year) a

Global Ocean Observing 

System-Ships of 

Opportunity

The system uses a network of 

cargo vessels, cruise ships, and 

research vessels that voluntarily 

collect ocean measurements by 

either using NOAA supplied 

instruments on specified routes or 

hosting NOAA technicians onboard 

to take measurements. These ships 

are also the primary vehicle for 

deploying NOAA’s drifting buoy 

arrays, surface drifting buoys, and 

Argo profiling floats, as well as 

other instruments. Data are 

collected on three environmental 

parameters related to temperature: 

air, sea, and subsurface.

The data collected are used to 

produce more than 25 articles in 

peer reviewed scientific 

publications, scientific meeting 

presentations, and a large 

number of other products 

associated with monitoring the 

condition of the ocean.

Ship 51 1970

Ocean Acoustic 

Monitoring System

The system uses arrays of 

hydrophones to collect continuous 

digital acoustic data for ocean 

observation in the Pacific Ocean 

from the Arctic to tropical locations. 

The hydrophones are used 

primarily to listen for earthquakes, 

but can also observe icequakes, 

large waves, and some marine 

endangered species.

The data are used in research 

related to earthquakes and 

marine endangered species. 

HydrophonesVaries 

annually

1970

Real-time Coastal 

Observation Network

The system is located in the Great 

Lakes and collects data on multiple 

environmental parameters including 

water temperature, extent of ice 

cover, wave direction, and turbidity.

The data are used by the 

National Weather Service to help 

verify its marine weather 

forecasts and for fisheries 

research.

Mix 20 2005

Western Boundary Time 

Series and South Atlantic 

Meridional Overturning 

Circulation

The system collects continuous, 

time series data on the strength of 

the Atlantic Ocean meridional 

overturning circulation, which 

includes many currents. The 

system uses submarine cables and 

measurements from ships, among 

others, to monitor the condition of

the currents.

The data provide the only 

measurement of the strength of 

the meridional overturning 

circulation and are used to 

improve climate forecasts. 

Mix 25 1982

Source: GAO analysis of NOAA data. | GAO-15-96

a

The number of deployed platforms that are currently operational by NOAA. Some observing systems 

include platforms that are operated by other countries; however; we did not include those platforms in this 

table.

b

The El Niño Southern Oscillation is a naturally occurring phenomenon that involves fluctuating ocean 

temperatures in the equatorial Pacific Ocean. The pattern generally fluctuates between two states: warmer 
Appendix IV: National Oceanic and Atmospheric 

Administration’s 41 Ocean, Coastal, and Great 

Lakes Observing Systems by Office

Page 50 GAO-15-96 NOAA's Observing System

than normal temperatures in the central and eastern equatorial Pacific (El Niño) and cooler than normal 

temperatures in the central and eastern equatorial Pacific (La Niña). 

c

Ocean color is the water hue due to the presence of tiny plants containing the pigment chlorophyll, 

sediments, and colored dissolved organic material.

d

“Real-time” is a relative measure that refers to the delivery time of the data. Information delivery times 

generally range between 10 to 20 minutes. 

e

A “datum” is a base elevation used as a reference from which to determine heights or depths. A tidal 

datum is a standard elevation defined by a certain phase of the tide and is used as a reference to measure 

local water levels.

f

While NOAA considers its fleets of ships and aircraft each to be observing systems, the individual ships 

and aircraft also serve as observing platforms.

g

A thin plankton layer is an aggregation of phytoplankton on the ocean’s surface.

h

The global carbon cycle is the process by which carbon is exchanged among various systems, including 

the earth's atmosphere, the oceans, geological sources of stored carbon (e.g., fossil fuels), and the 

vegetation and soils of the earth's terrestrial ecosystems.
Appendix V: National Oceanic and Atmospheric 

Administration’s Annual Estimated Operations 

and Maintenance Costs for the Ocean, Coastal, 

and Great Lakes Observing Systems by Office for 

Fiscal Years 2012 through 2014

Page 51 GAO-15-96 NOAA's Observing System

Dollars in millions

Observing system managing office and name 

Fiscal year 

2012

Fiscal year 

2013

Fiscal year 

2014

National Environmental Satellite, Data, and Information Service 

a

Geostationary Operational Environmental Satellite N/O/P $32.5 $25.9 $26.3 

Jason Ocean Surface Topography Mission (2,3 & CS) 1.6 b 1.6 1.6 

Marine Optical Buoy 2.4 2.9 3 

Polar-Orbiting Operational Environmental Satellite 32.2 29 28.8 

Suomi National Polar-Orbiting Partnership Satellite 3.1 6.6 8.9 

National Marine Fisheries Service

Chesapeake Bay Interpretive Buoy System 0.8 0.8 0.8 

Ecosystem Surveys 7.27 6.59 7 

Fish Surveys 16.55 16.44 13.81 

National Ocean Service

Coral Reef Ecosystem Integrated Observing System/National Coral Reef Monitoring 

Plan 3.9 5.2 5.2 

Hydrographic Surveying 26.9 25.1 25 

Integrated Ocean Observing System High-Frequency Radars 5 5 5 

National Current Observation Program 1 1 1 

National Estuarine Research Reserves System System-Wide Management Program 3.7 3.7 3.7 

National Marine Sanctuary System-Wide Monitoring 2.36 2.36 2.36 

National Status and Trends Program 1.9 1.7 2.1 

National Water Level Observation Network 5.05 4.7 6.5 

National Ocean Service-Shoreline 6.2 6.1 6.7 

Physical Oceanographic Real-Time System 0 c 0 0 

Regional Ocean Observing System 16.4 18.1 18.8 

National Weather Service

Coastal Weather Buoys 20.29 18.24 18.31 

Coastal-Marine Automated Network 0.68 0.68 0.68 

Deep-Ocean Assessment and Reporting of Tsunamis 6.82 8.77 11.45 

Global Ocean Observing System Tropical Atmosphere Ocean Array 4.13 3.38 3.84 

Pacific Tsunami Warning Center Sea Level Network 0.81 0.12 1.62 

Voluntary Observing Ship 1.47 1.5 1.53 

Office of Oceanic and Atmospheric Research

Airborne Oceanographic Product 0.05 0.05 0.1 

Arctic Observing Network 3.76 3.45 3.76 

Ecosystems and Fisheries-Oceanography Coordinated Investigations 5 1 1 

Appendix V: National Oceanic and Atmospheric 

Administration’s Annual Estimated Operations and 

Maintenance Costs for the Ocean, Coastal, and Great Lakes 

Observing Systems by Office for Fiscal Years 2012 through 

2014 
Appendix V: National Oceanic and Atmospheric 

Administration’s Annual Estimated Operations 

and Maintenance Costs for the Ocean, Coastal, 

and Great Lakes Observing Systems by Office for 

Fiscal Years 2012 through 2014

Page 52 GAO-15-96 NOAA's Observing System

Dollars in millions

Observing system managing office and name 

Fiscal year 

2012

Fiscal year 

2013

Fiscal year 

2014

Global Ocean Observing System Argo Profiling Floats

a

10.3 10.3 10.3 

Global Ocean Observing System Global Drifter Program 3.47 3.47 3.47 

Global Ocean Observing System Global Sea Level Observing System 1.37 1.33 1.28 

Global Ocean Observing System Global Tropical Moored Buoy Array-Prediction and 

Research Moored in the Atlantic 1.25 1.18 1.2 

Global Ocean Observing System Global Tropical Moored Buoys Array-Research Moored 

for African-Asian-Australian Monsoon Analysis 3.05 2.82 2.8 

Global Ocean Observing System Ocean Carbon Network 7 7 7 

Global Ocean Observing System Ocean Reference Stations 7.54 5.91 6.67 

Global Ocean Observing System-Ships of Opportunity 9.5 2.05 2.05 

Ocean Acoustic Monitoring System 0.05 0.14 0.08 

Real-time Coastal Observation Network 0.45 0.45 0.45 

Western Boundary Time Series and South Atlantic Meridional Overturning Circulation 1.06 0.82 0.52 

Office of Marine and Aviation Operations

NOAA Aircraft 28 28 28 

NOAA Ships 147 153 170 

Total $431.88 $416.44 $442.67 

Source: National Oceanic and Atmospheric Administration. | GAO-15-96

a

NOAA’s estimated costs for fiscal years 2012 and 2013 were based on final appropriations for those 

years. The estimates for fiscal year 2014 were based on the fiscal year 2014 President’s budget request.

b

The estimates reported for here include costs to operate and maintain the Jason-2 mission. 

Development costs for the Jason-3 mission, with the operational environmental satellite scheduled to be 

launched in fiscal year 2015, are not included. 

c

The Physical Oceanographic Real-Time System is a cost-sharing program where local partners provide 

funding for the sensor systems and their ongoing maintenance.
Appendix VI: Comments from the Department 

of Commerce

Page 53 GAO-15-96 NOAA's Observing System

Appendix VI: Comments from the 

Department of Commerce
Appendix VI: Comments from the Department 

of Commerce

Page 54 GAO-15-96 NOAA's Observing System
Appendix VI: Comments from the Department 

of Commerce

Page 55 GAO-15-96 NOAA's Observing System
Appendix VI: Comments from the Department 

of Commerce

Page 56 GAO-15-96 NOAA's Observing System
Appendix VII: GAO Contact and Staff 

Acknowledgments

Page 57 GAO-15-96 NOAA's Observing System

Anne-Marie Fennell, (202) 512-3841 or fennella@gao.gov

In addition to the individual named above, Stephen D. Secrist (Assistant 

Director), Cheryl Arvidson, Mark Braza, Heather Dowey, Richard Hung, Paul 

Kinney, Michael Meleady, and Jeanette Soares made key contributions to 

this report. 

Appendix VII: GAO Contact and Staff 

Acknowledgments

GAO Contact

Staff 

Acknowledgments

(361528)
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