PROJECT HANDBOOK 2021–2022
Florida Spaceport Improvement Program This resource document was developed by: The Florida Department of Transportation Spaceport Office Mail Station 66 605 Suwannee Street Tallahassee, Florida 32399-0450 www.fdot.gov/spaceport
Cover photo: Launch from Space Florida’s Space Launch Complex 46 – NASA Ascent Abort Launch – 2 July 2019 (source NASA) Florida
ImprovementSpaceport Program
PROJECT HANDBOOK 2021–2022
Florida Department of Transportation
Source: NASA TABLE OF CONTENTS
Preface ...... iii
01 INTRODUCTION ...... 1 Purpose of the Handbook ...... 3 Background: Spaceport Improvement Program ...... 3 Partnerships, Coordination, and Collaboration ...... 5
02 PROGRAM OVERVIEW ...... 7 The Basics ...... 9 Key Points ...... 11
03 PROGRAM MANAGEMENT ...... 14 Project Development ...... 15 Project Identification and Funding Authorization ...... 16 Space Florida Project Analysis and Approval ...... 20 Project Funding and Management ...... 22 Project Types ...... 23 Safeguarding the State’s Investment ...... 29
04 CONCLUSION ...... 32
Appendix ...... 34 Statewide Contacts ...... 34 Helpful Links ...... 34 Commercial Space Transportation Regulations ...... 35
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 i Source: NASA PREFACE
Space connects the global community in many ways. And in many ways, Florida connects the global community to space.
Since 1965, when the first international telecommunications satellite was launched from Cape Canaveral, the State of Florida has played a crucial role in all the ways that space has become integrated into the world’s economy. Florida has attracted companies that construct Blue Origin, SpaceX, OneWeb, and United rockets and spacecraft, launch them, recover Launch Alliance (ULA) have been long-term them, refurbish them, and launch them again, aerospace partners in commercializing the and again... all within the State of Florida. Cape Canaveral Spaceport (CCS) since 2012. Significant private-sector aerospace investment On May 30, 2020, American astronauts in infrastructure has enabled the transition from were launched on American rockets from 3 active launch complexes at the CCS in 2011 American soil once again. The NASA Crew to 5 active complexes today and 6 more under Dragon spacecraft was the first crewed construction. With launches tripling from only orbital spaceflight launched from the United 10 launches in 2011 to 32 launches in 2020, States since the final Space Shuttle mission the future looks even brighter with upcoming in 2011. It was launched from historic Launch launch companies operating from Florida’s CCS Complex 39A. including our newest aerospace partner FireFly.
Over the past few years leading up to that Satellites launched from Florida have enabled historic day, FDOT and Space Florida were such public benefits as global positioning working behind the scenes, partnering with systems (GPSs), weather forecasting, disaster SpaceX on crucial infrastructure updates at response, smartphones, air traffic control, and Launch Complex 39A to make this launch worldwide communications. From the shores of possible. Upgrades included the construction of our state, humans have left the planet to explore a new crew access arm, demolition of legacy-era the Moon, and to live and work in space aboard infrastructure, and rehabilitation of the tower and the International Space Station. But Florida has launch pad. FDOT is proud of this momentous become much more than a historic launch site. achievement from the Spaceport Improvement Today it is home to a thriving commercial space Program that benefits not only the State of industry. Florida but the entire nation.
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 iii Preface
As Florida’s space transportation assets grow investment in space and in space transportation in importance to the world’s space economy, is driving the requirements for spaceport sites, the world’s space economy becomes ever operating environments, and infrastructure. more important to Florida’s future. Florida There is growing competition among states and is poised to be the global leader in enabling nations to host this rapidly evolving component space commerce throughout the 21st Century of the transportation industry. and beyond. Already, having one of the most dynamic transportation systems in the world, The Florida Spaceport Improvement Program Florida is now leading the integration of space responds directly to these trends and needs, as transportation in the fabric of its statewide Florida secures its place as the global leader in multi-modal transportation network. Florida has space commerce. The Program is designed to recognized that space is not a program; it is a stimulate private sector investment, commercial collection of high-value destinations for both spaceport development, and most importantly, cargo and people—destinations that require improve the quality of life for Floridians. safe, reliable, and sustainable transportation systems operating on market-driven schedules. Simply stated, the Spaceport Improvement Program provides funding for projects that: In the early years of space travel, only the federal • Improve aerospace transportation facilities government operated Florida’s space launch systems and spaceport sites, their use largely • Encourage cooperation and integration dedicated to government missions and priorities. between airports and spaceports Today, commercial space transportation • Facilitate and promote inter-agency efforts systems are privately owned and operated in to improve space transportation capacity support of a wide diversity of both governmental and efficiency and commercial customers requiring delivery of cargo or people to space. Commercial
Source: SpaceX
SpaceX Transporter carrying recovered rocket booster from Port Canaveral to KSC
iv Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 01INTRODUCTION Launch and Landing Facility, Cape Canaveral Spaceport
Source: Space Florida
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022–2022 1 01 INTRODUCTION
Falcon 9 launch with the Endeavor capsule to the International Space Station in May 2020 and crew landing in August 2020. Source: SpaceX
2 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 01 INTRODUCTION
PURPOSE OF THE HANDBOOK FDOT POWERS AND DUTIES: The purpose of this handbook is to provide a general overview of the Spaceport Improvement Program administered by the Florida Department of Transportation (FDOT) and the processes used to fund and manage spaceport capital projects. This handbook describes key processes like how projects are identified, analyzed, prioritized, and approved for funding. It further includes guidance to manage projects once they are funded. “To assume the responsibility for coordinating the planning of a safe, viable, The handbook also serves as a useful resource and balanced state transportation system for FDOT Program staff, interested stakeholders, serving all regions of the state, and to and aerospace industry partners who are assure the compatibility of all components, considering or managing such partnerships with including multimodal facilities.” FDOT and Space Florida. —SECTION 334.044(1), FLORIDA STATUTES
In cases where the facts or circumstances require additional guidance, interpretation, or potential deviation from this guidance, technology continued to mature and the growth stakeholders are encouraged to coordinate with of commercial spaceflight became a reality. the FDOT Spaceports office or Space Florida, as appropriate, to ensure compliance with applicable Florida’s launch of the Lunar Prospector laws, rules, procedures, and plans. Points of aboard an Athena 2 rocket on January 6, 1998, contact are identified in the Appendix. marked the first ever launch from a commercial site, the Spaceport Florida-operated Space Launch Complex (SLC) 46 at Cape Canaveral. BACKGROUND: SPACEPORT A site license was issued the previous year by IMPROVEMENT PROGRAM the Federal Aviation Administration (FAA) to Spaceport Florida, a predecessor organization Since the beginning of the United States’ to Space Florida. space program, Florida has played a pivotal role in development of the space industry. In 1999, Florida made a landmark decision With Florida serving as the primary site for the to designate space as an official mode of National Aeronautics and Space Administration transportation and “spaceports” as the (NASA) and the U.S. Air Force’s space launch associated transportation facilities. This official infrastructure since the 1950s, space designation recognizes space in the same transportation has had a major effect on the manner as other long-established modes such state’s economy and multimodal transportation as roads, bridges, rail, airports, and seaports. In system. Though accommodating this national 2019 the Florida Department of Transportation mission has always been a significant role established a separate Spaceport office. of FDOT, “space” itself was not previously With this designation, spaceports and space considered a separate mode of transportation transportation were aligned to help FDOT to be planned and developed by the state. This achieve its primary responsibility. view began to change as space transportation
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 3 01 INTRODUCTION
FDOT and Space Florida work closely together to increasing number of unused federal space plan and facilitate space transportation services launch facilities have become available for on spaceport properties throughout the state. repurposing to support commercial operations. The FAA’s licensure of the Cape Canaveral As a result, Space Florida, in partnership with Spaceport (CCS) Launch and Landing Facility FDOT, has taken an active role in the planning was issued in November 2018 and amended to and funding of spaceport infrastructure. add the Re-entry site license in January 2021. This expanding role led to the Spaceport The FAA’s licensure of Cecil Spaceport was Improvement Program, which has already in 2010 (site license has been renewed twice produced significant results in partnership since 2010); and the licensure of the Space with commercial space launch and spacecraft Coast Regional Airport/Spaceport occurred operators. Examples include: in May 2020. These commercial spaceports, • Expanding heavy-lift capability for coupled with the potential for additional commercial launches system elements in the future, puts Florida in the position of having an expanding system of • First ever launch vehicle manufacturing in spaceports. In addition, Space Florida is working Florida on a Programmatic Environmental Assessment • High volume satellite manufacturing in approval for Balloon Launches at the CCS, Cecil Florida Spaceport, and Space Coast Regional Airport/ Spaceport. • Upgrading small launch vehicle capability to meet multiple space user needs With NASA seeking to reduce its institutional • Crewed Launch to the International Space footprint at the Kennedy Space Center (KSC) Station in May 2020 following retirement of the Space Shuttle Program in 2011, and similar pressures on the These initiatives are securing Florida’s place as a Cape Canaveral Space Force Station (CCSFS) global leader in space transportation. operated by the US Space Force (USSF), an
Source: Space Florida
Space Life Sciences Lab – Space Florida Headquarters
4 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 01 INTRODUCTION
PARTNERSHIPS, COORDINATION, AND COLLABORATION
Pursuant to Florida law, state aerospace in Florida. These efforts promote talent activities are to be highly visible and well- development, infrastructure enhancements, coordinated. The law specifically designates and support governments and organizations Space Florida (section 331.3011(3), Florida in improving the state’s competitive business Statutes) as the single point of contact climate. Space Florida achieves this by for state aerospace-related activities with supporting, facilitating, and consulting on federal agencies, the military, state agencies, space industry–related needs to attract, retain, businesses, and aerospace partners (Figure 1). and expand aerospace or related supply chain businesses (aerospace partners) that create As Florida’s aerospace industry development economic opportunities in Florida by: authority, Space Florida has broad statutory • Coordinating financial incentives, facilitating powers and responsibilities to foster bold, access to capital, and providing start up and economic, and spaceport development relocation support activities. These are employed to expand and diversify domestic and international • Consulting on business formation, opportunities that will grow the industry relocation, and venture development
TRANSPORTATION PLANNING ORGANIZATIONS
Aerospace OTHER Partners FDOT BUSINESSES UNIVERSITIES AND PARTNERS
Cecil / Spaceport NASA Territories
Collaboration LOCAL NOTU and Coordination COMMUNITIES
FAA-AST US Space Force (USSF)
REGULATORY Municipalities CITIES AGENCIES Port (Brevard/Volusia Canaveral Counties and others)
STATE Figure 1: OF FLORIDA Spaceport Coordination Space Life Sciences Lab – Space Florida Headquarters Source: Space Florida
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 5 01 INTRODUCTION
• Developing and operating targeted incorporation of spaceports into the Florida infrastructure and facilities Transportation Plan (FTP) and Space Florida’s development of the Florida Spaceport System • Supporting research and development Plan, FDOT provides support and funding to opportunities that enable target industry Space Florida for high-priority spaceport projects growth through the Spaceport Improvement Program. This funding stimulates public and private Space Florida employs a tool kit of statutory investment into emerging and growing aerospace authorities to provide the non-federal enterprises while advancing a safer and more investment. This remarkable example of how secure spaceport transportation system. effective Space Florida can be in working with industry to re-capitalize and expand spaceport Aerospace partners are eligible public or private assets has been achieved through both public entities who consider or request Spaceport and private investments leveraged with the Improvement Program funding for a proposed financial risk capital of commercial space project. Private Company partners have included providers. These investments advance Florida’s SpaceX, United Launch Alliance, Boeing, leadership in civil, commercial, and military Blue Origin, OneWeb, Firefly, etc. as well as aerospace activity. They create jobs, economic licensed spaceports such as Cecil Spaceport in growth, and mitigate the impacts of federal Jacksonville and Space Coast Regional Airport/ program realignments. Through the Spaceport Spaceport in Titusville. In other cases, the Improvement Program, Space Florida has federal government (i.e., NASA/ Kennedy Space enabled more than 1,300 high paying jobs to be Center, USSF, and the US Navy), may also be created and an additional 1,200 plus jobs are considered an aerospace partner. Aerospace planned to be added through these partnerships partners are integral in the implementation of the with industry, federal agencies, and FDOT. processes described in this handbook. In fact, aerospace partners have invested substantial Space Florida’s efforts are supported by other amounts in space-related capital improvements. state agencies, such as the Florida Department of Economic Opportunity and FDOT. With the
Source: Space Florida
LLF midfield development (rendering)
6 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 02PROGRAM OVERVIEW The CST-100 Starliner spacecraft rolls out from the Commercial Crew and Cargo Processing Facility, November 2019
Source: NASA
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022–2022 7 LEGEND
Kennedy Space Center Cape Canaveral Space Force Station CAPE CANAVERAL Space Florida (Property Agreement) Payload Processing Facility or Multi-Function Support Areas SPACEPORT Major Roadways Rail 1 Water (not all facilities shown)
ACRONYMS
C3PF Commercial Crew and Cargo Processing Facility CCSFS Cape Canaveral Space Force Station Shiloh Launch Complex EPF Eastern Processing Facility Proposed KSC Kennedy Space Center LC Launch Complex LCC Launch Control Center LPF Large Payload Facility MOC Morrell Operations Center Atlantic Ocean MPPF Multi-Payload Processing Facility NCB North Cargo Berth NOTU Naval Ordinance Test nit Mosquito NRO National Reconnaissance Office Lagoon O C Operations and Checkout Building OPF Orbiter Processing Facility 1 & 2 PCC Processing Control Center PHSF Payload Ha ardous Servicing Facility RLV Reusable Launch Vehicle Hangar SLC Space Launch Complex SLSL Space Life Sciences Lab SSPF Space Station Processing Facility
Praxair Kennedy Parkway SVPOC Space Vehicle Processing & Operations Complex SWS Strategic Weapons System ULA nited Launch Alliance VAB Vehicle Assembly Building
Max Brewer 402 Memorial Parkway Notional LC 49 planned
1 Launch and RLV Hangar Cape Road LC 39B LC 39C NASA Landing Facility (formerly Shuttle Landing Facility) LC 39A SpaceX LC 48 NASA under construction
C3PF PCC Space Saturn Pkwy LC 41 ULA Florida Boeing OPF 1 2 SLC 40 SpaceX SVPOC Boeing SpaceX VAB NASA LPF SpaceX Schwartz Rd 50 Indian River SLC 37 ULA KSC Visitor KSC Industrial SLC 20 Space Florida, Astrotech Complex Roberts Rd Area Complex Firefly, future pads) Indian River Bridge NASA Parkway O C 405405 CCSFS Industrial Area Space Commerce Way SSPF 95 SLC 16 Relativity Space 407 MPPF ICBM Road Landing Zones 1 2 Space Exploration Park PHSF Space Florida, SLSL SpaceX Coast Central Control Road Blue Origin, Space Florida Regional SLC 36 Blue Origin Airport and OneWeb Skid Strip Spaceport Area 59 SLC 46 Space Florida, Air Liquide SpaceX NOTU
Phillips Parkway Area 57 Space Florida, EPF NRO Pier Road 1 Aerojet SR 3 MOC SLC 17 18 Banana River SWS Ashore US Navy Naval Ordnance Test Unit NOTU 528 Beachline Expressway Port Space Florida South Campus SpaceX LCC Canaveral NCB-8 Space SpaceX Refurb Facility Support A1A
520
8 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 Lake Poinsett LEGEND 02 PROGRAM OVERVIEW Kennedy Space Center Cape Canaveral Space Force Station CAPE CANAVERAL Space Florida (Property Agreement) Payload Processing Facility or Multi-Function Support Areas THE BASICS SPACEPORT Major Roadways Rail 1 Water FDOT has significant responsibilities relative To implement state law and FTP/SIS goals and 1 (not all facilities shown) to aerospace and spaceports in Florida. Most objectives, FDOT collaborates with Space notably, Florida law establishes a process Florida. Recent examples of the Program’s ACRONYMS for incorporating spaceport and aerospace partnership includes: C3PF Commercial Crew and Cargo Processing Facility industry–related needs into the Florida CCSFS Cape Canaveral Space Force Station • Providing funds to Space Florida for Shiloh Launch Complex EPF Eastern Processing Facility Transportation Plan (FTP) and the Strategic Proposed KSC Kennedy Space Center refurbishing Launch Complex 39A, (historic LC Launch Complex Intermodal System (SIS). Florida’s SIS consists LCC Launch Control Center Apollo and Shuttle launch pad) and Launch of the state’s largest and most significant LPF Large Payload Facility Complex 36 for heavy lift commercial MOC Morrell Operations Center commercial service airports, spaceports, Atlantic Ocean MPPF Multi-Payload Processing Facility launches; NCB North Cargo Berth roadways, seaports, and freight rail terminals. NOTU Naval Ordinance Test nit Mosquito NRO National Reconnaissance Office Incorporating space- and aerospace-related • Supporting Space Florida’s efforts to obtain Lagoon O C Operations and Checkout Building OPF Orbiter Processing Facility 1 & 2 needs into the FTP and the SIS is a significant FAA commercial launch site operators PCC Processing Control Center PHSF Payload Ha ardous Servicing Facility commitment by the state to support a major licenses and reentry site licenses for the RLV Reusable Launch Vehicle Hangar sector of Florida’s economy. Launch and Landing Facility (LLF) and the SLC Space Launch Complex SLSL Space Life Sciences Lab proposed Shiloh launch complex, both at SSPF Space Station Processing Facility
Praxair Kennedy Parkway SVPOC Space Vehicle Processing & Operations Complex The Spaceport Improvement Program was the Cape Canaveral Spaceport; SWS Strategic Weapons System created to implement the aerospace and ULA nited Launch Alliance • Providing Space Florida with engineering VAB Vehicle Assembly Building spaceport goals and objectives set out in the and technical expertise for facility FTP and SIS. It also implements the goals and Max Brewer assessments and infrastructure 402 Memorial Parkway Notional LC 49 planned objectives established in the Florida Spaceport development of the LLF, Exploration Park, 1 Launch and RLV Hangar Cape Road LC 39B LC 39C NASA System Plan and the master plans of individual Landing Facility Cecil Spaceport and Statewide Telemetry (formerly Shuttle Landing Facility) spaceports. LC 39A SpaceX Studies, Space Launch Complex 46, solid LC 48 NASA under construction propellant processing areas, and future Florida law places several aerospace and C3PF PCC Space Saturn Pkwy LC 41 ULA launch pad sites. Florida Boeing spaceport responsibilities on FDOT and OPF 1 2 SLC 40 SpaceX SVPOC Boeing incorporates them into the Spaceport SpaceX VAB NASA LPF SpaceX Schwartz Rd Improvement Program. Most notably, the 50 Indian River SLC 37 ULA Program provides technical assistance and KSC Visitor KSC Industrial SLC 20 Space Florida, Astrotech Complex Roberts Rd funding for projects that: Area Complex Firefly, future pads) Indian River Bridge NASA Parkway O C 405405 CCSFS Industrial Area • Improve aerospace transportation facilities; Space Commerce Way SSPF 95 SLC 16 Relativity Space 407 MPPF • Encourage coordination between airports ICBM Road Landing Zones 1 2 Space Exploration Park PHSF and spaceports; Space Florida, SLSL SpaceX Coast Central Control Road Blue Origin, Space Florida Regional SLC 36 Blue Origin • Foster interagency efforts to improve space Airport and OneWeb Skid Strip Spaceport Area 59 SLC 46 Space Florida, transportation capacity and efficiency Air Liquide SpaceX NOTU
Phillips Parkway Area 57 Space Florida, EPF NRO Pier Road 1 Aerojet SR 3 MOC SLC 17 18 Banana River SWS Ashore US Navy Naval Ordnance Test Unit NOTU 528 Beachline Expressway Port Space Florida South Campus SpaceX LCC Source: Space Florida Canaveral NCB-8 Space SpaceX Refurb Facility Support A1A 1 See Sections 331.3051, 331.360, 334.044, and 339.362, Florida Statutes. Exploration Park
520
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 9 Lake Poinsett 02 PROGRAM OVERVIEW
For the 10-year period 2017–2026, program transportation funding priorities, legislative funding has been dedicated to capital approval, and many other factors. Therefore, the improvements. Through 2026, approximately actual funding level is subject to change. Most $551 million is programed in the Five Year Work importantly, the five-year funding allocation Program for Spaceport Improvement Program demonstrates Florida’s ongoing commitment projects. However, this is not a guarantee of to invest in the state’s growing spaceport future funding (Figure 2a). For the same period, transportation system. more than 93 percent of the program funds are used for actual capital improvements and the One challenge for FDOT is to identify, balance, remainder are used to support implementing the and incorporate the various regulatory and program (Figure 2b). economic aspects of the evolving commercial space market and activities with its mission The work program is updated annually to to provide a safe and secure transportation account for changes in FDOT revenue, statewide system.
INVESTMENTS How much does FDOT fund each year?
ACTUAL FY 2017–2021 PROJECTED FY 2022–2026 $252 MILLION $299 MILLION $105M
$79M
$72M
$61M $61M
IMPROVEMENTS $46M Where does the funding go? $41M 7% $31M $29M $26M $551M FROM 2017 TO 2026 93%
CAPITAL IMPROVEMENTS PRODUCT SUPPORT • Launch Complexes • Planning 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 • Facilities • Financial Analysis FISCAL YEAR(FY) • Manufacturing • Design / Inspection
Figure 2a: Spaceport Investment Funding Figure 2b: Spaceport Improvement Source: FDOT Program Funding Source: FDOT
10 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 02 PROGRAM OVERVIEW
KEY POINTS
Before beginning any discussion on the spaceport projects involve sensitive or project development process, stakeholders proprietary information from aerospace partners must be aware of challenges and limitations that could fall under the public record law as when funding spaceport capital projects. For part of a contract or project funding agreement. example, Florida has a broad public records Care must be taken from the beginning of the law and aerospace partners may not be aware process to ensure that all public information is of specific requirements pertaining to the made available and that sensitive or proprietary release of information. FDOT capital funding is information is not improperly disclosed. limited to designated areas called spaceport territories, and infrastructure ownership and SINGLE AUDIT ACT REQUIREMENTS responsibilities at Cape Canaveral Spaceport In accordance with the requirements of Section require coordination with our federal partners 215.97(2)(a), Florida Statutes, each non-state (i.e., NASA/Kennedy Space Center, the USSF, the entity that expends a total amount of state Navy, the National Park Service, and the U.S. Fish financial assistance equal to or in excess of and Wildlife Service). $750,000 in any fiscal year shall be required to have a state single audit, or a project-specific PUBLIC RECORDS AND PROPRIETARY audit, for such fiscal year. Essentially, this means INFORMATION project-related financial records are public Florida’s broad public records law is governed records and audited as part of the project. by Florida Statutes (FS), Chapter 119. Frequently,
Source: Jacksonville Aviation Authority
Cecil Spaceport: Airport Traffic Control Tower / Space Operations Control Center (under construction)
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 11 02 PROGRAM OVERVIEW
SPACEPORT TERRITORIES infrastructure under their control. Spaceport Space Florida’s ability to develop spaceport infrastructure that may be developed in other infrastructure is statutorily limited to geographic spaceport territories will be under the ownership areas called spaceport territories pursuant and responsibility of the operating authority to Section 331.304, Florida Statutes. Florida’s (e.g. Jacksonville Aviation Authority for Cecil Spaceport Territories are illustrated in Figure 3. Spaceport) or its aerospace partners.
INFRASTRUCTURE OWNERSHIP AND As Florida’s statewide spaceport development RESPONSIBILITY authority, Space Florida is tasked to support the NASA and the USSF are the primary property continuing NASA and the USSF missions while owners of the Kennedy Space Center and facilitating the growth of Florida’s commercial the Cape Canaveral Space Force Station, space sector. Responsibility for specific space respectively. The State of Florida retains facilities at Cape Canaveral Spaceport varies title to more than 55,000 acres dedicated to between Space Florida, aerospace partners, the U.S. government’s use for the nation’s and lease agreements with NASA and the space program. Land and existing spaceport USSF. Ownership, lease arrangements, and infrastructure are licensed, leased, or otherwise responsibility for spaceport infrastructure may granted, to Space Florida or aerospace partners also vary for the remaining spaceport territories, by NASA and the USSF. Both Space Florida depending on contractual agreements with the and aerospace partners may construct and spaceports, Space Florida, and future aerospace own new infrastructure on federal land but, in partners. doing so, assume responsibility for the site and
Source: NASA
Launch Complex 41 Atlas V, July 2020 (NASA Mission – Mars Perseverance Rover)
12 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 02 PROGRAM OVERVIEW Spaceport Territories
Eglin Air Force Base Cecil Spaceport Cape Canaveral Space Force Station
Cape Canaveral Space Force Station
Cape San Blas ERA NextGen Laboratory
Cape Canaveral Space Force Station
Map Legend rbani ed Area Patrick SFB Existing System Spaceport Space Coast Regional Spaceport Territory Airport Spaceport Control Center Aerojet Rocketdyne Payload Processing Facility Southwest Florida Other Significant Facilities Part of Eglin Air Force Base
Strategic Intermodal System SIS Interstate Highway SIS Roadways Railroad SIS Existing Airport SIS Seaport
Space Coast Regional Airport Spaceport Patrick Space Force Base
Figure 3. Spaceport Territories
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 13 03PROGRAM MANAGEMENT Kennedy Space Center Visitor Complex
Source: NASA
14 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 03 PROGRAM MANAGEMENT
PROJECT DEVELOPMENT
One of the nationally recognized features To take projects from concept to of the Spaceport Improvement Program implementation, FDOT and Space Florida have is the use of FDOT funds for spaceport developed, and continue to refine, the following transportation planning, development, and three phases to identify, allocate, and manage capital improvements.2 These funds have been Spaceport Improvement Program funds for successfully used to attract aerospace partner capital projects: investment, turning Cape Canaveral Spaceport 1. Project identification and funding into a one-of-a-kind spaceport evolving to authorization become the Center of Global Space Commerce. 2. Space Florida’s project analysis and The use of FDOT funds indicates Florida’s strong approval commitment to aerospace partners with an 3. Project funding and management average of approximately $60 million designated for each year of FDOT’s 5-year capital These three phases are illustrated in more detail improvement plan. in Figure 4.
Project Identification and Space Florida Project Project Funding Funding Authorization Analysis and Approval and Management
FDOT Florida Transportation Space Florida executes Plan, Space Florida Spaceport Space Florida issues call for non-disclosure agreement and System Plan, and Master Plans projects term sheet with aerospace used to identify needs partner
Space Florida and FDOT Aerospace partners seeking Space Florida requests funding develop projects based on partnership opportunities from FDOT for approved aerospace needs submit applications projects
FDOT tentative work program Space Florida receives and FDOT reviews projects and process evaluates applications approves funding
FDOT work program and Space Florida completes FDOT executes agreement with budget submitted to the analysis of proposed projects, Space Florida for approved Governor’s Of ce and includes return on investment projects Legislature (ROI)
Legislative process; Space Florida project Space Florida executes contract State budget approved prioritization with aerospace partners
Space Florida Board of Space Florida and aerospace Figure 4: Spaceport Directors approves projects partners complete project Improvement Program Project Development
2 Planning projects are developed and managed like Spaceport infrastructure projects, however planning projects are for Spaceport System’s program and project development process. They do not go through the “call-for-projects” process.
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 15 03 PROGRAM MANAGEMENT
PROJECT IDENTIFICATION AND FUNDING AUTHORIZATION
This phase establishes the specific needs of a process for incorporating spaceport and aerospace partners and individual spaceports aerospace industry–related needs into the FTP in the Florida Transportation Plan (FTP), the and the SIS, both of which are primary drivers Florida Spaceport System Plan, and the various for delivering state transportation products in spaceport master plans. Project-related needs Florida. are identified by Space Florida through these sources and communicated to FDOT. Once The FTP provides the policy framework for needs are identified, FDOT includes the projects allocating FDOT’s funding and is used to satisfy in the Five Year Tentative Work Program and the long-term transportation needs of residents, submits the plan to the Governor’s office and the tourists, and businesses. The FTP identifies the Legislature for review and approval as part of the goals and objectives and addresses the needs state budget approval process. of the entire state transportation system. One of the stated goals of the FTP is to strengthen FLORIDA TRANSPORTATION PLAN coordination among seaports, airports, FDOT has significant responsibilities relative spaceports, railroads, and other modal partners. to aerospace and spaceports in Florida. Space was designated as a mode of transportation by The SIS is a statewide system of transportation Florida law in 1999. Florida law also establishes facilities that have a critical role in moving people
Source: Space Florida
Launch Complex 46 Mobile Access Structure, flame duct, and lightning towers
16 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 03 PROGRAM MANAGEMENT
and goods to and from other states and nations, as well as among economic regions within FLORIDA SPACEPORT SYSTEM PLAN Florida. The SIS serves as the state’s highest GOALS: priority for statewide mobility. Incorporating space and aerospace-related needs into the FTP • Create a stronger economy where and the SIS reflects a significant commitment by Florida’s spaceports and aerospace the state to support this major sector of Florida’s businesses can thrive economy. • Guide public and private investment into emerging and growing aerospace FLORIDA SPACEPORT SYSTEM PLAN enterprises and maximize the use of Space Florida is required under state law existing aerospace resources to “develop a spaceport master plan for the expansion and modernization of space • Enrich our quality of life while providing transportation facilities within spaceport responsible environmental stewardship territories”. The Florida Spaceport System • Advance a safer and secure spaceport Plan first adopted in 2013, updated in 2018, transportation system for residents, with an upcoming update functions in this role, businesses, and others incorporating the various individual spaceport master plans across the state, including the Cape Canaveral Spaceport Master Plan and the Cecil Spaceport Master Plan (Figure 5). The the project list is updated based on new project Florida Spaceport System Plan is consistent applications for funding and unfunded projects with and considered a supporting document from the previous year. Coordination between to the FTP and SIS. In conjunction with the FDOT, Space Florida, and each Florida spaceport Florida Spaceport System Plan, Space Florida maximizes the use of state funds and enables maintains a list of recommended capital projects Florida’s spaceport system to improve and eligible to be funded through FDOT. Each year, accommodate future needs.
FLORIDA TRANSPORTATION PLAN (FTP)
SYSTEM PLANS Florida Aviation Rail Spaceport Transit Seaport
MASTER PLANS Input / coordination Space Coast Cape Canaveral Cecil KSC Regional Airport/ Spaceport Spaceport Spaceport Naval Ordnance Test Unit
US Space Force
Figure 5: Florida Spaceport System Plan
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 17 03 PROGRAM MANAGEMENT
SOURCES OF SPACEPORT IMPROVEMENT Together, these funds help to sustain the most PROGRAM FUNDS progressive and expansive spaceport system in The Spaceport Improvement Program the world. This handbook provides information receives FDOT funds in two ways: first, a only on the Spaceport Improvement Program specific allocation is made to the Spaceport and does not include information on federal, Improvement Program as part of a base local, or other state funding sources. Further, allocation; and second, funding is allocated the Spaceport Improvement Program does not through the FDOT’s Strategic Intermodal include a federal contribution or state aviation System (SIS) (Figure 6). The SIS was established fuel tax funds.3 Although the background, to enhance Florida’s mobility and economic eligibility requirements, and project prioritization competitiveness. It is made up of facilities of processes differ between the two funding statewide and interregional significance. sources, the three processes used to identify, approve, and manage projects are the same. nsportation Tru Tra st F ate un Spaceport funds are allocated annually to St d the FDOT Central office and distribution is coordinated by the Spaceports office. As detailed in this handbook, the Spaceports office Spaceport collaborates closely with FDOT District offices Spaceport Improvement SIS Allocation Program Program and Space Florida to effectively evaluate funding requests, allocate funds to projects, and manage project delivery.
Figure 6: Spaceport Improvement Program Funding
Source: Space Florida
NASA Vehicle Assembly Building
3 Section 332.009, Florida Statutes, prohibits the use of aviation fuel tax revenues on space transportation projects.
18 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 03 PROGRAM MANAGEMENT
TENTATIVE AND ADOPTED WORK PROGRAMS appropriate FDOT Districts to be included in Section 331.360, Florida Statutes, directs FDOT the Districts’ Tentative Work Programs, where to coordinate in the development of spaceports the list of projects is subject to a public hearing and related transportation facilities, encourage before the Metropolitan Planning Organization coordination between airports and spaceports, within the District. Following submission of each and foster interagency efforts to improve space District’s Tentative Work Program to the Central transportation capacity and efficiency. The Office, FDOT develops the statewide Tentative law also authorizes FDOT to provide technical Work Program. assistance and funding to Space Florida for transportation-related capital improvements to The FDOT Tentative Work Program is submitted aerospace transportation facilities in Florida. to the Governor and the Legislature no later than 14 days after the regular legislative session Space Florida developed the Florida Spaceport begins. System Plan in 2013, and revised the plan in 2018, to satisfy its statutory direction to develop During the legislative session, FDOT’s budget a statewide master plan for expansion and is finalized as part of the overall state budget. modernization of space transportation facilities Once the budget is passed by the Legislature, within Florida’s designated spaceport territories. spaceport project priorities may need to be The 2018 Plan4 integrates Space Florida’s Cape adjusted to account for the approved final Canaveral Spaceport Master Plan (2017) and funding amounts. the Jacksonville Aviation Authority’s Cecil Spaceport Master Plan (2012). Such adjustments are authorized in law and is intended to discourage the process of In the future, the Florida Spaceport System Plan legislatively adding specific projects in the will also incorporate the individual spaceport appropriations bill. The law states: “the adopted plans prepared by other operating authorities. work program... may include only those projects Space Florida submits the plan to FDOT for submitted as part of the tentative work program funding, subject to the availability of funds. developed under subsection (4), plus any After review and approval, the Spaceports projects that are separately identified by specific office submits the approved projects to the appropriation in the General Appropriations
Source: Blue Origin
Blue Origin manufacturing complex
4 Chapter 331, Part II, Florida Statutes, references a “master plan” which Space Florida for clarity has designated the Florida Spaceport System Plan to incorporate planning performed by different entities in the various spaceport territories, as some of those location specific plans carry the designation of master plan.
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Act... However, any FDOT transportation project which is identified by specific appropriation The addition of a new spaceport project, in the General Appropriations Act shall be not included in the Tentative Work Program, deducted from the funds annually distributed to would likely reduce the funding available for the respective district.” requested projects and could impact funding for projects already approved and underway! The new state budget takes effect on July 1, which is the first day of each new fiscal year. The FDOT Secretary adopts the work program, which Earmarks are subject to being vetoed by authorizes the FDOT to participate in funding the Governor and could affect a project’s approved spaceport transportation projects. future funding.
SPACE FLORIDA PROJECT ANALYSIS Requests for spaceport capital funds must AND APPROVAL be submitted to Space Florida for review and prioritization. PROJECT SUBMITTALS, ANALYSIS, AND PRIORITIZATION Initially, Space Florida separates space Once a year, Space Florida solicits aerospace transportation capital projects from non- partner interest in spaceport partnership transportation projects, such as manufacturing, opportunities through a “Call for Projects” research, workforce development, and process. Interested aerospace partners submit education. FDOT funding can only be used for 5 project applications, which then compete for the transportation projects, such as launch and Spaceport Improvement Program funding. re-entry or payload processing facilities.
Space Coast Regional Airport/Spaceport, Titusville, FL Source: Boeing
5 An example application is available on Space Florida’s website: https://www.spaceflorida.gov/page/call-for-projects
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Space Florida then develops a proposed list of spaceport capital projects from the qualifying AT A MINIMUM, applications for submission to FDOT. PROPOSED PROJECTS MUST: Although Space Florida issues its Call for Projects once a year, it does accept applications • Be on spaceport territory property on a continuous basis. Space Florida examines each application to determine whether projects • Be included in an approved spaceport also qualify for various funding programs. Next, master plan proposed projects are evaluated according to various metrics in accordance with existing • Have or be likely to obtain appropriate spaceport system and master plans and are licenses, permits, and leases prioritized for available funding. The project justification, economic benefits, state benefits, • Satisfy the eligibility requirements in project cost and level of funding requested, section 331.303(21), Florida Statutes1 project schedule, launch schedule, and other economic development related data are all • Have an aerospace partner match reviewed to maximize the use of state funds. (Figure 7).
1 Section 331.303(21), Florida Statutes, relates to project funding eligibility and states, “capacity improvements that enhance FDOT emphasizes the Return On Investment space transportation capacity at spaceports that have had one or more orbital or suborbital flights during the previous (ROI) that the state will realize by contributing calendar year or have an agreement in writing for installation funds toward major modal transportation of one or more regularly scheduled orbital or suborbital flights upon the commitment of funds for stipulated spaceport capital projects. Space Florida performs either an improvements.” economic or financial analysis on spaceport capital projects before requesting FDOT funds.
COLLECT PROJECTS QUALIFY PRIORITIZE ALLOCATE (February – April) (April) (May) (May – June) - Call for projects - Review project - Perform initial - Identify projects and - Hold public / applicant applications prioriti ation allocations for approved workshop - Categori e - Assess alignment with projects - Receive applications - Determine benefits to Space Florida goals / - Compare to available the state objectives funding sources - Return on investment - Classify projects based - Strategically invest in on capital investment Florida and job growth
Figure 7: Space Florida’s Project Analysis / Prioritization Process Note: Dates are typical but may vary.
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In most cases, the information Space Florida determines whether to provide funding for the needs to conduct this analysis is provided in project. the application. If not, additional information is requested from the applicant. Each request includes a budget summary for the project reflecting requested state match and Space Florida prepares an annual list of eligible aerospace partner investment, project schedule, projects for inclusion in the Spaceport System and other required financial information FDOT Plan or master plans, as appropriate. The Space needs to evaluate the funding request. The Florida’s Board of Directors approves the list funding request includes: and each prioritized project prior to entering into • Nominal Internal Rate of Return (IRR); Return agreements with FDOT and the applicant. on Investment (ROI) • Benefit-Cost Analysis (BCA) • Economic benefits of the project PROJECT FUNDING AND • Project readiness MANAGEMENT • Long-term customer commitment • Narrative statement summarizing the Under the Spaceport Improvement Program, project analysis and justification, and the Space Florida submits Board-approved funding financial and economic basis for requesting requests for capital projects to FDOT. The state funding participation Spaceports office reviews each request and
Orbiter Processing Facility 1 (OPF 1), Home of the X-37B Source: Space Florida Source: US Air Force
22 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 03 PROGRAM MANAGEMENT
for third party agreements should be consistent FDOT evaluates each funding request with the Grant Agreement and reviewed by FDOT based on consistency with the FTP and prior to execution by Space Florida. SIS, benefits to the state, and capital investment. PROJECT TYPES
FDOT also considers the aerospace partner’s PLANNING VERSUS CAPITAL PROJECTS current Spaceport Improvement Program Every spaceport project has a unique context, commitments and their record to draw-down goals, program needs, and requirements, so previously awarded project funds. It is important a determination of the eligibility of specific that Spaceport Improvement Program funds are projects is made during the early stages of a properly managed and expeditiously used. project. Spaceport projects fall into two primary categories: spaceport planning projects and GRANT AGREEMENTS spaceport capital projects. Specific types of The Grant Agreement is the contract mechanism projects may include project planning, land used to fund spaceport projects as authorized mitigation, processing facilities, utilities, safety by Section 331.360, Florida Statutes. improvements, and launch facilities.
Essentially, a Grant Agreement is a contract SPACEPORT PLANNING PROJECTS between FDOT and Space Florida, where FDOT Spaceport planning projects identify aerospace agrees to reimburse Space Florida for eligible needs and guide the development of future project costs. Key provisions in the Grant spaceport capital projects. Through the Agreement include: Spaceport Improvement Program, FDOT may • Scope of work provide up to 100 percent funding assistance to • Quantifiable deliverables Space Florida for spaceport planning and project • Budget development. Space Florida must provide FDOT • Schedule a scope of work and proper cost estimate prior • Invoicing requirements to committing funds for a planning project. If • Method of compensation another entity, such as a consultant, is expected • Accounting practices to perform the work, a third-party agreement • Records management requirements must be provided in advance of committing • Public information requirements Program funds. • Single audit act requirements • Other terms and conditions The Spaceport Improvement Program has funded several planning projects, including: Grant Agreements are processed in accordance • Florida Spaceport System Plan (2018). with the FDOT Contract Funds Management Defines the statewide spaceport system, Funds Approval, Procedure Topic No. 350-020- develops statewide spaceport policies and 200 and the Department of Financial Services processes, and priorities Reference Guide for State Expenditures. • Cape Canaveral Spaceport Complex On most projects, Space Florida will opt to have a Master Plan 2013. Guides capital third party perform the work.6 The scope of work
6 On most, if not all, projects, the aerospace partner will be considered a sub-recipient. This is an important distinction because sub-recipients are subject to Single Audit Act requirements.
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development and investment at Cape SPACEPORT CAPITAL PROJECTS Canaveral Spaceport The purpose of capital improvement projects is to provide for capital facilities and equipment at • Cape Canaveral Spaceport Master Plan spaceports. These improvements are generally 2017. Updated the 2013 plan based on specified and supported in masterplans or new strategic vision and dynamic changes by project plans. Capital projects eligible for in space transportation technologies, funding through the Spaceport Improvement business models, and markets Program include: • Kennedy Space Center Strategic • Launch and re-entry facilities Framework. Prepared a strategic framework for future development concept • Vehicle/spacecraft/payload final assembly, alternatives at Kennedy Space Center integration and processing facilities • Special Studies. Examines topics of • Other landside projects (parking lots, special interest, such as enhanced weather structures, launch control facilities, etc.) forecasting capabilities at horizontal launch • Specialized equipment, control facilities, and recovery facilities and assessments of clean rooms to support launch legacy federal facilities for potential use by aerospace partners • Safety and security projects
Some capital projects are considered “common use” and support multiple users as needed: EXAMPLES OF PLANNING PROJECTS ELIGIBLE FOR FUNDING • Taxiways/aprons/runways • Range facilities The purpose of spaceport planning is to lay the groundwork for the development • Utilities of future spaceport infrastructure and • Fuel farms aerospace economic development while protecting the public, the environment, and the cultural resources of the state. • Spaceport System Plan • Spaceport master plans • Environmental Assessments (EAs) • Environmental Impact Statements (EISs) • Economic impact studies • Master drainage plans • Noise studies • Launch site or launch vehicle licensing • Program and project support • Spaceport facility and feasibility assessments • Siting studies Source: SpaceX
SpaceX booster landing
24 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 03 PROGRAM MANAGEMENT
1 2 3
5 4
Sources: (1) Blue Origin, (2) SpaceX, (3,4) Space Florida, (5) NASA
The following projects are examples of FDOT-funded capital projects:
1. Blue Origin – Orbital Launch Vehicle 5. Space Florida – Space Launch Manufacturing Facility Complex 46 First-ever rocket manufacturing in Florida Upgrading small launch vehicle capacity to meet space user needs 2. SpaceX – Launch Complex 39A Expanding heavy-lift capacity for This list is not exhaustive, and some potentially commercial launches eligible projects may not fall precisely into these categories. Further, not all projects that fall 3. Space Florida – Launch and Landing into these categories are guaranteed funding. Facility FDOT has the responsibility for making the final Creating space logistics hub for horizontal determination on the eligibility of each project.7 launch and landing opportunities
4. OneWeb Satellites – Spacecraft Integration Facility High volume satellite manufacturing in Florida
7 Section 331.303(21), Florida Statutes, relates to project funding eligibility and states, “capacity improvements that enhance space transportation capacity at spaceports that have had one or more orbital or suborbital flights during the previous calendar year or have an agreement in writing for installation of one or more regularly scheduled orbital or suborbital flights upon the commitment of funds for stipulated spaceport capital improvements.”
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FDOT FUNDING FOR CAPITAL PROJECTS and could be eligible for funding under both A key component of developing a Grant programs. In cases where such overlap exists, Agreement is FDOT’s level of funding requests to fund space-related projects through participation toward a project. the FDOT’s Airport Improvement Program, or other similar programs, are handled as follows: Although Section 331.360, Florida Statutes, does not specify project funding shares, FDOT For a project that is predominately aviation policy is to provide up to 50 percent of eligible related, but has some limited space-related project costs for spaceport capital projects. application or function, normal Airport The remainder must be provided by others, Improvement Program funding shares apply. such as Space Florida, licensed spaceports, or other aerospace partners. This policy was A project that is predominately space related developed to: is not eligible for funding under the Airport • Be consistent with the funding participation Improvement Program. FDOT funding for rates of other FDOT modal programs, i.e., spaceport-related projects is provided under the SIS, seaports, and rail Spaceport Improvement Program. Examples of • Maximize the use of state funds predominately space-related projects include: • Ensure aerospace partners have a • Fuel farms for spacecraft – hazardous fuels substantial and vested interest in the • Launch control centers projects • Range safety infrastructure • Projects exceeding FAA design standards For some projects, there may be overlap to accommodate spaceport operations between the Spaceport Improvement Program and FDOT’s Airport Improvement Program. For In 2014, section 331.371, Florida Statutes, example, airport runways, taxiways, and aprons was enacted to address strategic spaceport may be used by both space vehicles and aircraft investments. The law authorizes FDOT, in
Source: Space Florida Source: Blue Origin
Space Launch Complex 36 Blue Origin pad reconstruction (left) and rendering (right)
26 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 03 PROGRAM MANAGEMENT
consultation with Space Florida, to fund up to operational and administrative costs. FDOT 100 percent of a project at strategic spaceport interprets operational and administrative launch support facilities if the following criteria costs as those costs related to Space Florida’s have been met: operation as an organization. Spaceport Program and project-related costs are not • Important access and on-spaceport considered part of Space Florida’s operations or and commercial launch facility capacity administration and are eligible for FDOT funding. improvements are provided • Capital improvements that strategically INVOICING AND PAYMENT FOR CAPITAL position the state to maximize opportunities IMPROVEMENT PROJECTS in international trade are achieved As noted under the Grant Agreement section, FDOT reimburses Space Florida for eligible • Goals of an integrated intermodal project costs (Figure 8 explains this process). transportation system for Florida are This ensures that Spaceport Improvement achieved Program funds are properly used. Under this • Feasibility and availability of matching funds system, the aerospace partner incurs the through federal, local, or private partners cost, and submits an invoice. Space Florida are demonstrated then submits a request to FDOT for advanced reimbursement of expenditures. Space Florida Finally, section 331.360, Florida Statutes, reimburses the aerospace partner after payment prohibits FDOT from funding Space Florida’s is received.
Aerospace partner submits invoice to DFS processes warrant Space Florida is Space Florida reimbursed
Aerospace FDOT Comptroller submits Space Florida Space Florida pays partner makes invoice to Department of reviews invoice aerospace partner adjustments Financial Services (DFS)
Payment process Is invoice N FDOT District 5 Spaceport complete acceptable? Coordinator submits invoice to FDOT Comptroller
Space Florida submits FDOT District 5 Spaceport invoice to FDOT for Coordinator reviews / advanced reimbursement approves invoice
Space Florida Financial Tracker Grant Payment Coordination
Aerospace Space Florida Space Florida FDOT FDOT Space Florida CAPITAL partner project and CFO approval review and payment payment to PROJECT submits accounting for SF→FDOT comment to Space aerospace partner invoice review invoice resolution Florida complete
Figure 8: Invoicing and Reimbursement Process
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The invoicing process begins when the aerospace partner incurs costs associated with It is in the aerospace partner’s interest that the spaceport project, as per the conditions of Space Florida and FDOT’s invoice review the Grant Agreement. The aerospace partner and reimbursement processes function then submits the invoice to Space Florida for smoothly and in a timely manner. Invoices review and payment. If Space Florida does need to be submitted in good form as soon not identify any changes to the invoice, it is as possible after the expense was realized approved and submitted to the FDOT District to ensure proper accounting and timely Office Spaceport Coordinator for review/ reimbursement approval. When approved, the invoice is then forwarded to the FDOT Comptroller who submits the invoice to the DFS for advanced reimbursement to Space Florida. Space Florida then pays the aerospace partner. (See Figure 8 on page 28.) The FDOT District will review the invoice for: • Completeness • Accuracy • Compliance with the Grant Agreement contract conditions • Progress • Deliverables • Consistency with field reviews • Eligibility of expense line items
Per standard language in the Grant Agreement, FDOT staff have 20 calendar days to either approve or reject the invoice. Approved invoices must be paid by the Department of Financial Services within 40 days of submittal to the District. When approved, FDOT reimburses Space Florida. If an invoice is rejected, the process starts over when the corrected invoice is resubmitted.
There are two important points to reinforce regarding the reimbursement process: • Only eligible expenses incurred during the contract period may be reimbursed. Invoices containing costs incurred before the execution of the contract or after the expiration of the contract are not eligible for reimbursement. • Only eligible expenses are subject to Source: Space Florida reimbursement. Invoices containing ineligible expenses will be rejected. NASA Crawler with Mobile Launch Platform
28 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 03 PROGRAM MANAGEMENT
Examples of typically eligible and ineligible SAFEGUARDING THE STATE’S expenses are provided below (Figure 9). The INVESTMENT eligibility of any specific cost is ultimately dictated by state law, FDOT policy, and the terms FDOT and Space Florida make every effort of the Grant Agreement. to ensure the state’s investment is protected and benefits are realized. FDOT and Space To ensure timely reimbursement of expenses, Florida work together to maximize the return on questions should be addressed to Space Florida investment for all spaceport capital projects. or the FDOT District Spaceport Coordinator before submitting the invoice. PROJECT MONITORING AND INSPECTION Space Florida and FDOT strive to ensure projects are delivered in accordance with the TYPICALLY ELIGIBLE EXPENSES: Grant Agreement. Both Space Florida and Design/studies FDOT routinely review and monitor projects to ensure accountability and performance Demolition/site work objectives are met. Progress reports and management review of specific deliverables are Direct construction costs accomplished periodically with the aerospace • Construction labor partners. • Construction materials • Construction equipment rental Representatives of Space Florida and FDOT District staff may attend pre-construction and Capital equipment purchases project status meetings with the aerospace • Will transfer with delivery of the project partner and contractor team. Regular field visits • Are agreed to in advance by the to the project site are also conducted by staff or Department and Space Florida their representative to verify: • The conditions of the Grant Agreement are Permits being met • Progress is being reported accurately Consultant support • The work being performed is consistent with the scope of work
TYPICALLY INELIGIBLE EXPENSES: To help ensure a safe, productive, and timely Maintenance costs field visit, these reviews are coordinated ahead of time with Space Florida, the aerospace Operational costs partner, and contractor team, as appropriate.
Food, travel, and lodging are usually ineligible SPACEPORT IMPROVEMENT PROGRAM on capital projects, but are highly dependent SUSTAINABILITY on the contract conditions. The Spaceport Improvement Program provides funding and technical support to Space Florida Non-capital equipment purchases will not for aerospace transportation–related capital transfer with delivery of the project: improvements. Priorities are based on the • Tools Florida Spaceport System Plan, which reflects • Clothing a sustainability framework consisting of goals and objectives to guide public and private Figure 9: Typical Eligible and Ineligible Expenses
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investment into Florida’s emerging and growing creation and the purchase of local goods aerospace sector. Like other transportation and services to enhance quality of life for modes, such as aviation and transit, FDOT citizens, increase positive impacts (benefits), encourages spaceports to use Spaceport helps protect our vital natural resources and Improvement Program funds for projects that environment, and promotes a more effective and ensure the facility’s financial sustainability. This efficient use of public financial resources. includes placing a priority on funding space infrastructure projects that generate revenue INVESTMENT RECAPTURE FOR SPACEPORT and greater Return On Investment that allows CAPITAL PROJECTS resources to be reinvested into spaceport infrastructure. FDOT and Space Florida have The FDOT and Space Florida work closely determined that it is necessary to require and together on the allocation of state resources for satisfy Return on Investment (ROI) and state spaceport capital projects to achieve strategic benefit requirements to ensure the sustainability capital investment goals and facilitate non- of the program. Sustainable infrastructure state investment into emerging and growing enables sound economic development, job aerospace markets. When appropriate, Space
Source: Generation Orbit
Source: SpaceX
NASA Crew Dragon astronaut landing, August 2020
30 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 03 PROGRAM MANAGEMENT
Florida may require the aerospace partner to Recapture may be implemented by assessing satisfy certain benchmarks as a condition of land use fees, lease payments, franchise fees state funding participation on a project. Such and Space Florida property rights to property requirements are commonly referred to as and ownership of the improvements to facilitate “recapture” provisions and are intended to ensuring sustainability of the program. ensure benchmarks are met and protect the public’s investment in a project against the risk of nonperformance.
Perseverance rover to Mars launched on July 30, 2020 from LC 41. Landed and sent images of Mars on Feb 18, 2021. Source: NASA
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022–2022 31 04CONCLUSION
Launch and Landing Facility Runway 15-33 (C-5 and Antonov aircraft)
Source: Space Florida
32 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 04 CONCLUSION
The State of Florida has been at the forefront of This handbook describes key requirements the growth and development of a sustainable for partnerships, application submittals, and and world-leading aerospace industry in the project selection processes; Grant Management United States. The benefits of FDOT funded provisions, invoicing, and other project projects are evident in everyday life activities, management topics; and strategies used to not only of Floridians but billions of people maintain the integrity of the program and its around the world. The Spaceport Improvement resources. Because the market, industry, and Program is designed to stimulate private Program continues to evolve at a rapid pace, sector investment and commercial spaceport stakeholders are encouraged to coordinate development. Most importantly, the quality of life with Space Florida or FDOT’s Spaceport office. for Floridians will continue to improve as a direct This will ensure compliance with applicable result of these infrastructure investments. laws, rules, procedures, and plans, especially in cases where the facts or circumstances require additional guidance, interpretation, or deviation from this guidance.
Source: Generation Orbit
Cecil Spaceport Tenant Generation Orbit rendering of the X-60A air-launched single-stage liquid booster. Inset: Initial integrated engine firing of a full-scale, functional prototype of the GOLauncher1 (GO1) hypersonic flight test booster (June 2018).
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 33 Appendix
APPENDIX
STATEWIDE CONTACTS FDOT Spaceport Office: Space Florida: Wayne Lambert Mark Bontrager Spaceport office Manager Vice President Spaceport Operations [email protected] 321-730-5301, ext. 235 850-414-4513 Steve Szabo, PE Director of Planning and Development 321-730-5301, ext. 107
HELPFUL LINKS Please use the links below to access or download the specified information. For more information, please contact the FDOT Spaceport Office or Space Florida. Florida Statutes Chapter 287 Florida Statutes – Section 287.057 Procurement of commodities or contractual services Chapter 331 Florida Statutes – Aviation and Aerospace Facilities and Commerce Chapter 332 Florida Statutes – Airports and Other Air Navigation Facilities Chapter 334 Florida Statutes – Transportation Administration Chapter 339 Florida Statutes – Transportation and Finance All statutes are available at www.leg.state.fl.us/STATUTES FDOT Contract Funds Management - Funds Approval: https://fdotwp1.dot.state.fl.us/ ProceduresInformationManagementSystemInternet/FormsAndProcedures/ ViewDocument?topicNum=350-020-200 FDOT Spaceport Office:www.fdot.gov/spaceport FDOT Work Program Instructions – Freight, Logistics & Passenger Operations Part III – Chapter15, Aviation and Spaceports: https://www.fdot.gov/workprogram/development/ wp-instructions.shtm
34 Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 Appendix
Space Florida Space Transportation Infrastructure Matching Fund (STIMF) Application: www.spaceflorida.gov/page/call-for-project
Florida Department of Financial Services Department of Financial Services: www.myfloridacfo.com/Division/AA/Manuals (click on the Payments link)
Cecil Spaceport Cecil Spaceport website: http://www.flyjacksonville.com/Home.aspx?sMP=CECIL
Space Coast Regional Airport/Spaceport Space Coast Regional Airport/Spaceport website: http://www.ticoairportauthority.com/space- coast-regional-airport--tix-.html
Federal Aviation Administration (FAA) FAA Office of Commercial Space Transportation:https://www.faa.gov/about/office_org/ headquarters_offices/ast/ FAA Memorandum: Proposed commercial space facilities and operations at federally obligated or Part 139 airports: https://www.faa.gov/airports/media/ARP-interim-Spaceport-Guidance.pdf
COMMERCIAL SPACE TRANSPORTATION REGULATIONS FAA commercial space transportation regulations are in Chapter III, Parts 400 to 460, of Title 14 Code of Federal Regulations (CFR). The regulations implement statutory requirements. Amateur Rocket Activities are not regulated under 14 CFR Chapter III; they are regulated under 14 CFR Chapter I, by the FAA Air Traffic Organization. For more information, visithttps://www.faa.gov/space/legislation_ regulation_guidance/.
Florida Spaceport Improvement Program PROJECT HANDBOOK 2021–2022 35 Florida at night from space Source: NASA Space touches everyone.
THIS RESOURCE DOCUMENT WAS DEVELOPED BY: The Florida Department of Transportation Spaceport Office Mail Station 66 605 Suwannee Street Tallahassee, Florida 32399-0450 www.fdot.gov/spaceport