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Filling the Regulatory Void for Launch and Reentry Safety Resulting from the Commercialization of Space Operations VOL. 3 NO. 2 - SEPTEMBER 2016 Editors: Michael T. Kezirian, Ph.D. Joseph Pelton, Ph.D. Tommaso Sgobba Journal of Space Safety Engineering – Vol. 3 No. 2 - September 2016 JOURNAL of SPACE SAFETY ENGINEERING Volume 3 No. 2 – September 2016 EDITORS Michael T. Kezirian, Ph.D. Tommaso Sgobba Joseph Pelton, Ph.D. The Boeing Company European Space Agency (ret.) George Washington University (ret.) University of Southern California Senior Editor Senior Editor Editor-in-Chief EDITORIAL BOARD George W. S. Abbey Joe H. Engle Isabelle Rongier National Aeronautics and Space Administration (ret.) Maj Gen. USAF (ret.) Airbus Safran Launchers Sayavur Bakhtiyarov, Ph.D. National Aeronautics and Space Administration Kai-Uwe Schrogl, Ph.D. University of New Mexico Herve Gilibert European Space Agency Kenneth Cameron Airbus Space & Defense Zhumabek Zhantayev Science Applications International Corporation Jeffrey A. Hoffman, Ph.D. National Center of Space Researches and Luigi De Luca, Ph.D. Massachusetts Institute of Technology Technologies (NCSRT)- Kazakhstan Politecnico di Milano Ernst Messerschmid, Ph.D. University of Stuttgart (ret.) FIELD EDITORS William Ailor, Ph.D. Gary Johnson Erwin Mooij, Ph.D. The Aerospace Corporation Science Application International Corporation Delft University of Technology Christophe Bonnal Barbara Kanki John D. Olivas, PhD, PE Centre National d’Etudes Spatiales National Aeronautics and Space Administration (ret.) University of Texas El Paso Jonathan B. Clark, M.D., M.P.H Bruno Lazare Nobuo Takeuchi Baylor College of Medicine Centre National d’Etudes Spatiales Japan Aerospace Exploration Agency Victor Chang Carine Leveau Brian Weeden Canadian Space Agency Centre National d’Etudes Spatiales Secure World Foundation Paul J. Coleman, Jr., Ph.D. Tobias Lips Paul D. Wilde, Ph.D., P.E. University of California at Los Angeles (Emeritus) Hypersonic Technology Goettingen Federal Aviation Administration Natalie Costedoat Michael Lutomski Uwe Wirt Centre National d’Etudes Spatiales Space Exploration Technologies German Aerospace Center (DLR) MANAGING EDITOR Arif Göktuğ Karacalıoğlu, International Space University AIMS and SCOPE The Journal of Space Safety Engineering (JSSE) provides an authoritative source of information in the field of space safety design, research and develop- ment. It serves applied scientists, engineers, policy makers and safety advocates with a platform to develop, promote and coordinate the science, technol- ogy and practice of space safety. JSSE seeks to establish channels of communication between industry, academy and government in the field of space safety and sustainability. MAIN JSSE TOPICS • Safety by design • Human factors and performance • Space Situational Awareness • Safety on long duration missions • Safety critical software design • Space traffic control • Launch and re-entry safety • Safety risk assessment • Space traffic and air traffic interfaces • Space hazards (debris, NEO objects) • Safety risk management • Space materials safety • Space weather and radiation • Organizational culture and safety • Safe & Rescue • Environmental impacts • Regulations and standards for safety • Safety lessons learned • Nuclear safety for space systems • Space-based safety critical systems Publication information: The Journal of Space Safety Engineering (ISSN Pending) is a quarterly publication of the International Association for the Advancement of Space Safety (IAASS). You can read about IAASS mission, goals, organization, membership and activities at: http://iaass.space-safety. org/. The JSSE is published using an open access publication model, meaning that all interested readers are able to freely access the journal online without the need for a subscription, and authors are not charged. Authors inquiries: For inquiries relating to the submission of articles please contact the Editor-in-Chief at: [email protected]. For all information about the journal, please visit the journal web page http://iaass.space-safety.org/publications/journal/. Authors instructions on preparation and submittal at: http://iaass.space-safety.org/wp-content/uploads/sites/24/2013/07/JSSE-authors_instructions.pdf. Advertising information: if you are interested in advertising or other commercial opportunities please e-mail [email protected] and your inquiry will be passed to the correct person who will respond to you within 48 hours. Copyright and photocopying: Authors retain the copyright of their work. The IAASS maintains the copyright of the Journal as a whole. Single photocopies or electronic scans of single articles may be made for personal use as allowed by national copyright laws. Authors or IAASS permission and the payment of a fee is required for all other photocopying, including multiple or systematic copying, copying for advertising purposes, resale, and all forms of document delivery. For information on how to seek permission please contact the Editor-in-Chief at [email protected]. Notice: No responsibility is assumed by the Publisher IAASS and by Editors and Editorial Board for any injury and/or damage to persons or property from any use or operation of any methods, products, instructions or ideas contained in the journal. Although all advertising material is expected to conform to ethical professional conduct of IAASS, inclusion in this publication does not represent an endorsement of the quality or value of such product or service. Credits: Kristhian Mason, IAASS graphic designer, for graphic work, layout and paginations. Cover picture: Drem Chaser, Sierra Nevada Corporation/ NASA KSC Media Archive International Association for the Advancement of Space Safety Journal of Space Safety Engineering – Vol. 3 No. 2 - September 2016 FILLING THE REGULATORY VOID FOR LAUNCH AND REENTRY SAFETY RESULTING FROM THE COMMERCIALIZATION OF SPACE OPERATIONS Ruth Stilwell, DPA Adjunct Faculty, Norwich University College of Graduate and Continuing Studies, 158 Harmon Drive, Northfield, VT 05663 USA, Email: [email protected] ABSTRACT The new commercial space industry is expanding rapidly into launch operations as private companies continue to The commercial use of space is not a new concept. Satel- develop not only new rocket technologies, but also new lites have provided commercial services since the 1960s. concepts of launch operations. These include horizon- However, the launch and recovery of space vehicles was tal take off, launch from aircraft or balloon, and launch dominated by State operators or under State Contract un- from mobile and fixed sea platforms. Notably, the recent til the end of the last century. While commercial launches SpaceX Falcon 9 vertical landing illustrated a fundamen- continue to increase, the international regulatory frame- tally new concept in re-entry operations.4 The regulatory works related to launch and reentry are fundamentally challenge is twofold, technology and policy. These dis- unchanged and are not structured to support a competi- tinct categories should be viewed and addressed inde- tive commercial launch industry. pendent from one another. This approach is necessary to ensure the policy issues are not disregarded in the regula- This paper examines the regulatory gaps in the existing tory process, which tends to have a natural focus on the frameworks, particularly in the international domain. technical side of safety regulation. Recent experience in While there remain unresolved questions with regard the regulatory development for unmanned aircraft illus- to ICAO as it applies to suborbital flight, the ability of trates this difficulty, as rapid developments in technol- ICAO to develop standards and recommended practices ogy have driven the debate, leaving many critical policy for the portion of the operation that takes place in civil questions, particularly with regard to the right to regulate airspace is clear. These standards are necessary to ensure at very low altitudes, unanswered. the safety of civil airspace for both traditional airspace users and launch operators, and the interaction of space- 1.1 Policy ports with civil airspace. In the policy dimension, the transition from government operation to a regulated competitive industry presents 1. DEFINING THE REGULATORY GAP a set of challenges, but is not without precedent. In the aviation industry, national airlines were privatized, air Commercial applications for space technology are not navigation service providers (ANSP) became corpora- new, there have been commercial satellites in operation tized and airports around the world have gone from State for decades and the provision of commercial services to private operation. In making the transition, each State utilizing satellite technology is pervasive in our society. needed to evaluate whether the appropriate regulatory re- The United States opened launch activities to private gimes were in place. Both safety and economic consider- operators through the Commercial Space Launch Act of ations were addressed. As we examine the case of many 1984, but the operational treatment of private launches ANSPs in the late 1990’s, we see that the separation of remained identical to that of State sponsored launches.1 the regulators from service providers either placed new The US has continued to advance the legal frameworks burdens on existing regulators or required the creation to allow expanded commercialization of space launch of entirely new regulatory authorities. In addition, it be- activities over the last three decades.2 Similarly, the came apparent that international civil aviation
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