Status of Europe’s Space Cooperation with Asia

E S P I 61 PERSPECTIVES

Status of Europe’s Space Cooperation with Asia

Jana ROBINSON , ESPI Resident Fellow and Fabien EVRARD , ESPI Research Intern

Asia is emerging as an epicentre of global geopolitical and economic activity in the 21 st century. The rise of China, India and South Korea, economically and militarily, has been accompanied by advances in their space-related capabilities. Several other Asian countries have space programs as space is increasingly viewed as an essential “force-multiplier” to advance national interests. Europe is conscious of the shift in the state of play resulting from China’s demonstrated capability to undertake human spaceflight, Japan’s recent reorganization of its space mandate and management structure, as well as other important regional developments, and actively cooperates with its Asian counterparts. Europe has not yet achieved, however, a sufficiently structured approach to space developments in the Asia-Pacific and Southeast Asia and engages with regional partners selectively based primarily on the synergies with its own activities. This ESPI Perspective seeks to provide an overview of the EU’s and ESA’s key policies and activities in Asia as they relate to space, as well as some suggestions for improved cooperation.

1. Introduction 2. Status of Asia’s Space Activities Asia-Pacific countries are undergoing profound Asian space powers often have different regional economic and political changes that perspectives with regard to space goals and have important implications for Europe. Asia’s have largely followed policies of self-reliance robust growth is influencing the fundamental rather than of regionalism or multilateralism. 1 structure of the world economy and global Japan, India and China have successfully politics. The rise of China, India, and South demonstrated indigenous launch capabilities Korea, economically and militarily, has been and their engagement in multi-faceted space accompanied by advances in their respective programs are an example of this regional trend. space capabilities. Unlike Europe, there are no The Chinese Shenzhou and Chang’e missions, established frameworks for peaceful space the Indian Chandrayaan-1 lunar orbiter, the cooperation across Asia. Bilateral relationships Japanese Kaguya missions and the Kibo space in the region also tend to be more competitive module for the ISS are examples of civilian and volatile than counterpart relationships in space projects that are as much about national Europe. However, an opportunity exists to pride and prestige as they are about scientific or upgrade broader regional dialogue through other forms of commercial benefit. 2 constructive space-related projects and programs. Besides Japan, India and China, countries such as South-Korea, Indonesia, Malaysia, the This ESPI Perspective first provides a brief Philippines, Singapore, Taiwan, Thailand and overview of the space capabilities of select Asian Vietnam, have, or are developing, indigenous countries and regional space-related capabilities to manufacture, launch and control organisations. It then focuses on the EU and satellites. In the field of Earth observation, for ESA’s key priorities and space cooperation example, Indonesia is developing two activities with Asia. Finally, it provides some suggestions for improved cooperation. 1 Moltz, James Clay. “Asia’s Space Race: National Motivations, Regional Rivalries, and International Risks.” New York: Columbia University Press (2011): 2. 2 Ibid: 193-194.

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Figure: Space -related capabilities of select Asian countries (source: ESPI) microsatellite carrying EO payloads (i.e. LAPAN Beyond APSCO, APRSAF and CSSTEAP, A2 and LAPAN A3), Malaysia is in the process of countries engage in space activities also through developing its RazakSAT-2 indigenously- the Association of Southeast Asian Nations manufactured satellite, and Taiwan plans to Subcommittee on Space Technology and deploy its Formosat-5 Earth observation satellite Applications (ASEAN-SCOSA) under the next year. Some nations have likewise made ASEAN Committee on Science and Technology. strides in developing orbital launch capabilities (e.g. South Korea). Mongolia and Thailand are, for instance, members of both APSCO and CSSTEAP, while Regional space cooperation is conducted mainly Japan is not formally associated with APSCO or within the framework of two quite different CSSTEAP and conducts its regional outreach organisations: the China-led Asia-Pacific Space through APRSAF. This forum allows participants Cooperation Organization (APSCO) and the a more flexible approach in participating in its Japan-led Asia-Pacific Regional Space Agency activities. 3 SCOSA and ESA are members of the Forum (APRSAF). The mere establishment of APRSAF. Thailand is the only country that is a these organisations are manifestations of the full member of all four groups. desire by both China and Japan to project soft power. They represent, among other benefits, For Asian nations which have little or no space diplomatic tools for Beijing and Tokyo to infrastructure and limited financial resources for strengthen their regional influence via space. space, engagement through these regional groupings offers an affordable gateway to In addition to China and Japan, India will most space-related activities. likely play a major role in shaping cooperative undertakings in the region. India hosts the headquarters of the Center for Space Science and Technology Education in Asia and the Pacific (CSSTEAP) under the auspices of the United Nations Economic and Social 3 As of December 2011, 325 organizations from 35 countries Commission for Asia and the Pacific and regions and 24 international organizations participate in (UNESCAP). the APRSAF. Source: “Participants.” APRSAF. (21 May 2012): http://www.aprsaf.org/participants/ .

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3. Europe’s Key Priorities and Space trading partner (following the U.S. and China). 6 Cooperation Activities with Asia In 2001 and 2003, the European Commission (EC) published a policy document classifying European Union ASEAN as a key economic and political partner The EU and its member states have been for the EU. ASEAN is not, however, considered actively pursuing new opportunities associated a “strategic partner“, although the EU maintains with Asia’s rise. The European Commission (EC) “strategic partnerships”, for example, with Japan, issued an Asia policy document entitled “Toward China, and India. The EU also takes part in the a New Asia Strategy” in 1994, later updated by a ASEAN Regional Forum (ARF), which discusses communication of 2001 entitled “Europe and primarily security issues and consists of the EU Asia: A Strategic Framework for Enhanced and 26 counties, including the U.S., China, Partnerships”. 4 The EC document recognized Japan and South Korea. that if Europe is to maintain a leading economic and political presence globally, it needs to The inauguration of the ASEM in 1996 assign higher priority to Asia and raise its profile represented the launch of an important official in the region. link between Europe and Asia. ASEM serves as a facilitator of trade and investment that seeks to The EU is presently seeking to intensify its improve Europe’s share in overall Asian trade partnerships with key Asian nations, including and foreign direct investment (FDI). ASEM is Japan, China, and India. It has also taken steps viewed as a more flexible tool than ASEAN to to establish new partnerships with South Korea explore new economic and other trends, and select Southeast Asian countries, mainly including in the developing ASEAN economies. through bilateral trade negotiations and ASEM serves as a platform of interaction that is agreements. 5 To strengthen political and less universal than, for example, the UN, but economic ties with individual countries, the EU broader than inter-regional fora such as the EU - adopted strategies toward China, Japan, South ASEAN. 7 Korea and Southeast Asia. The regional dimensions of European foreign policy, including With regard to space, the forging of an effective the Asia-Pacific theatre, have grown in policy toward Asian countries requires weighing importance, particularly in light of the carefully the region’s geopolitical sensitivities. implementation of the Europe 2020 strategy. Space is viewed by a number of Asian countries This involves better understanding of territorial as an increasingly important capability to trends and interests, as well as regional advance national interests. development goals to help enable Europe’s economic growth and global competitiveness. In Europe, climate change, security, competitiveness and exploration have been The regional dimension of European identified as priority areas for the EU’s space policy and space is viewed as an integral part of foreign policy in the Asia-Pacific theatre 8 has grown in importance and involves Europe’s 2020 strategy. These areas are to be better understanding of territorial trends bolstered by the EGNOS, Galileo and GMES and interests to help enable Europe’s programmes. Space industrial policy is being economic growth and global configured to enhance Europe’s competitiveness competitiveness. as space-related manufacturing and technologies stimulate growth and innovation, including in non-space arenas. Strengthened Beyond bilateral exchanges, the principal international cooperation should help promote venues for interaction with Southeast Asia are European space technology and services; the ASEAN and the Asia–Europe Meeting (ASEM). The EU is the largest investor in 6 ASEAN countries with an average annual “ASEAN.” European Commission: Trade. (21 May 2012): http://ec.europa.eu/trade/creating-opportunities/bilateral- investment of some €9.1 billion (2000 - 2009). relations/regions/asean/ . 7 ASEAN, in turn, is the EU’s third largest external Milliot, David. “ASEM – A Catalyst for Dialogue and Co- operation: the Case of FEALAC” in “The Eurasian Space: Far More than Two Continents”, Stokhof, Wim, Velde, Paul, and Yeo Lay Hwee. Singapore: ISEAS Publications (2004): 76. 4 8 Commission of the European Communities. Europe and Commission of the European Communities. Communication Asia: A Strategic Framework for Enhanced Partnerships. From The Commission To The Council, The European COM (2001) 0469 final of 04 Sep. 2001. Brussels: Parliament, The European Economic And Social Committee European Union. And The Committee Of The Regions: Towards a Space 5 “Asia.” European Union - EEAS (European External Action Strategy for the European Union that Benefits its Citizens. Service). (29 Mar. 2012): COM (2011) 152 final of 04 Apr. 2011: 3. Brussels: http://eeas.europa.eu/asia/index_en.htm . European Union.

ESPI Perspectives No. 61, July 2012 3 Status of Europe’s Space Cooperation with Asia support European values (through projects Highly Adaptable Satellite (Hylas)-1 satellite, dealing with environmental protection, climate built as a joint venture between ISRO’s Antrix change, sustainable development and commercial company and Astrium Satellites humanitarian activities); and reinforce the EU’s Europe. external policy. 9 Other countries in the region have their own Accordingly, the EU seeks engagement in a satellites, communications or other types. ESA is number of international space-related initiatives seeking to identify appropriate cooperative that also involve Asian countries, including a endeavours with them. With regard to South multilateral diplomatic initiative on a draft Korea, for example, ESA served as a third party International Code of Conduct for Outer Space in the Kompsat-2 mission of the Korea Activities to advance space security, officially Aerospace Research Institute (KARI), launched launched in June 2012. in 2006, to provide Earth observation. In 2011, KARI became a member of the International 4. European Space Agency Charter “Space and Major Disasters”. In this connection, cooperative mechanisms The European Space Agency (ESA) has been established within the International Charter involved in shaping and building most of the “Space and Major Disasters” are an important necessary infrastructure for pan-European aspect of Europe’s relations with Asia, including space projects. It has a number of current and through the cooperation with Sentinel Asia. planned activities with its key Asian counterparts, Japan, China and India. ESA is likewise seeking to find cooperative

ventures with the emerging Asian space-faring ESA -EU relations are key to Europe’s nations in the areas of remote-sensing space cooperation with international applications, satellite communications and partners. navigation for sustainable development. ESA, for example, cooperates, through a “Third Party ESA and the Japanese Aerospace Exploration Programme”, with several emerging Asian Agency (JAXA) have a long track record of space-faring countries on acquiring, processing, cooperation on space science (e.g. Astro-H, distributing and archiving EO data coming from ISO, Akari, BepiColombo), Earth observation their satellites (e.g. Taiwan’s Formosat-2 or (ALOS Data Node, EarthCARE), Thailand’s THEOS satellites).11 The agency is telecommunications (Artemis/OICETS), and as also involved in personnel training activities (e.g. partners in the International Space Station (ISS). with Vietnam).

ESA’s cooperation with China has included In sum, Europe is fully cognisant of the shift in space science (e.g. the Double Star Project the state of play resulting from China’s (DSP), Chang'e-1 and Chang'e-2 lunar demonstrated capability to undertake human exploration missions) and Earth observation spaceflight, Japan’s recent reorganization of its (e.g. Dragon 1 and Dragon 2 projects, China’s space mandate and management structure, as participation in the International Charter “Space well as other important regional developments. It and Major Disasters"). In late March 2012, ESA has not yet achieved, however, a sufficiently and China discussed future cooperation structured approach to space developments in concerning manned spaceflight.10 the Asia-Pacific and Southeast Asia and engages with regional partners selectively based With regard to India, Europe launched (on its on the synergies with its own activities. Ariane 3 rocket) India’s first geostationary satellite, Apple. Chandrayaan-1, India’s first Europe engages with regional partners in lunar mission, included three European Asia selectively based on the synergies instruments (provided by UK, Germany, and with its own activities. Sweden through ESA). India and ESA . cooperated on ESA’s first public-private partnership initiative in a full satellite system, the For more ambitious collaborative projects, ESA is dependent on a “green light” from its member states. Moreover, the technology transfers and 9 Ibid: 3-12. other security-related issues associated with 10 Svitak, Amy. “ESA And China Discuss Shenzhou Docking With ISS.” 23 March 2012. Aviation Week (30 Apr. 2012): 11 http://www.aviationweek.com/aw/generic/story.jsp?id=news/ “Third Party Missions overview.” European Space Agency. awx/2012/03/23/awx_03_23_2012_p0- (15 May 2012): 439989.xml&headline=ESA,%20China%20Discuss%20She http://www.esa.int/esaEO/SEMP5R2VQUD_index_0_m.htm nzhou%20Docking%20At%20ISS&channel=space . l.

ESPI Perspectives No. 61, July 2012 4 Status of Europe’s Space Cooperation with Asia space will remain a challenge for Europe’s Accordingly, high-level political support should expanded cooperation with Asia. accompany future cooperative scientific, Earth observation and space applications activities. As 5. Conclusions mentioned earlier, there is also a need to tackle sensitive technology transfers and other As evidenced by the various space-related security-related concerns that today impede agreements and collaborative undertakings, somewhat Europe’s expanded cooperation with Europe and Asia have already embarked on Asia. building closer relations, including in space.

Space, as an important diplomatic and foreign Future interest of Europe and Asian policy tool, will be increasingly applied to countries in enhanced space address climate change issues, sustainable collaboration will be closely linked to their national and foreign policy priorities. development, environmental protection, disaster management, and national security concerns. To use this tool more effectively, financial, Cooperation can advance diplomatic goals, such technological, scientific and industrial as active engagement of Europe and Asia in capabilities will likely be acquired individually to constructing an International Code of Conduct demonstrate autonomous capabilities to for Outer Space Activities or assistance to the international partners. The skilful crafting of developing countries. It can also help achieve groundbreaking cooperative space endeavours programmatic objectives, such as mutual will be key to the advancement of the broader exchanges on space exploration, human political goals of space actors. spaceflight and better utilisation of space applications. Resource constraints should be To help navigate these partnerships, civil space viewed as an impetus to improve bilateral and cooperation should be discussed together with multilateral coordination that would, in turn, fuel regional security concerns. Regional economic the impressive rise of the Asia-Pacific region and development using space technology helps give Europe a stake in this. advance common security and stability.

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Short title: ESPI Perspectives 61 Published in July 2012

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