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Space Traffic Management A Report by a Panel of the NATIONAL ACADEMY OF PUBLIC ADMINISTRATION for the United States Department of Commerce Space Traffic Management August 2020 ay 2017 August 2020 A Report by a Panel of the NATIONAL ACADEMY OF PUBLIC ADMINISTRATION For the Office of Space Commerce, the Department of Commerce Space Traffic Management: Assessment of the Feasibility, Expected Effectiveness, and Funding Implications of a Transfer of Space Traffic Management Functions PANEL OF FELLOWS Michael Dominguez (Chair)* Martin Faga* Jane Fountain* Patrick Kennedy* Sean O’Keefe* *Academy Fellow Officers of the Academy Jeffrey Neal, Chair of the Board Norton Bonaparte, Vice Chair Teresa W. Gerton, President and Chief Executive Officer Jane Fountain, Secretary David Mader, Treasurer Study Team Brenna Isman, Director of Academy Studies Roger Kodat, Senior Project Director Karen Hardy, Senior Advisor Sukumar Rao, Senior Advisor Sujai Shivakumar, Senior Advisor Jonathan Tucker, Senior Advisor Richard Pezzella, Senior Research Associate Elise Johnson, Research Associate National Academy of Public Administration 1600 K Street, NW Suite 400 Washington, DC 20006 www.napawash.org August 2020 Printed in the United States of America Academy Project Number: 102252 Cover image sourced from the National Aeronautics and Space Administration (NASA) About the Academy The National Academy of Public Administration is a non-profit, non-partisan, and independent organization of top public management and organizational leaders who tackle the nation’s most critical and complex public management challenges. With a network of more than 900 distinguished Fellows and an experienced professional staff, the Academy is uniquely qualified and trusted across government to provide objective advice and practical solutions based on systematic research and expert analysis. Established in 1967 and chartered by Congress in 1984, the Academy continues to make a positive impact by helping federal, state, and local governments respond effectively to current circumstances and changing conditions. Learn more about the Academy and its work at www.napawash.org. This page is intentionally left blank. Table of Contents Foreword ....................................................................................................... i List of Figures ....................................................................................................... i List of Tables ....................................................................................................... i Acronyms and Abbreviations ................................................................................ iii Executive Summary ................................................................................................ 1 Chapter 1: Introduction and Scope of Work .................................................... 7 1.1 Study Origin and Scope .................................................................................... 8 1.2 Report Methodology ......................................................................................... 9 1.3 Organization of the Report .............................................................................. 11 Chapter 2: The Changing Commercial Space Domain .................................... 13 2.1 Growth and Disruption in the Space Economy ............................................... 13 2.2 Earth Orbital Space as a Common Pool Resource ........................................... 15 2.3 The Physical World .......................................................................................... 17 2.4 The Rules in Use .............................................................................................. 21 2.5 The Community .............................................................................................. 23 2.6 The Action Arena ............................................................................................ 30 2.7 Outcomes ........................................................................................................ 33 2.8 Toward Civilian Management of Space .......................................................... 36 Chapter 3: Toward a Civilian Agency for Space Traffic Management ............. 41 3.1 Tasks and Capabilities ..................................................................................... 41 3.2 Departmental Capacity and Support .............................................................. 63 3.3 Capabilities in Decision-making ..................................................................... 64 3.4 A Vision for an SSA/STM Agency ................................................................... 66 Chapter 4: Data, Financial, and Regulatory Components of Agency Space Traffic Management Operations .................................................. 69 4.1 Establishing an Open, Networked Approach to SSA Data Management: Opportunities and Challenges ........................................................................ 69 4.2 Establishing Regulations and Authorities ....................................................... 74 4.3 Establishing a Budget and Fiscal Considerations ............................................ 77 Chapter 5: Final Space Traffic Management Agency Evaluation .................... 85 5.1 Methodology of Agency Evaluation ................................................................ 85 5.2 Final Candidates and Evaluation .................................................................... 92 5.3 Final Candidate Evaluation Scores ................................................................. 98 5.4 Recommendation ........................................................................................... 101 Appendices ................................................................................................... 105 Appendix A: Panel Biographies and Study Team Members ............................................... 105 Appendix B: Selected Sources............................................................................................. 109 Appendix C: Individuals and Organizations Interviewed ................................................... 111 Appendix D: Department of Commerce and Department of Transportation Organizational Overviews ....................................................................................................... 119 This page is intentionally left blank. Foreword Space satellites serve a myriad of vital terrestrial purposes connected with national security, scientific research, and commercial aims. As the space domain becomes increasingly congested with space objects and debris, there is a corresponding increase in the risk of orbital collisions. There is general agreement within the space community on actions that can address the complex underlying space traffic management issues facing the world of stakeholders deploying orbital assets. However, there are questions regarding where the responsibility for space traffic management should ultimately reside. At the direction of Congress, the Office of Space Commerce, within the Department of Commerce, contracted with the National Academy of Public Administration (the Academy) to complete this independent and unbiased review to identify the best organization to assume the mission of space traffic management. This research was led by a five-member Panel of Academy Fellows, supported by an Academy study team. This report identifies the federal organization best suited for this critical mission and calls for urgent action by Congress to authorize and appropriate adequate funding to it to accomplish the space traffic management function. This agency should work collaboratively and creatively across government and non-government sectors, both domestic and international, to help identify and shape effective strategies to mitigate these risks across the space ecosystem. As a congressionally chartered, independent, non-partisan, and non-profit organization with over 900 distinguished Fellows, the Academy has a unique ability to bring nationally recognized public administration experts together to help government agencies address challenges. We greatly value the constructive engagement of the more than 100 individuals representing a broad array of stakeholders who provided important observations and context to inform this report. I am deeply appreciative of the work of the five Academy Fellows who served on this Panel. I also commend the Academy study team that researched, analyzed, and contributed valuable insights and expertise throughout the project. This report provides clear recommendations on how Congress and the stakeholder community should expeditiously proceed to address the looming crisis in space. Taking prompt action will serve to greatly enhance important commercial and research enterprises connected with the endless expanse that lies above us. Teresa W. Gerton President and Chief Executive Officer i This page is intentionally left blank. i List of Figures Figure 2-1. Institutional Analysis and Development (IAD) Framework ....................................... 17 Figure 2-2. Visualized General Orbits ........................................................................................... 19 Figure 3-1. Organization of the Capabilities ................................................................................. 45 Figure 5-1. Key Federal Entity Role Mapping to Capabilities ...................................................... 87 List of Tables Table 2-1. Examples of Current and Planned
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