NOAA’s Commercial Data Program: Background and Considerations for Congress

NOAA’s Commercial Data Program: Background and Considerations for Congress

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Updated May 30, 2024
NOAA’s Commercial Data Program: Background and
Considerations for Congress
Since 1970, the National Oceanic and Atmospheric
commercial weather data in [NOAA’s] weather modeling
Administration (NOAA) has operated satellites to collect
and forecasting” through at least one CWDP. It
environmental and weather data from space. With the rapid
appropriated $3 million to NOAA to “purchase, evaluate,
growth of the U.S. commercial space industry, both
and calibrate available data” (Table 1). The Weather
Congress and various Administrations (e.g., the 2010 and
Research and Forecasting Innovation Act of 2017 (WRFIA;
2020 National Space Policies) have directed federal
P.L. 115-25) codified the CWDP program, requiring the
agencies (e.g., NOAA, National Aeronautics and Space
NOAA Administrator to “publish data and metadata
Administration [NASA], Department of Defense) to
standards and specifications for space-based commercial
purchase and use U.S. commercial space capabilities and
weather data” (15 U.S.C. §8532(c)(1)).
services (to the maximum extent practical) and to prioritize
In 2020, Congress passed the Promoting Research and
partnerships with the commercial space industry (when
Observations of Space Weather to Improve the Forecasting
cost-effective) to meet government requirements. In
of Tomorrow (PROSWIFT) Act (P.L. 116-181), which
addition to the potential cost-effectiveness of commercial
authorized the NOAA Administrator to establish a pilot
hosts and data buys, commercial providers may be able to
program “to enter into contracts with one or more entities in
develop services faster than federal agencies’ historical
the commercial space weather sector for the provision of ...
approaches to mission development. Faster development
space weather data” (51 U.S.C. §60607).
can help meet increasing NOAA and other user demand for
commercial space data.
The CWDP program has evaluated several types of data in
its pilot studies, including Global Navigation Satellite
This In Focus provides an overview of NOAA’s
System (GNSS) Radio Occultation (RO) data, microwave
Commercial Data Program, including the agency’s
sensor data, space weather data, and GNSS reflectometry.
purchase and use of commercial space data, proposed
For example, in 2016-2018 and 2018-2020, NOAA
changes to the program, and considerations for Congress.
conducted two rounds of CWDP studies focused on GNSS
Commercial Data Program
RO data, which can be used to determine atmospheric
NOAA’s
temperature, humidity, and pressure, important components
Office of Space Commerce (OSC), which serves
of weather forecasting models. Through these pilot studies,
as the entry point for commercial space providers to engage
NOAA identified that GNSS RO data had the potential to
with NOAA, has established principles and a strategic plan
support the agency’s operational weather forecasting and
for commercial data buys. OSC also operates NOAA’s
climate modeling endeavors.
Commercial Data Program, which manages the acquisition,
ingestion, use, and dissemination of commercially sourced
If NOAA’s assessment of a CWDP demonstrates, among
satellite data. The Commercial Data Program has two
other factors, that the data add value to NOAA’s weather
components: the Commercial Weather Data Pilot (CWDP)
forecasts, WRFIA authorizes the NOAA Administrator
program and the Commercial Data Purchase Program
(also known as the Under Secretary of Commerce for
(CDPP).
Oceans and Atmosphere) to “where appropriate, cost-
Commercial Weather Data Pilot Program
effective, and feasible, obtain commercial weather data
In FY2016 appropriations report language, Congress
from private sector providers” (15 U.S.C. §8532(c)(2)(B)).
directed NOAA “to assess the potential viability of
Table 1. Enacted Appropriations for the NOAA Commercial Data Program, FY2016-FY2024
(in millions of dol ars, nominal)
FY
16
17
18
19
20
21
22
23
24
CWDP
$3
$5
$6
$6
$3
n/a
$5
$5
n/a
CDPP
—
—
—
—
$5
n/a
$12
$22
n/a
Total
$3
$5
$6
$6
$8
$12
$17
$27
$27.5
Source: CRS, from explanatory statements accompanying appropriations laws. FY2020 amount from S.Rept. 116-127, which was adopted by
reference in the explanatory statement accompanying Division B of P.L. 116-93.
Notes: CWDP = Commercial Weather Data Pilot program; CDPP = Commercial Data Purchase Program; n/a = not applicable. NOAA
initiated the CDPP and Congress first funded the purchase of “commercial weather data” in FY2020. FY2021 and FY2024 explanatory
statements do not provide a breakdown of amounts between CWDP and CDPP.
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link to page 1 NOAA’s Commercial Data Program: Background and Considerations for Congress
Commercial Data Purchase Program
Section 304 would direct the NOAA Administrator to
Starting in 2020, successful CWDP studies have led to
establish open data standards and data infrastructure and, to
commercial data purchases via CDPP. Congress
the greatest extent possible, to make weather data
appropriated $5 million for FY2020 “to initiate commercial
purchased through the Commercial Data Program or shared
purchase of radio occultation [RO] data for operational use”
by international government partners accessible to the U.S.
(Table 1).
weather enterprise.
In 2020, after releasing a request for proposals seeking to
Considerations for Congress
“enter into one or more contracts to purchase near-real-time
Commercial data providers, NOAA, and other stakeholders
satellite-based RO data from commercial vendors,” NOAA
have expressed concerns with the Commercial Data
awarded its first commercial data buy contracts (for a total
Program since its inception. Concerns have centered on the
of $23 million) to Spire Global (San Francisco, CA) and
following topics.
GeoOptics (Pasadena, CA) for two years. NOAA began
using purchased commercial RO data in operational
Frequency of Solicitations. Initially, NOAA canvassed the
weather forecasts on May 20, 2021.
commercial sector by issuing requests for information
“typically every 2 to 3 years or as indicated by changing
Weather Research and Forecasting
markets or technologies.” In FY2023, Congress noted that
Innovation Reauthorization Act of 2023
such a schedule “may have the unintended consequence of
Congress continues to propose policies related to NOAA’s
limiting new partnerships with the quickly evolving
assessment and purchase of commercial weather data, as
commercial sector” and directed the agency to conduct
well as other kinds of commercial data, from satellites and
solicitations on an annual or more frequent basis.
other sources. For example, if enacted, Title III of the
Contract Lengths. Some providers state that short-term
Weather Research and Forecasting Innovation
(less than one-year) contracts make it “almost impossible”
Reauthorization Act of 2023 (H.R. 6093 in the 118th
to invest in satellites and continue product development.
Congress) would amend WRFIA and provide NOAA
NOAA has countered that long-term contracts could be
greater authority to obtain commercial data for weather and
detrimental to companies seeking to enter the market and
environmental forecasting and modeling. The following
could lead to a single-vendor marketplace. H.R. 6093
selected sections of Title III of H.R. 6093, as passed in the
would direct NOAA to enter into year-long or multiyear
House and referred to the Senate, address commercial data.
contracts.
Section 301 would codify the Commercial Data Program.
Uncertain Market. NOAA reportedly has concerns that it
In addition, it would broaden the program to require the
is unclear whether “there is a cost benefit to using private
NOAA Administrator to acquire “satellite, ground-based,
data, in part because the relatively small number of
airborne, or marine-based in situ, remote sensing, or crowd-
competitors ... has made it challenging to determine a
sourced data and services for operational use relating to
steady market price.” For example, the only major
weather and environmental forecasting and modeling,”
companies with GNSS RO capability are Spire Global,
while ensuring the program coordinates, collaborates, and
GeoOptics, and PlanetiQ. Some providers have noted that it
ensures access to data across the agency. The NOAA
has been “tricky to get people to invest when [the provider]
Administrator would be required to “publish data, metadata,
didn’t know if there would actually be a market for the
and service standards and specifications,” among other
product once [they] built it.”
requirements, for the acquired observation services and data
listed above. The NOAA Administrator also would have to
Types of Commercial Data Available. NOAA continues
maintain existing intra-agency and advisory councils and
to identify other kinds of commercial weather data for the
establish an ombudsman position to implement council
CWDP program but, beyond GNSS RO, has not identified
recommendations and liaise with commercial data and
data that meets its operational needs and is appropriate for
service providers, among other things. The bill would
purchase under CDPP. Some stakeholders remain
authorize to NOAA appropriations of $100 million for each
optimistic about the potential application of commercial
of FY2024 through FY2028 for this section. The Senate-
microwave and electro-optical/infrared data to weather and
referred version of Section 301 differs from the introduced
environment forecasting.
version in some ways, including changes to language
regarding how acquired data may be shared or accessed.
Inclusion of Other Types of Commercial Data. Some
Members of Congress have proposed the expansion of the
Section 302 would codify a new Commercial Data Pilot
Commercial Data Program to include data acquired via
Program under the Commercial Data Program and would
commercial aircraft, commercial and research ships, and by
require acquired data to meet the standards and
other means for operational use (e.g., §§§111, 113, and 301
specifications identified in Section 301, among other
of H.R. 6093 and §801(d) of H.R. 3560 in the 118th
requirements. Of the authorized appropriations described in
Congress).
Section 301, not less than 15% would go to the CDPP.
Caitlin Keating-Bitonti, Analyst in Natural Resources
Section 303 would direct NOAA, to the greatest extent
Policy
possible, to enter into year-long or multiyear contracts; to
Eva Lipiec, Specialist in Natural Resource Policy
partner and contract with multiple observation service and
data providers; to partner with private sector entities; and to
IF12671
reduce duplication between NOAA, NASA, and other
federal departments and agencies.
https://crsreports.congress.gov

NOAA’s Commercial Data Program: Background and Considerations for Congress

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