Meld. St. 32 (2012–2013) Report to the Storting (White Paper)

Published by: Norwegian Ministry of Trade and Industry Between heaven and earth: Norwegian space policy Internet address: www.government.no for business and public benefit Cover photo: Norsk Romsenter/FFI/Seatex

Printed by: 07 Aurskog AS 12/2013

E JØM RKE IL T M

2 4 9 1 7 3 Trykksak Meld. St. 32 (2012–2013) Report to the Storting (White Paper)

Between heaven and earth: Norwegian space policy for business and public benefit

Translation from the Norwegian. For information only. Contents

1 The Government’s goals for 6The European Union ...... 48 Norwegian space activity ...... 7 6.1 The EU’s role in European space 1.1 Profitable companies, growth activity – background and trends . 48 and employment ...... 7 6.2 EU space programmes – common 1.2 Meeting important needs of society infrastructure, common goals ...... 49 and user groups ...... 9 6.3 EU satellite navigation 1.3 Greater return on international programmes: Galileo and EGNOS 50 space collaboration ...... 10 6.4 The EU earth observation 1.4 High-quality national administration programme: Copernicus ...... 52 of space activity ...... 11 6.5 Norwegian participation in Galileo, EGNOS and Copernicus ...... 54 2 On space activity ...... 13 6.6 What does the EU’s expanded 2.1 From space race to critical role mean for Norway? ...... 56 infrastructure: 50 years of the Space Age ...... 13 7 Norway’s space-related 2.2 Global space activity in ground infrastructure ...... 58 2013–actors and driving forces .... 15 8 Space activity in Norwegian 3 Development of space public administration ...... 63 activities in Norway ...... 21 8.1 Norwegian Space Centre ...... 63 3.1 Norway’s space-based service 8.2 State companies active in space .... 64 needs ...... 21 8.2.1 Andøya Rocket Range AS (ARR) .. 65 3.2 Development of high-tech 8.2.2 Norwegian Space Centre Norwegian industry ...... 26 Properties AS ...... 66 3.3 PwC’s evaluation of some 8.2.3 Kongsberg Satellite Services Norwegian space activities ...... 29 (KSAT) ...... 67 3.4 Research in Norwegian space 8.2.4 Opportunities and challenges in activity ...... 31 state administration and ownership 68 8.3 Ministries and agencies ...... 69 4 How space activity benefits 8.4 Inter-ministerial coordinating society and contributes to key committee for space activities ...... 72 policy areas ...... 34 4.1 The High North ...... 34 9 The Government’s commitment 4.2 Climate and environment ...... 37 to space ...... 74 4.3 Civil protection, preparedness 9.1 Profitable companies, growth and crisis response ...... 38 and employment ...... 74 4.4 Safe, efficient transport ...... 39 9.2 Meeting important needs of 4.5 Research ...... 41 society and user groups ...... 75 9.3 Greater return on international 5 The European Space Agency ... 44 space collaboration ...... 76 5.1 Context for Norway’s ESA 9.4 High-quality national administration participation ...... 44 of space activity ...... 76 5.2 ESA’s organisation ...... 45 5.3 ESA programmes and industrial 10 Financial and administrative policy ...... 46 implications ...... 78 5.4 Norwegian ESA participation over time ...... 46 Appendix 1 Abbreviations ...... 79

Between heaven and earth: Norwegian space policy for business and public benefit

Meld. St. 32 (2012–2013) Report to the Storting (White Paper)

Recommendation from the Ministry of Trade and Industry on 26 April 2013, and approved the same day in the Council of State. (Stoltenberg II Government)

Introduction

The previous time the Government asked the Often, the technology has been high-flying; but Storting to review an overall strategy for Norway the goals have always been down-to-earth. in space was in St.meld. nr. 13 (1986–87): Om Our participation in the European Space norsk romvirksomhet (On Norwegian space activ- Agency (ESA) has put us in a position to develop ity). In the 26 years that have passed since that independent national technological capabilities white paper, our society’s relationship to space while contributing to advances that have benefit- has changed greatly. Satellite-based services have ted Norwegian and other European users alike. become an important part of Norwegian daily life, Norway has supplemented its ESA involvement from ordering a taxi to operating advanced off- with nationally focused development support, shore petroleum facilities. In 2012, the consulting bilateral agreements and an ever-stronger part- firm PricewaterhouseCoopers (PwC) evaluated nership in recent years with the European Union. key aspects of Norwegian space activity. The firm The international collaboration, like the domestic concluded that some aspects have worked as initiatives, has contributed to the development of intended, but that improvement is needed in oth- important infrastructure and services. ers. The Government therefore believes the time The Government intends to maintain Nor- has come once more to anchor the broad guide- way’s down-to-earth orientation in space activities. lines of Norwegian space policy in the Storting. The trends – with space infrastructure growing as Practical benefits have always been the chief a factor in everyday life and Norway relying on aim of Norwegian space policy. Space activity has space to address key national interests such as the not been an end in itself, but a means to serve High North, the environment and climate policy – Norwegian interests. For this reason, most of suggest that space policy in the years to come Norway’s public-sector undertakings have been should focus even more directly on the practical intended to create value in high-technology indus- needs of public administrators, businesses and tries and to meet specific national needs in com- private citizens. Today, a well-functioning society munication, navigation and earth observation. depends on technology that exploits space. Gov- 6 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit ernment policy must therefore seek to ensure that ogy and the environment. Norwegian space activi- space activity can continue to be an instrument of ties contribute greatly to economic growth, sus- Norwegian interests. tainability and the ability of Norwegians to live Norwegian space activities have always been – safe and comfortable lives. In the years ahead, the and will remain – dependent on international col- Government will continue to work hard to maxim- laboration. To achieve results, we must be good at ise the benefits that Norway receives from its par- playing the cards we are dealt as technology, mar- ticipation in space. This white paper forms the kets and international partnerships evolve. Today basis of the country’s continued involvement in we can see that the game is changing, and that it space. may be necessary to adjust elements of Norwe- gian policy to better secure our interests. There are three primary factors that could Structure of this White Paper make policy adjustments necessary. The first is Chapter 1 lays out the Government’s goal for Nor- technological change. Technological advances in wegian space activity. Chapter 2 provides a histori- recent years have dramatically expanded the cal overview, and identifies the global actors and range of applications for space-based technology. driving forces behind modern space activity. The second factor that will help shape Norwegian Chapter 3 describes the emergence of Norwegian space policy in the years ahead is a change in Nor- space activity, with emphasis on the country’s way’s own needs. Space-based technologies pro- needs in space-based services, scientific research vide cost-effective options for addressing Norwe- and high-technology businesses development. gian policy challenges that have assumed central This chapter also reviews the most important find- importance in the past few decades, such as man- ings from the 2012 evaluation of Norwegian space agement of the High North and climate and envi- activities by PwC. Chapter 4 shows how space ronmental issues. The third factor that will affect activities may help Norway to solve current and our scope of opportunity in the years ahead is future challenges in key policy areas. Particular change within the international organisations that emphasis is placed on the importance of space to have long represented the framework for Norwe- issues affecting the High North, climate policy, gian investment in space activity. Without interna- the environment, security-related matters, trans- tional collaboration, a robust and efficient Norwe- port and research. Chapters 5 and 6 cover issues gian space sector would be unthinkable. The best related to collaboration with ESA and the EU. In way to approach such collaboration in the future Chapter 5, the focus is Norwegian participation in will depend on developments within the interna- ESA. ESA’s organisation, programmes and indus- tional forums to which we have access. trial policy are discussed, along with Norway’s Those involved in Norway’s space effort can membership over time. Chapter 6 discusses the point to many success stories in the years since EU’s role as a European space actor. After an the previous white paper on space activity was account of the rise of the EU in space, focus shifts submitted. Examples include the growth of com- to the satellite navigation programmes EGNOS petitive high-technology companies, the develop- and Galileo, and to the earth observation pro- ment of Norwegian AIS satellite technology, the gramme Copernicus. The chapter concludes by broad phase-in of satellite-based services across describing Norway’s participation in these two Norway’s public sector and the development of programmes along with the significance and con- Norwegian infrastructure. It would be an exagger- sequences of the EU’s expanded role. Chapter 7 ation, however, to say that Norway is a major provides an overview of Norway’s ground-based space nation. Our strengths lie in certain indus- space infrastructure, including facilities located in trial niches and in the application of space-based Svalbard, on Jan Mayen Island and in the Antarc- services. Compared with leaders in space like the tic. Chapter 8 is devoted to state administrative United States and France, we will always be small. responsibilities and ownership roles in organisa- A small country must prioritise its resources, and tions such as the Norwegian Space Centre, the there would be little point in attempting to create a Andøya Rocket Range, Norwegian Space Centre major national space industry or to resolve to Properties and Kongsberg Satellite Services AS. send Norwegian astronauts into space. Yet there Chapter 9 explains the Government’s active space is no alternative to increased space activity if we policy measures. The white paper concludes, in are to maintain our role as a leading nation in Chapter 10, with administrative and financial ocean shipping, High North stewardship, technol- implications. 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 7 Between heaven and earth: Norwegian space policy for business and public benefit

1 The Government’s goals for Norwegian space activity

The Government will work to ensure that space tantly to value creation throughout the value activity remains a means to advance Norwegian chain, facilitating business activity in sectors rang- interests. Four goals have been set: profitable ing from natural resources to transportation. The companies, growth and employment, meeting Government intends to facilitate the competitive important needs of society and user groups, strength and export potential of Norway’s down- greater return on international space collabora- stream industry. In addition, it may be useful to tion, and high-quality national administration of formalise collaboration between actors in certain Norwegian space activity. technological niches, such as satellite navigation, satellite communications or earth observation. The Government will therefore assess, in com- 1.1 Profitable companies, growth and mon with other business areas, whether an Arena employment project is needed for space-related research and business development, and in the longer term Today, space-based applications are important to whether a Norwegian Centres of Expertise pro- all sectors of the economy. The domain of space gramme is needed. technology extends well beyond companies that Norway’s commitment to space has helped produce satellite and rocket components. We promote business growth and development in observe it spilling into other technology areas, large part through technology development, mar- through the development of products and ser- ket access and system insight. The Government vices that rely on satellite-based services, and we will work to ensure that these three mechanisms observe it facilitating economic activity more gen- continue to contribute to development in Norwe- erally. To assess the full impact of space activities gian industry. Norwegian companies that have on value creation, our perspective must encom- participated in ESA development programmes pass more than traditional space technology have seen their technological capabilities industry. The Government will work to ensure improve. Norwegian ESA membership has also that public investment in space activities strength- made it possible for companies to conduct valua- ens wealth creation and business development. ble trials of newly designed technical components. When Norway joined ESA in 1987, there were The national development support funding pro- no satellite navigation services for civilian users. gramme for space innovation, Nasjonale følgemid- Most earth observation was the product of mili- ler, has been used actively to strengthen the posi- tary intelligence satellites. The satellite communi- tive effects of ESA membership on Norwegian cations market was still in its infancy. Today, satel- industry. Nevertheless, much of the value of our lite-based services reach into every corner of soci- ESA participation has come in the form of spillo- ety, from Google Earth and automobile navigation ver to other technology areas, such as defence, systems to landslide monitoring and advanced aviation, offshore petroleum and ship transport. control systems for offshore petroleum opera- The Government will seek to ensure that private tions. The proliferation of satellites in combination sector participation in ESA programmes contin- with increased data processing capacity, the ues to generate spillover effects in other technol- global spread of the Internet and the rise of ogy areas. mobile communications infrastructure make sat- Norwegian participation in the EU’s Galileo, ellite services increasingly relevant to all aspects EGNOS and Copernicus space programmes our lives. A large and growing industry has conse- allows Norwegian businesses to compete for con- quently evolved to offer services and equipment tracts on an equal footing with companies based in made possible by satellite communications, navi- EU countries. Similarly, Norwegian participation gation and earth observation. Such downstream in ESA has expanded market access for Norwe- services and equipment in turn contribute impor- gian companies with space-related products and 8 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit services. The Government will work to ensure Norwegian industry. Apart from our participation that Norwegian businesses take advantage of in EU and ESA development programmes, the pri- opportunities provided under ESA’s principle of mary tool for promoting value creation so far has guaranteed industrial return, and that Norwegian been the national development support pro- businesses are sufficiently competitive to obtain gramme for innovation, Nasjonale følgemidler. The contracts in EU space programmes. growing importance of space activities outside the Early insight into satellite-based infrastructure traditional space technology sector increases the systems is a key to success when developing asso- urgency of assessing whether existing industrial ciated products and services. Such insight has policy instruments can be adjusted to better reach been an important objective of Norway’s public enterprises that stand to benefit from space activi- commitment to space, and normally it can be ties despite having no direct link to the production obtained only by taking active part in the develop- and operation of space infrastructure. ment of the systems in question. Norwegian The range of potential policy actions is large. authorities and businesses have gained valuable An example would be to ensure that Norwegian system insight from Norway’s participation in EU companies that exploit earth observation data are and ESA programmes. This has strengthened the able to gain access to the data they require. The competitiveness of Norwegian products and ser- PwC report points out that public agencies are vices designed to exploit satellite-based navigation major customers of earth observation data ser- and earth observation systems. Through active vices. This customer role may trigger further participation in European space programmes, the technology development and ensure continued Government will work to ensure that Norway demand for services. A commercialisation strat- obtains insight into systems under development egy together with a strong domestic market may as early as possible in the process. ESA activities boost value creation. Norwegian participation in are primarily focused on the upstream industry, in multinational satellite projects, coordination of particular the development of satellite and launch national public-sector data procurement and an technologies. But companies whose main focus is open data policy for state-owned raw data are pos- downstream report that they, too, see value in sible means to achieve this. The Government will ESA participation, because of the technological seek to ensure that businesses and other users of insight they stand to gain. The Government will earth observation data have access to the data work to ensure that Norwegian firms in the down- they require. The Government will also evaluate stream sector see greater benefit from participa- the measures mentioned above. tion in ESA programmes. Another important policy tool for wealth crea- The 2012 PwC report supports the contention tion will be active participation in European infra- that important aspects of Norway’s public-funding structure programs like Galileo and Copernicus. model for the space sector are working as Already this has provided early insight into sys- intended. Space activities have positive ripple tem capabilities and limitations, helping to posi- effects in the Norwegian economy, and the coun- tion Norwegian companies in the market for prod- try’s various support instruments are synergisti- ucts and services that exploit such systems. Pub- cally linked. Commercial activities account for a lic procurement in the space sector should larger portion of the space industry in Norway include an assessment of how intended purchases than they do in many other countries, and Norwe- can help generate growth and development in gian industry has achieved substantial market Norwegian industry. It may also be necessary to share in segments of the space-based services adjust public development support so that it sector, particularly those related to satellite com- reaches companies further out in the value chain munications and earth observation. On the other than the companies that produce satellites, launch hand, the PwC report points out growth chal- vehicles and ground infrastructure. It will be lenges within the sector. To fully exploit the poten- important to inform all relevant actors of the tial for value creation, it may be necessary to mod- opportunities inherent in Norwegian space activ- ify the policy instruments whose purpose is to ity. The Government will use policy mechanisms ensure that benefits return to the Norwegian strategically to promote service development and economy. In the Government’s view, it is impor- commercial success in market segments with sig- tant that space-sector investments made to satisfy nificant growth potential and comparative advan- national needs also contribute to value creation in tages. 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 9 Between heaven and earth: Norwegian space policy for business and public benefit

1.2 Meeting important needs of toring, especially of northern regions and for cli- society and user groups mate study, must provide stable and continuous data access and adequate areal coverage. Satellite Space-based applications affect most aspects of monitoring itself cannot solve our climate and daily life these days. The use of space technology environmental challenges, but it has become a has become a precondition for the safe and effi- useful tool in preparing decision makers to make cient functioning of our society, including the pur- informed decisions. For Norway, one key priority suit of key policy objectives regarding the High is to ensure data access for Norwegian experts North, climate and the environment. The Govern- and environmental authorities. Another is to con- ment will work to ensure that space activities help tribute in a spirit of solidarity to systems that will meet important needs of our society and of vari- inform the global debate on climate and the envi- ous user groups, and to do so cost-efficiently. ronment. The Government will work to realise the Space-based infrastructure is growing more potential of satellite observations to advance cli- strategically significant by dint of its increasing mate and environmental policy. importance to critical services and the exercise of Good satellite systems to cover Norwegian governmental authority. A certain degree of needs in the High North are one of the key objec- national control and independent capability is tives of Norwegian space activity. In a few years, required to secure our interests, even in the case thanks to Galileo and Copernicus, good systems of commercially obtainable services. Norway has will be in place for navigation and earth observa- special needs in the High North and it cannot be tion in the High North. The biggest remaining assumed that actors outside of Norway will have challenge is the need for communication systems the ability or interest to develop good solutions. – in particular, broadband services for ships. The ability to influence the development of essen- Existing satellite communication systems provide tial infrastructure will have consequences for pub- little or no coverage north of 75 degrees latitude. lic safety and crisis management. It is therefore Communications satellites moving in polar orbit important that Norwegian research and technol- can solve this challenge. Several countries with ogy communities possess the insight and exper- interests in the High North have begun studying tise required to identify workable solutions; such polar-satellite communications options, but so far, expertise is also necessary to be a competent no immediately realisable plans exist. As recently counterpart in procurement transactions and as a few years ago, the problems associated with international partnerships and, when appropriate, navigation and communications in the central Arc- to develop and implement national systems. The tic Ocean were of purely theoretical interest. Few Government will help to provide framework con- if any ship owners wanted to sail into the massive ditions in which Norwegian actors can develop ice flows north of 80 degrees. Today, Norway’s and implement space-based systems geared to fishing fleet operates regularly at 82 degrees Norwegian user needs, whether through national north, and the offshore petroleum industry, too, is initiatives or international collaboration. In so moving steadily into the Arctic. Within a few doing, the Government wishes to encourage a years, we may witness a significant increase in continued flow of expertise from Norway’s ship traffic in the Northeast Passage. The steady research and educational institutions to Norwe- rise of human activity in the area intensifies the gian space programmes and enterprises. A deep need for good systems to aid navigation, commu- understanding of space is an important part of this nications, weather forecasting, sea rescue and expertise. The Government intends to continue monitoring. Experience shows that space-based the Research Council of Norway’s space research systems can solve such challenges cost-effec- programme. tively. Norway is determined to be a responsible Satellite monitoring is already a very impor- steward of the far north. A major challenge in the tant tool for understanding the complex interplay years ahead will be to see that Norwegian authori- of factors that affects our climate, for assessing ties and users have access to the space-based the extent of pollution transported over long dis- infrastructure required for safe, sustainable, effi- tances and for monitoring other damage to the cient High North operations. The Government natural environment. The importance of such will actively consider how best to address Nor- monitoring will in all likelihood increase further way’s need for satellite communications in the as new, more sophisticated environmental moni- High North, and will facilitate the implementation toring satellites enter operation, as exemplified by of good, robust satellite navigation coverage. ESA’s Sentinel programme. Environmental moni- 10 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Transport is one of the sectors that have 1.3 Greater return on international undergone the greatest change in recent years as space collaboration a result of the increasing use of satellite-based infrastructure. It is also the sector whose use of International collaboration has always been – and satellite systems is most obvious on a daily basis. will remain – the backbone of Norwegian involve- Satellite-based infrastructure in the transport sec- ment in space. ESA membership has served Nor- tor includes technology for navigation, communi- way well as we developed our own competitive cations and earth observation. Satellite-based ser- group of space-related businesses, expanded our vices are important aids to maritime, aviation and space technology expertise and internationalised land transport. The Government will work to our research programmes. In the years to come, ensure that satellite-based services can be used as the Government will extend Norway’s participa- important elements in transport policy. tion in ESA as a key way of promoting Norwegian Because of technological advances in recent interests in space. At ESA’s ministerial-level coun- years, Norwegian authorities face fewer limita- cil meeting in November 2012, Norway declared a tions on their ability to act on their own. This commitment of 144.4 million euros to optional applies in particular to the emergence of relatively ESA programmes. inexpensive small satellites. The launch of AISSat- In addition to participating in ESA, however, it 1 in 2010 showed that the Norwegian authorities, increasingly will be necessary to collaborate with with modest effort, are able to finance and operate the EU. Galileo and Copernicus will play roles in highly effective space infrastructure at the solving some of the key challenges that Norway national level. The operation of small national sat- faces. Norway should take an active approach to ellites will never replace multilateral collaboration EU space policy in order to gain influence over on large, complex systems such as Galileo and infrastructure projects of significance to this coun- Copernicus, but it can be a useful supplement. try as well as to protect the interests of Norwe- More information is required on the potential for gian industry, researchers and user groups while domestic space infrastructure to support Norwe- positioning Norway for a future in which the EU gian users in government and business. The Gov- increasingly determines the broad outlines of ernment will actively use supplementary national European space policy. The Government will pur- initiatives as a means of addressing Norwegian sue proactive policies to secure Norwegian inter- user needs. ests in EU space programmes, and it will work to As with all systems that society makes itself ensure that Copernicus and Galileo perform well dependent on, the increased reliance on satellite- in Norwegian areas of interests. based systems represents a potential vulnerability. Today, significant changes are coming into As satellite systems gain importance to critical view that will require Norwegian policy adjust- applications in aviation, civil preparedness and ments if we are to ensure that our needs are effec- activities related to national defence, they may of tively addressed in the future. For years, ESA has course become targets for hostile attack. Natural been the mainstay of Norwegian space activity. phenomena, such as space weather, can also dam- ESA participation will remain indispensable, but age satellite infrastructure, as can space debris. as time passes, that participation will no longer be Addressing vulnerabilities has become an impor- sufficient to protect Norwegian interests. EU tant task for the authorities. The EU and the space programmes have emerged as necessary United States are leaders in the effort to establish supplements to those of ESA. international guidelines aimed at reducing the ESA has its role to play as an arena for collabo- increasing amount of space debris in key satellite ration in research and development. The EU has orbits. The Government will continue its efforts to the financial and political weight to build and oper- address vulnerabilities associated with the use of ate large, costly infrastructure systems. Galileo satellite systems, and it will contribute to the task and Copernicus will help Norway address key of establishing international guidelines to reduce issues related to the High North, the climate and space debris. the environment. Active Norwegian participation in these programmes has already helped ensure that they address Norway’s special needs; it has also given Norwegian participants early insight into opportunities linked to the programmes. The EU’s rise as a key player in European (and Norwegian) space activity presents Norwegian 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 11 Between heaven and earth: Norwegian space policy for business and public benefit authorities with a new set of challenges regarding interests are protected in the international part- international collaboration in space. Until recently, nerships that may be required, we must draw most relevant matters were settled in ESA – an together the expertise available in administration, organisation focused on research, development technology and international relations. The Gov- and technology, in which Norway enjoys full ernment intends to strengthen interaction and membership. Norwegian interests have been coordination among the relevant ministries. addressed through Norwegian participation in The Norwegian Space Centre (NSC) is ESA governing bodies. Increasingly, key matters responsible for administering public appropria- are now resolved at the EU. As a result, Norwe- tions on space activity, advancing Norwegian gian space policies are becoming increasingly interests in international space programmes and similar to the country’s general European policy. advising Norwegian authorities and businesses on Norwegian interests must increasingly be cham- space matters. The NSC’s advisory function will pioned in forums where we are not a member, or gain importance in the years ahead. Our society’s where our right to participate is limited. That growing dependence on space-based infrastruc- makes it more urgent to strengthen the diplo- ture systems increases demand for structured matic dimension of Norwegian space activity. We analysis of user needs and proposed technical must be good at promoting our interests in concepts – analysis that is necessary to ensure forums other than ESA, and particularly within that public investment in the sector is carried out the EU system. The Government will therefore in the most efficient manner. Public- and private- seek to make sure Norwegian authorities are sector user groups will also be requiring more capable of successfully pursuing Norwegian inter- counsel, because they will want to make sure that ests in international space forums. the systems receiving investment are utilised opti- Norway’s longstanding collaboration with mally. The Government wants the NSC to remain Canada on radar satellites has demonstrated that the state body in charge of strategy, coordination Norway can achieve substantial benefits from and implementation, making efficient use of space bilateral cooperation in specific topic areas. The for the benefit of Norwegian society. The Govern- Government will maintain a pragmatic approach ment will therefore strengthen the NSC’s analyti- to the use of such agreements and will use them cal and advisory capacities. actively when appropriate to advance Norwegian Norway’s geographical advantages for space- interests. The Government will continue Nor- oriented ground infrastructure on the mainland way’s commitment to international collaboration and elsewhere has enabled the country, since the in space-related research. 1960s, to scale up activities that have achieved world class standing in certain space-sector niches. Balloon releases and sounding rocket 1.4 High-quality national launches from Andøya are among them. Others administration of space activity include the ground stations in Svalbard, on Jan Mayen Island and in Antarctica for communicat- If space activities are to serve Norwegian inter- ing with satellites in polar orbit. The Government ests, expertise is required in crucial segments of will seek to ensure that operators of space-related the Norwegian bureaucracy as well as in technol- ground infrastructure can continue to take advan- ogy centres and user groups. Whether services tage of Norway’s favourable geographical loca- and infrastructure are to be developed nationally, tion. internationally or through commercial procure- Since 2004, when the Norwegian Space Centre ment, Norwegian authorities must be able to iden- was converted from a foundation to an administra- tify national needs, to judge the quality of techni- tive agency, the state has had a 90 per cent owner- cal proposals and to ensure their effective imple- ship stake in the Andøya Rocket Range AS mentation. The demand for expertise is height- (Kongsberg Gruppen owns the remaining 10 per ened by the fact that the technologies in question cent) and 100 per cent ownership of Norwegian are often highly advanced, with user benefits that Space Centre Properties, which in turn owns half cut across traditional sector lines in public admin- of Kongsberg Satellite Services AS (Kongsberg istration. The importance that Norway places on Gruppen owns the remaining half). The Norwe- international cooperation and international pro- gian Space Centre manages the state’s ownership jects heightens the demand for expertise further. interests on behalf of the Ministry of Trade and To ensure that effective solutions can be properly Industry. These companies have been important developed and implemented, and that Norway’s tools in developing key aspects of Norway’s space 12 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit effort. The investments have created a commer- between the administrative, political and commer- cial basis for strong industrial growth in the com- cial aspects of the state’s involvement in space panies, which increasingly derive their revenue activities. The Government will seek to deter- from international markets. mine, by evaluation, the most appropriate organi- The companies’ growth and their increasing sational structure for public-sector space pro- earnings from market activities make it necessary grammes, and will take the necessary steps to to examine the structure and degree of state own- realise that structure. ership. Clearer distinctions may be needed 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 13 Between heaven and earth: Norwegian space policy for business and public benefit

2 On space activity

Space activity is an umbrella term for all activities geration to say that the importance of such activi- associated with the development, construction and ties has increased tremendously in the more than use of infrastructure in space. For many of us, the 26 years that have elapsed since publication of term brings to mind the space race, astronauts and that report. The proliferation and refinement of rockets. It is probably less typical to associate satellites – in combination with increased data space activities with weather forecasting, offshore processing capacity, the global spread of Internet petroleum operations, live broadcasts of World services and the emergence of mobile communi- Cup football matches or ordering a taxi. The fact is cations equipment on earth – have given satellite- that space-based activities enter our lives most based services an ever-greater impact in daily life. directly through ordinary services like those. Over In policy fields like climate research, the environ- the last 25 years, services that rely on space infra- ment and the High North, which have risen to the structure have become so seamlessly integrated top of the political agenda in recent years, satellite into our lives that we reflect barely at all on the fact usage has become a prerequisite for efficient that they are made possible by space activity. information gathering and public administration. We can illustrate this with a thought experi- The importance to security policy, the traditional ment: What would happen if all satellite-based ser- pinnacle of applied space technology, remains at vices suddenly disappeared? It’s certainly the case least as great as it was during the Cold War. that much of what we take for granted in everyday Space activity has quite simply become essen- life would come to a stop. The quality of weather tial to modern society. It is inconceivable that we forecasts, especially long-term forecasts, would could live as we do today without the help of satel- decline sharply. Many of us would lose our TV sig- lites in orbit. Space activity is not some peripheral, nals altogether, and others would have to make do albeit fascinating, branch of basic science with fewer channels. Modern shipping operations research. It is a basic part of our everyday lives, would be set back many years, to when cost effi- and a necessary element in government strategy ciency, safety and crew welfare were of lower stand- to ensure competitiveness, security and sustaina- ard. The ability to summon emergency help and the ble development. effectiveness of search-and-rescue missions would be dramatically reduced. Official oversight of ship traffic, fisheries and sources of pollution off the 2.1 From space race to critical coast would become more difficult and expensive to infrastructure: 50 years of the exercise. Researchers, meanwhile, would have a Space Age harder time understanding the factors that govern climate and other aspects of our environment. With- The launch of the Soviet test satellite Sputnik 1 in out satellite navigation signals, private individuals, October 1957 is generally regarded as the open- public emergency services and taxi companies would lose the use of electronic maps for navigation and fleet management. Land surveyors and con- Box 2.1 Key terms struction planners would have to fall back on time- Space activity: All activities related to the consuming manual processes, while airport direc- exploration and exploitation of space. tors would see punctuality and capacity decline. Space-based infrastructure: Technology on The last time the Storting was presented with the ground or in space required for the pursuit a comprehensive look at the role of space activity of space activities; examples include satellites, in Norway was in St.meld. nr. 13 (1986–87): Om launchers and ground stations. norsk romvirksomhet (On Norwegian space activ- Space-based services: Services based on the ity). Already then, space activities were described use of satellites. as affecting many aspects of society. It is no exag- 14 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit ing of the Space Age. Since then, humanity has Its significance to civilian life gradually became been capable of placing objects in orbit around the more apparent, however, especially in areas like earth – an ability that is the basis for all the practi- meteorology and communications. The growing cal applications of space-based systems we see importance of satellite-based services for civilian today. However, a good many years would pass purposes led to expanded international coopera- before space activities with any practical signifi- tion in developing and employing satellite sys- cance to civilian society began to appear. In the tems. For small states, this was an opportunity to early years, advances were motivated by and large gain access to infrastructure they would not have by military and geopolitical considerations, as been able to develop on a national level. For large part of the Cold War arms race. states with substantial capabilities, international The first decade of the Space Age was marked cooperation made it possible to split the bill with by a rivalry between the United States and the others, without losing user privileges. Key mile- Soviet Union, with each superpower seeking to be stones included the creation of INMARSAT, the the first to boast new achievements in space. international organisation for maritime satellites, Soviet citizen Yuri Gagarin’s orbit of the earth in in 1979, and EUMETSAT, the European organisa- 1961 and the first steps on the moon, by the Amer- tion for meteorological satellites, in 1986. The ican Neil Armstrong in 1969, were spectacular international organisation for telecommunications milestones in the struggle for hegemony in space. satellites, INTELSAT, had been established way Driving the space race was each country’s desire back in 1964 but expanded its membership and to demonstrate its technical skill, in part to activities on a large scale throughout the 1970s impress its opponent and in part to impress its and 1980s. The most comprehensive international own population. Inherent in the rivalry was an collaboration on space activity to date came into understanding that rocket technology from the being in 1976, with the founding of ESA. two competing space programmes also had an In the 1990s, civilian use of space-based ser- alternative use: to propel missiles with nuclear vices began to increase sharply. The change can warheads between continents in the event of a be attributed to several factors. Two of them are global armed conflict between the superpowers. related to the end of the Cold War. First was the By the early 1960s, space technology was relaxation of international tensions as the super- being adopted, if gradually, for practical purposes powers stood down from their long rivalry. It was on the ground. Yet military needs still took prior- now tenable to loosen controls on technologies ity. In 1964 the United States inaugurated its and systems that previously had been reserved TRANSIT military satellite navigation system, a for military use. That was the case with high-reso- forerunner of the GPS global navigation satellite lution satellite imagery, which had once been con- system. Satellite communications were employed sidered so strategically important that information for both military and civilian purposes throughout about the best resolution achieved was kept the 1960s, first in the United States and later in secret. In the 1990s and 2000s, improved access to many other countries. Earth observation satellites good satellite images opened the way for a grow- became a valuable tool for the intelligence ser- ing business exploiting such images – the most vices on both sides of the Iron Curtain. Such satel- prominent example being Google Earth. Sec- lites provided a good overview of installations on ondly, the end of the Cold War brought with it a the ground and made it possible to observe the reduction in military budgets. The cuts were a territory of other states without committing air- blow to many strategic technology companies, space violations. Eventually, this military function which responded by turning to new civilian mar- and an increase in civilian applications caused kets. Another important factor that helped boost other countries to desire space programmes of civilian use of space technology was the informa- their own, allowing them to develop their own tion technology revolution in the 1990s and 2000s, capabilities in a field increasingly seen as strategi- which led to a rapid increase in data-processing cally important. In the late 1960s, China began capacity, Internet connections and mobile tele- making substantial investments to develop its communications equipment. The new information space skills. In Europe, France took the lead in technologies made it possible to deploy satellite- developing space technology and became a driv- based navigation, communications and earth ing force in the establishment of European space observation systems in a far more comprehensive cooperation. way than would have been technically feasible Space activity continued as an arena for super- before. power competition through the 1970s and 1980s. 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 15 Between heaven and earth: Norwegian space policy for business and public benefit

Developments since the 1990s have been char- has begun to grow, though most global invest- acterised by the accelerating integration of space- ments in this part of the space sector are still pub- based technologies into everyday life. To put it licly funded. Cost-cutting demands, particularly another way, space activity has been «normal- among traditionally dominant players like the ised». It is no longer a spectacular sector cut off United States, have led to increased emphasis on from the rest of the economy, but is instead a international cooperation and innovative financing source of critical infrastructure services along the methods. Nonetheless, the approach to space lines of electricity generation and water supply. remains intensely strategic, if in a somewhat dif- This change in character has had several different ferent way than during the Cold War. Control over effects. The emphasis on socially beneficial space space-based infrastructure has become more activities has become more explicit. To a greater important to security and national independence. extent than before, public expenditures on space activities are expected to return measureable ben- efits to the public. Satellites have become highly 2.2 Global space activity in 2013– important tools to military and civilian authorities actors and driving forces alike. Commercial interests that rely on the use of satellite-based services have grown quite large Space activity today is far more complex than ever over time. The role of private actors in space- before. The number of fields affected by space- based infrastructure like satellites and launchers based infrastructure has increased. Likewise, the

Box 2.2 Apollo The US Apollo programme of the 1960s was improved medical monitoring equipment to new, essentially a political project. The goal was to fireproof textiles – slipped into services and restore the United States as the world’s leading products that we now take for granted. An technological and economic superpower. The important «spin-off» has been the very image means: a moon landing. we all have of the earth. A photograph of our The moon programme was treated as a soci- planet titled «The Blue Marble», taken from the etal call to action. The price tag was USD 25.4 moon against an infinite black background, has billion, equal to about USD 160 billion today. been of great importance to environmental Some 20,000 industrial companies, 200 universi- awareness. ties and colleges and nearly 400,000 people took part in the project. On the technology side, the programme led to major advances. The most important was the transformation of computers from colossal machines, each the size of a house, into smaller and lighter machines with greater computing capacity, memory and reliability. The other major legacy of the Apollo era was the concept of programme management. While the required technological leaps were formida- ble, a far greater challenge lay in programme management of the planning, manufacturing, testing, training and logistics involved. A funda- mentally new concept for programme manage- ment was developed. It was subsequently used in the management of everything from urban planning to industrial processes, leading to improved profitability, safety and quality stand- ards in other fields. Figure 2.1 The Blue Marble With less fanfare, a number of unexpected Photo: NASA by-products of the Apollo mission – from 16 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit number of actors actively involved in space on a States has initiated long-lasting collaboration with global basis has increased. States are still the pri- Europe on the shared use of weather satellites, mary actors. States, or international organisations and has been a major force in the global initiative with states as members, are the main force behind Group on Earth Observation (GEO), which seeks large public infrastructure systems, and they are to ensure open and free access to environmental the primary funders of research and development. monitoring data from satellites. The number of states actively involved in space Russia’s position as a world leader in space has grown in the past 25 years, while the balance was weakened by the collapse of the Soviet Union. of the various state actors has shifted to some The harsh economic situation of the 1990s put the degree. The other main actor is industry. Much of Russian space programmes in a powerful budget the traditional space industry has undergone squeeze, and Russian authorities lost direct con- major structural change since the end of the Cold trol over important industries and infrastructure War. Meanwhile, a large commercial sector has in places like Kazakhstan and Ukraine. Russian arisen to exploit satellite data and services. Space- economic growth in recent years has once again related activity has increasingly become a tool to made it possible to make space a priority. The satisfy needs in other sectors in society. As a Putin administration is working hard to restore result, the main public drivers of space-sector Russia as a leading space nation, through such developments are mainly to be found in economic projects as the modernisation of the GLONASS policy, security policy and environmental and cli- satellite navigation system, which deteriorated in mate policy. the years after the Soviet Union’s fall. New ground The dominant state actor is still the United infrastructure is being established on Russian soil States, although new entrants in recent years have to replace the infrastructure in other former increasingly challenged US dominance. The Soviet republics. The space sector is considered United States has leading capabilities in all areas of the space sector, and it aims to maintain its role as the dominant space nation. At the same time, the country’s public investments in space have not been exempted from overall budget-cutting demands. The Obama administration’s space pol- icy has been characterised by attempts at reform, including the adoption of new space strategies for both the civilian and military sectors. The purpose is to reconcile a desire to maintain US hegemony in space with the need for economic tightening. Practically speaking, this has had three main effects. The first is that NASA and NOAA, the pri- mary US space organisations, now face a require- ment to return demonstrable benefits to society. A stronger emphasis is being given to applied tech- nology in navigation, communication and earth observation, as well as to space technology that will provide spillover effects to the rest of the economy. Second is a continuous effort to estab- lish public-private cooperation in the space sector, both as a means of cost control and a way to ensure that public investment filters into the pri- vate sector. Since the discontinuation of the Space Shuttle programme in 2011, the intention has been that private contractors will fulfil the demand for transportation services to the International Space Station. Steps have also been taken to strengthen international competitiveness within the US space industry by softening strict US Figure 2.2 Ariane 5 at Kourou export controls (ITAR). Third is a greater empha- sis on international collaboration. The United Photo: ESA/S. Corvaja, 2012 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 17 Between heaven and earth: Norwegian space policy for business and public benefit strategically important to Russia’s technological, their part, have mounted large national efforts economic and geopolitical goals. Russia has par- that supplement their participation in ESA and EU tially opened the door for international collabora- programmes. For the vast majority of countries, tion in space activities, primarily as a source of however, international cooperation is the only way technology transfer. Cooperation between ESA to play an active role in space. The largest and and Russia on the use of Russian Soyuz rockets at most comprehensive collaborations are in Europe, the European launch base in Kourou, French Gui- through ESA and increasingly the EU as well. ana, has so far proved highly successful. Latin American and African nations are attempting China has for years invested heavily in its own to gain access to space infrastructure through space capabilities, and has ambitions to become bilateral agreements with the United States, the leading space nation in the 21st century. It China, ESA and others. The International Space sees the space sector as a catalyst for economic Station (ISS) has been completed jointly by the development and growth, with strategic impor- United States, Russia, Japan, Canada and ESA. tance for the country’s goal of becoming a geopo- The United Nations has long played a role in litical leader. Space also plays a significant role in regulating the use of space and developing rele- the building of national self-esteem and demon- vant international legislation. In addition, the strating Chinese expertise to the rest of the world. organisation has itself become a major user of sat- A major priority is the Beidou satellite navigation ellites. The UN’s legislative work on space issues system, which is to be a global system corre- takes place within the framework of the United sponding to GPS, Galileo and GLONASS. The sys- Nations Committee on the Peaceful Uses of Outer tem is already operational in China and is sched- Space (UNCOPUOS), which was created in 1958. uled for completion in 2020. Beidou is designed to The committee currently serves primarily as a ensure control over strategic military infrastruc- forum for information exchange and international ture as well as to boost Chinese industrial know- debate on issues related to regulation of space how. Also in progress is the development of an activities. In the 1960s and 1970s, UNCOPUOS earth observation system (something similar to played a central role in the preparation of five Europe’s Copernicus programme), launch vehi- international treaties governing the use of space. cles and a Chinese space station. Chinese authori- Norway is not a member of UNCOPUOS but has ties aspire to execute a manned Chinese moon endorsed four of the international space treaties. landing by 2030. In addition to UNCOPUOS, space-related issues Indian efforts in space technology are primar- today are discussed in arenas such as the Confer- ily intended to meet specific national user needs ence on Disarmament, the UN General Assembly, related to economic development, resource man- UNESCO, the International Telecommunication agement and military purposes. The country cur- Union (ITU) and the World Meteorological rently has its own satellite systems providing com- Organisation. munication, television, meteorology and resource- Apart from its involvement in international mapping services, and it is in the process of devel- space law and regulation, the UN is a major user oping its own regional satellite navigation system. of space-based systems to reach international Because of incomplete property records and poor goals related to climate change, crisis manage- infrastructure on the ground, India has benefitted ment and humanitarian aid. The value of satellite greatly from the use of earth observation satel- services is particularly high to developing coun- lites for environmental and resource mapping. tries, due to their relatively poor ground infra- The wide availability of skilled engineers at low structure. Satellite observation has also become cost makes India highly competitive in some seg- an important way of viewing military conflicts and ments of the space sector. India in recent years natural disasters from above, allowing more pre- has established itself as a competitive commercial cise deployments of humanitarian assistance. Sus- provider of satellite launch services. Norway’s tainable development efforts, meanwhile, have AISSat-1 satellite was launched from India in 2010. gained from satellite monitoring of phenomena Elsewhere in the world, more and more such as deforestation, desertification and environ- nations have ambitions of building their own capa- mental factors that affect the spread of disease- bilities in space. Iran and North Korea are already carrying insects. The UN agency UNOSAT works able to loft satellites using their own launch vehi- to acquire satellite data and make it available for cles. Japan, South Korea, Brazil, Argentina, Israel, use in disaster management as well as environ- Canada and Taiwan all have significant national mental and development policy-making. space programmes. France and Germany, for 18 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Figure 2.3 International Space Station Photo: NASA

The other main group of global space players, ited prospects for receiving income from users. apart from the states, is the business community. Publicly funded satellites are important not least Space-related businesses are generally divided for the opportunity they represent to provide into two categories: upstream and downstream. «flight heritage» for new technologies. Because of Upstream industry manufactures satellites and the risk that equipment sent aloft may perform launch vehicles. Most companies in this part of unsatisfactorily, few commercial satellite owners the space industry are set up as a strategic matter, are willing to deploy technology that has not with financial returns normally limited in scale. already proved itself in space. Even for communi- Major technological challenges, low production cations satellites, where there is more of a com- volume and extremely stringent quality assurance mercial market, public development programmes needs combine to drive up costs relative to earn- play a key role in the testing of new systems. ings potential. For reasons of strategy, technology Major players in the global upstream industry and investment, upstream space actors are often include Lockheed Martin, Boeing, OHB, Astrium closely tied to the aerospace and defence sectors. and Thales. Since the end of the Cold War, trans- Such ties make it possible to benefit indirectly national mergers and acquisitions have played a from space-related technological advances, major role in the industry’s evolution, particularly through spillover into related sectors; technologi- in Europe. cal spillover is in fact one reason companies Downstream industry provides equipment and engage in the upstream space industry. Public services that require satellite data and signals. procurement and development support budgets Examples of such products include satellite navi- are the main source of upstream funding. This gation receivers, satellite-based telecommunica- reliance on the public sector is partly due to the tions services and information services based on substantial risks and small margins involved, and satellite images. The structure of the downstream partly to the fact that many satellite types, includ- industry is completely different from that of the ing those for navigation and earth observation, upstream industry, with many start-up companies can best be understood as public assets, with lim- and small and medium-sized businesses in addi- 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 19 Between heaven and earth: Norwegian space policy for business and public benefit tion to larger players. Development costs relative technical, end-user and commercial opportunities. to earnings potential are similar to those found in Often, the only way for a company to gain such «normal» high-tech businesses – and far from the insight is to take part in major satellite infrastruc- peculiar conditions prevailing in the upstream ture projects. Downstream players, therefore, are industry. Downstream activities have benefitted not just passive users of technology developed greatly from developments in modern information upstream; they are active participants in the devel- technology, with expanding opportunities for data opment of new satellite infrastructure. A key rea- processing applications, Internet-based communi- son for the establishment of Galileo and Coperni- cations and mobile telecommunications equip- cus, the EU’s major space programmes, was a ment. Although downstream and upstream activi- desire to position Europe’s downstream industry ties are completely different, the two segments of in the competitive international market for satel- the space sector are closely linked. One key factor lite-based products and services. for downstream success is a clear understanding To understand what is driving the changes we of how satellite systems work, so as to foresee see in global space activity, it’s helpful to examine

Box 2.3 Dynamic positioning

Figure 2.4 Dynamic positioning Photo: Kongsberg Maritime

Dynamic positioning is a technology employed cally positioned vessels include offshore petro- to keep vessels and floating offshore installa- leum, ocean shipping and cruise travel. Diving tions in fixed position above the seabed without boats, shuttle tankers, supply vessels, cable-lay- the use of anchors, and to manoeuvre them with ing ships, pipe-laying ships, rock dumpers, precision during transport. To determine cor- crane vessels, drilling rigs and drillships all rect positioning, the technology relies on naviga- make extensive use of the technology. Norway tional satellites. Industries that require dynami- is a leader in dynamic positioning. 20 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit what motivates countries and organisations to of space has not diminished; more likely, it has invest in it. Apart from the objectives of pure basic grown. Space-based infrastructure today affects research, which remain important for Norway vital civilian and military activities. Critical aspects and many other countries, the rationales may be of civil preparedness such as emergency commu- grouped roughly in three dimensions: economic nications, sea-rescue capability and disaster man- value creation, independent strategic capability agement depend on satellites for communication, and sustainability. navigation and surveillance. The same can be said Value creation has been a factor in space activ- for modern network-based military operations. ity from the very beginning, in the 1950s and Countries and organisations as diverse as the EU, 1960s. The Apollo programme ushered into exist- the United States, Russia and China feel com- ence a space sector of comprehensive scale, pelled for strategic reasons to invest heavily in the which in turn lifted the technological level of the development and control of their own space infra- entire US economy – a boost with long-lasting structure. Such control is deemed important to effects. In the maritime and media industries, to shoring up their security and independence. take two examples, satellite communications have Sustainability is a more recent consideration, contributed to value creation since the 1970s. In but in recent years it has become an increasingly the past two decades, though, the effect of space important rationale for public investment in space activities has changed. Instead of being important activities. That’s because observation satellites to only a few distinct sectors, what goes on in have proved very effective in measuring phenom- space now has implications for all parts of the ena that affect our climate, such as greenhouse economy, an influence so extensive that it is diffi- gas emissions, deforestation, forest degradation, cult to imagine how today’s globalised economy ocean currents, melting ice, wind systems and could function without it. Value creation occurs cloud cover. By monitoring the flow of industrial well outside the traditional production of satel- pollution or spilled oil, for example, these satel- lites, launch vehicles and ground infrastructure. It lites help us to understand and mitigate its effects. occurs on an even larger scale through the sale of Satellite-based communications and navigation satellite-related products and services, through are essential to the prevention of accidents and spillover into other technologies and through the spills associated with shipping and offshore oil stimulation of economic activity in such fields as and gas activities. In arid regions, precision farm- transport and natural resources. Space activities ing techniques based on data from navigation sat- add a great deal of value to businesses involved in ellites help reduce water consumption. The use of oil and gas exploration, transport, agriculture and satellite data in development policy is widespread road and rail tunnelling. As the economic impact and growing, as seen in UN-directed projects. Sev- of space activities has widened, value creation has eral major international initiatives, such as the become a stronger and more explicit rationale for EU’s Copernicus earth observation programme, public investment in the sector everywhere in the are primarily motivated by the need for informa- world. tion to support sustainable development policies. Independent strategic capability was the origi- The influence of space operations on modern nal rationale for space operations. From the 1950s society is intricate, with ramifications in fields that onwards, it was the primary reason for the big are not always obvious. Comprehensive policies space programmes of countries like the United are therefore warranted. To get the most out of States, the Soviet Union and France. During the our space activities, we must coordinate policies Cold War, space programmes were tools for devel- and skill sets that are not always perceived as oping missile technology, gathering intelligence clearly linked. These include technology, value and demonstrating technological strength to rival creation, security, communications, transport, powers. Although the geopolitical situation has international relations and the environment. changed a lot since then, the strategic importance 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 21 Between heaven and earth: Norwegian space policy for business and public benefit

3 Development of space activities in Norway

Norwegian space policy has always been pragmat- development support programme Nasjonale følge- ically oriented. Public investment in space-related midler. activities has never been an end in itself, but a tool More detail on Norway’s international collabo- for meeting important national priorities in other ration, national policy support instruments and policy fields. The requirement of tangible social national infrastructure will be presented in Chap- benefit, which today has become a part of space ter 5, 6, 7 and 8. In this chapter, we examine the policy everywhere in the world, has always been a political priorities that have fuelled Norway’s rise prerequisite for space activities in Norway. in space. These priorities can be grouped roughly Most Norwegian space activities have been into three categories: Norway’s need for space- motivated by geographic factors. Norway is an based services, the development of its high-tech elongated country, reaching far to the north, with economy and the strengthening of its research a sea area more than six times larger than its land capabilities. area. We have a scattered population, rugged topography, long distances to cover and harsh cli- matic conditions. In addition, Norway’s economy 3.1 Norway’s space-based service includes heavy elements of natural-resource needs extraction and maritime transport. The applied use of navigation, communication and earth The desire to meet national user needs, both pub- observation satellites has been emphasised in lic and private, has been an important motivation addressing needs related to ship traffic, fisheries, behind Norwegian space efforts for as long as agriculture, offshore petroleum and the public they have existed. Since the 1960s, Norwegian supervision of maritime activities. Another impor- authorities have been willing to invest strategi- tant objective for space investment has been to cally to obtain space-based infrastructure, with the stimulate growth and innovation in Norway’s goal of meeting national user needs cost-effec- high-tech economy. tively. Most Norwegian efforts have stemmed As a small country, we have had limited ability from challenges relating to the country’s business to invest in space activities on our own. Interna- interests and geography. Maritime communica- tional cooperation has always been the mainstay tions and ocean monitoring fit that description, as of Norwegian efforts in space, first through ESA do other challenges more specific to the High and later, to an increasing degree, in agreements North. with the EU. The cost of shared satellite systems The first major challenge that prompted Nor- is usually divided in accordance with the size of way to check out satellite-based technology was each participating country’s economy. A country’s communications – specifically, the need to com- cost share does not necessarily reflect the extent municate with Norwegian ships, the Svalbard of its use of a particular system. A small country, archipelago and oil platforms in the North Sea. therefore, gets off with a relatively low portion of Prior to satellites, high-frequency radio (HF) was costs, while gaining access to the infrastructure the best technology for that purpose, but its utility on par with countries that pay a great deal. Nor- was limited by variable signal coverage and capac- way may be seen as potentially receiving an extra ity constraints. In the late 1960s, Norwegian large return on its investments in space infrastruc- authorities began studying various ways to estab- ture. Norwegian infrastructure positioned in Sval- lish national satellite communications capacity. bard, on Jan Mayen Island and in Antarctica has This result, in 1976, was that Norway became the made N orway an attractive space partner. To first country in western Europe to have a national take advantage of the international collaboration, satellite system, in the form of the NORSAT A sat- supplementary national measures have been insti- ellite system. It was based on the rental of satellite tuted, the foremost example being the national channel capacity through the International Tele- 22 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Figure 3.1 Norway’s maritime boundaries Source: Norwegian Mapping Authority communications Satellite Organisation (INTEL- In the 1970s, Norwegian authorities assumed an SAT), and accommodated communications with active role in the International Maritime Organisa- Svalbard and with offshore oil platforms. Ship tion (IMO) and in the collaborative European pro- communications remained an unsolved problem. ject MAROTS, whose aim was to create a global 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 23 Between heaven and earth: Norwegian space policy for business and public benefit

Box 3.1 Radar satellites and Radarsat Radar satellites transmit microwaves and measure what is reflected back from the ground or sea. These signals pass right through cloud cover, and measurements can be made day or night. Radar satellites are thus an important tool for monitoring sea ice, oil spills, ship traffic and landslide danger. Due to their high power consumption, the satellites cannot operate continuously. Norwegian par- ticipation in international radar satellite pro- jects helps ensure that high-priority areas for Norway are scanned. ESA’s planned radar sat- ellites Sentinel-1A (2013) and Sentinel-1B (2015) will permit additional surveillance of Norwegian maritime areas. Norway’s 2002 Radarsat agreement with Canada gives Norway the right to order about 2,000 images per year from Canada’s Radarsat- 2 satellite. The agreement follows up on a pre- vious partnership between the two countries dating back to Radarsat-1, which was launched in 1995, and also gives Norway access to radar images over Norwegian areas that other coun- tries or organisations order. The PwC evalua- tion of 2012 (see 3.3) attests to the agree- ment’s benefits and cost-effectiveness for Nor- way. The current Radarsat agreement secures Figure 3.2 ESA satellite CryoSat measures the data access through 2014. topography of the Arctic ice The need for additional Norwegian access Illustration: ESA to other kinds of radar satellite is under study. One alternative is for Norwegian agencies, maritime satellite communications system. This acting independently, to buy high-resolution effort led to the 1979 establishment of the Interna- data as required in the «spot market». Experi- tional Maritime Satellite Organisation (INMAR- ence from the Radarsat agreement suggests SAT), which operated a satellite system of the that collective access through the Norwegian same name. Norway’s active involvement gave it Space Centre may hold advantages. influence over INMARSAT’s system design, per- formance specifications and coverage areas, and led indirectly to the emergence of a competitive land-based installations. Early on, it became clear satellite communications industry in Norway in that observation satellites would be a cost-effec- the 1970s and 1980s. Given strong industry and tive aid in enforcing Norwegian sovereignty at user interests, satellite communications have sea. The need to monitor maritime areas has been remained an important priority for Norwegian a major factor in many of the key decisions and industry and the Norwegian authorities, as policy measures that have helped shape the Nor- demonstrated by heavy Norwegian participation wegian approach to space. The chance to gain in ESA development programmes in this area. expertise and exert influence over the develop- Maritime monitoring has for many years been ment of earth observation technology was a signif- another important priority for Norwegian space icant incentive for Norway to join ESA in 1987. activity. Norway’s management responsibilities Norway began to employ observation satel- extend across vast ocean areas that are difficult to lites for operational monitoring of Norwegian monitor satisfactorily by way of aircraft, ships or waters in the mid-1990s. The need for improved 24 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Box 3.2 AISSat-1

Figure 3.3 AISSat-1 Photo: Norwegian Space Centre/Norwegian Defence Research Establishment/Seatex

The small maritime observation satellite AISSat-1 monitor maritime activity, locate ships in need of is the first satellite owned and operated by the assistance and identify vessels in the vicinity that Norwegian state. The Norwegian Coastal Admin- may be able to help. Satellite-based AIS services istration uses data from the satellite to track civil- also make it easier to identify vessels responsi- ian ship traffic in waters off Norway and Svalbard ble for oil spills in Norwegian waters. left uncovered by the country’s land-based Auto- AISSat-1 is a nano-satellite measuring 20 cm matic Identification System (AIS) stations. x 20 cm x 20 cm. It moves in a polar orbit about All large vessels are required to have an AIS 600 km above the earth’s surface, bearing a transmitter on board that broadcasts information long-range identification and tracking system. It about their identity, destination and cargo. Along passes over the waters off Norway and receives the Norwegian coast there is a chain of AIS sta- AIS data from ship traffic every 90 minutes. The tions, but they cannot track ships travelling lifespan of such satellites is estimated at two or beyond 40–60 nautical miles from shore. AIS three years. The satellite was launched from ship signals now travel via Norway’s AISSat-1 India in 2010 and represents a joint effort of the satellite to the Vessel Traffic Service monitoring Norwegian Coastal Administration, the Norwe- centre at Vardø, in northern Norway, and to the gian Space Centre, the Norwegian Defence country’s rescue coordination centres. AIS infor- Research Establishment and Kongsberg Seatex. mation obtained by satellite makes it easier and Its successor, AISSat-2, is to be launched in faster for the vessel-traffic and rescue centres to 2013. coverage area led to long-term bilateral collabora- Developments since then have shown earth tion with Canada on the use of Canadian radar sat- observation satellites to be increasingly indispen- ellites. sible as tools for monitoring Norwegian maritime areas. Satellites provide an overview of large 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 25 Between heaven and earth: Norwegian space policy for business and public benefit areas, enabling officials to direct more costly mon- itoring resources, such as aircraft and ships, to Box 3.3 COSPAS-SARSAT areas where closer scrutiny is required. Norway has regularly mounted new initiatives to maintain COSPAS-SARSAT is a collaborative interna- and enhance the national capacity for ocean moni- tional search-and-rescue system. Using satel- toring, especially related to vessel traffic and oil lites in polar orbit, it relays distress beacon spills. The Norwegian vessel-monitoring satellite signals to ground stations. The system is thus AISSat-1 was lofted into orbit in 2010. Primarily able to pinpoint the site of emergencies tran- monitoring areas where Norway has stewardship spiring in the northern seas. responsibility, it has also become an important resource in international collaboration, including the fight against piracy off the Horn of Africa. A major goal of Norwegian participation in the EU’s Box 3.4 EUMETSAT Copernicus earth observation programme has EUMETSAT is the European Organisation for been the need to secure future ocean-monitoring the Exploitation of Meteorological Satellites. capacity over Norwegian areas. The organisation’s main goal is to provide Norway’s investment in satellite navigation is information applicable to weather forecasting another example of how national user needs have and climate research. ESA and EUMETSAT driven the development of Norwegian space activ- have established a partnership in which ESA ity. A major goal has been to address needs associ- develops new-generation satellites and ated with maritime activity and the offshore oil EUMETSAT prepares the way for their opera- and gas industry, but challenges in aviation and tional use. Norway is a member of EUMET- land-based operations have also been motivating SAT, and Norwegian agencies and research factors. Norway’s decision to join the EU satellite institutions are among the end-users of the navigation programmes Galileo and EGNOS in information provided. Norwegian companies 2009 may be the clearest example of national navi- have supplied technology for many of the sat- gation needs helping to shape Norwegian space ellites in EUMETSAT’s fleet. policy. The desire to satisfy such user needs, espe- cially relating to maritime navigation in the High North, was a key motivation. However, Norwegian involvement in satellite especially after tragic aircraft accidents at navigation extends quite a bit further back in Torghatten (1988) and Namsos (1993). Avinor is time. A cornerstone of Norwegian expertise in now in the process of introducing the world’s first this area was laid in the early 1990s. A NATO satellite-based airport approach system (SCAT-1), exchange agreement made it possible for which is to ensure safer approaches to Norway’s researchers from the Norwegian Defence regional airports. The system is based in part on Research Establishment (known best by its Nor- the Norwegian-developed technology. wegian acronym, FFI) to work in the GPS Joint With regard to land-based tasks, the Norwe- Program Office, which was responsible for devel- gian Mapping Authority has long been engaged in oping the American GPS satellite navigation sys- developing satellite-based services for geographi- tem. The technology skills and system insight cal surveys. These efforts have led to simplifica- these researchers brought home with them tion and cost savings in mapping and surveying allowed Norwegian engineering experts to for construction, property delineation and other address special navigational challenges. In Nor- tasks that require accuracy down to the decime- way’s offshore oil and gas industry, the expertise tre, centimetre and millimetre. In order to provide was used to develop GPS-based technology for such precision, the mapping authority operates a precision navigating, positioning and localisation network of reference stations across the country. during operations like seismic surveying and test Straightforward satellite communications, drilling. Lower costs, greater accuracy and simpli- ocean monitoring and satellite navigation are not fied procedures were the result. the only space policy areas where user interests Avinor, which operates Norway’s airports, was have helped determine the way forward. The quick to develop GPS-based airport flight objective of improving search-and-rescue opera- approach procedures. This early adoption of GPS tions at sea gave rise to one of the first interna- technology stemmed from a recognition that Nor- tional projects that Norway joined: the satellite- wegian navigation procedures needed improving, based emergency warning system COSPAS-SAR- 26 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

SAT (see Box 3.3). Weather forecasting is another also traditional in development projects executed field in which national user needs have been cru- internally by ESA. Member states are thus quite cial to the shaping of Norwegian space policy. able to use their membership to boost their own Since 1986, Norway has been a member of industries. Norway’s ESA priorities have been EUMETSAT, the joint European programme for guided in part by its ambition to develop technol- weather and climate satellites, and the country ogy relevant to Norwegian user needs and in part has long participated in a wide variety of ESA by its growth and development goals for Norwe- weather satellite programmes. gian industry. Norwegian ESA participation has been especially strong in technology areas where we have large business interests, such as satellite 3.2 Development of high-tech communications. Norway has deliberately used Norwegian industry its Nasjonale følgemidler support programme to enhance the positive effects of ESA membership Business development considerations have long on Norway’s business community. played a major role in Norwegian space activity. ESA’s value as a tool for Norwegian technolog- Business development has occurred partly as a ical advance has been largely twofold. First, par- by-product of measures implemented chiefly to ticipation has helped raise the technological level find solutions to Norwegian user needs, but also a of Norwegian companies that provide goods and result of conscious efforts by the Norwegian services to ESA development programmes. This authorities to use space activities to help develop has been possible through direct ESA funding of the country’s industrial sector. Since 1970, Nor- development projects, and through the transfer of way has created a niche-oriented, but competitive, technology to Norwegian companies from their array of space-oriented businesses. In some fields, ESA programme partners. Second, the provision the country is a global leader. Sales of Norwegian- of supplies to ESA test satellites has made i t pos- produced goods and services related to space sible to test out new technological components. totalled about NOK 6 billion in 2011, with an Flight heritage, documenting that a company’s export share of almost 70 per cent. technology has already served aboard a satellite, The most prominent policy instruments in the is normally a prerequisite for the company becom- development of space-related industry in Norway ing a candidate to provide operational satellite have been the country’s participation in ESA, its components in the institutional or commercial participation in the EU’s Galileo and Copernicus markets. However, much of the benefit that Nor- space programmes, and the national technology wegian companies gain from ESA participation is support programme (Nasjonale følgemidler). A a matter of technological spillover – the repurpos- detailed account of how these contributing activi- ing of space-related technologies for use in other ties are organised will follow in Chapters 5, 6, 7 sectors. There are few companies in Norway that and 8. The theme of this chapter is how business operate exclusively in the space sector. Interna- development objectives have helped shape Nor- tional competition in the sector is formidable, and wegian space policy. There are three main mecha- the markets to which Norway has access (primar- nisms through which Norwegian investment in ily ESA, the EU and the commercial satellite seg- space has helped to promote growth and develop- ment) are relatively limited. Many companies, ment in Norwegian industry. These can be desig- though, combine their space-related activities nated as technological advancement, market with other high-tech business pursuits. Most of access, and system insight. For 30 years, the these companies use their participation in ESA desire to exploit those mechanisms to promote programmes as a means to develop technology business development has been behind many of that can also be applied elsewhere in their opera- the key strategic actions of the Norwegian space tions. The spillover effect from space activity is effort. most notable in the realm of advanced technolo- The goal of technological advancement in Nor- gies suitable for extreme conditions. Likely bene- wegian industry was a key motivation for Nor- ficiaries include the defence, aerospace, offshore way’s accession to ESA in 1987. ESA is an indus- petroleum and maritime industries. try-oriented organisation in which technological Market access has been a considerable moti- development is carried out in close collaboration vational factor for Norwegian participation in the with industry. Most development tasks are con- EU space programmes Galileo, EGNOS and tracted out to suppliers based within the member Copernicus. EU space programme supply con- states. A high degree of industry involvement is 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 27 Between heaven and earth: Norwegian space policy for business and public benefit

Box 3.5 Technology spillover Box 3.6 Norwegian satellite Products and product improvements that communications industry build on technology or expertise from ESA Norwegian companies involved in satellite contracts and from Norway’s own national communications had sales of NOK 4.2 billion development support (Nasjonale følgemidler) in 2011, accounting for two thirds of space- contracts: related revenue in Norway. By far the largest – Receiver for AIS vessel detection (Kongs- portion consisted of communications services berg Seatex) to the maritime sector, and to the broadcasting – Gas detector for measuring explosive gas at of television signals. Maritime communica- oil installations (SINTEF GasSecure) tions service providers have proven to be very – Calibration-free pressure sensor for extreme attractive as acquisition candidates, and most environments (Presens) of them are now foreign owned. – Technology for radiation detection (Ideas) – Technology for efficient transfer of images and video (Ansur) business representatives have acquired a solid – Software for large, complex development understanding of Galileo, EGNOS and Copernicus projects (Jotne) through participation in the governing bodies and – Data processing for ground stations (Kongs- working groups of these programmes. Gaining berg Spacetec) insight into those systems has been regarded as – Methodology for software validation (DNV) an important factor in Norway’s competitive – Synergy effects between space and defence strength as a supplier of products and services sectors (Kongsberg Gruppen and Nammo) that exploit satellite navigation and earth observa- tion data. For that reason, it has been a major objective of Norwegian space policy. Norwegian tracts have been reserved for bidders from coun- companies have also gained insight into ESA tries participating in the programmes. Through space systems. ESA activities are relevant primar- Norway’s programme participation, Norwegian ily to upstream companies. That agency’s focus is companies have been granted the same opportu- on developing new technologies for satellites and nity to compete for contracts as EU-based compa- launch vehicles; less attention is paid to building nies. Norwegian actors have proven themselves and operating infrastructure systems that may be competitive, obtaining EU space-programme con- favourable to value creation downstream. None- tracts valued at some 130 million euros through theless, Norwegian companies active mostly in February 2013. In addition to direct sales income, the downstream sector report that they, too, bene- those contracts represent high-profile reference fit from participation in ESA programmes, by gain- projects for the companies concerned. Naturally, ing insight into the technology that will underpin Norway’s ESA participation has also opened up a the next generation of operational satellite tech- market for Norwegian businesses. But the aggre- nology. gate direct value of ESA supply contracts is rela- Norway’s purposeful efforts to develop space- tively low in relation to ESA’s value as a tool for based industry by participating in EU space pro- technology development, partly because the vol- grammes and in ESA have been complemented by ume of any single product purchased by ESA is measures designed in the first instance to accom- normally rather limited. modate national user needs. That applies espe- System insight has been a motivating factor for cially to business activities in the downstream sec- Norway with particular regard to the EU space tor, such as satellite communications and special- programmes, though ESA participation has led to ised satellite navigation services, where early a certain degree of system insight as well. Insight involvement has paved the way for system insight, – as early as possible – into the technical, practical technology development and early testing of and commercial aspects of a satellite-based infra- space-based services. Today, Norwegian suppliers structure system is a key to succeeding as a pro- are global leaders in services related to satellite vider of products and services that exploit that communications and satellite navigation for the system. Such insight can normally be achieved offshore sector. The Norwegian satellite commu- only through active participation in the develop- nications industry grew in large part out of exper- ment of the system. Norwegian authorities and tise built up in the 1970s in connection with efforts 28 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Box 3.7 Norwegian space players

Finnmark Vardø trafikksentral/Kystverket Globus 2 Troms Dualog Globesar Kongsberg Satellite Services Kongsberg Spacetec Norsk Polarinstitutt Norut Senter for fjernmåling Telespor AS Universitetet i Tromsø Værvarslinga for Nord-Norge Svalbard Akershus AnsuR EISCAT Svalbard Nordland Astrium Services Ny Ålesund Andøya Rakettskytefelt AV Satcom forskningslandsby Hovedredningssentralen Nord-Norge Canal Digital SvalSat Høgskolen i Narvik Oppland Det Norske Veritas UNIS NAROM Nammo Raufoss EIDEL Forsvarets forskningsinstitutt Antarktis Sør-Trøndelag Buskerud Ideas TrollSat CIRiS NTNU HTS Maskinteknikk Kongsberg Defence Communications Samfunnsforskning Høgskolen i Buskerud Norsk institutt for luftforskning findmysheep.com Jotron avd.Satcom Norsk institutt for skog og landskap Kongsberg Seatex Kongsberg Defence & Aerospace Nittedal Teleport (Astrium Services) MARINTEK SINTEF Norsk Titanium Components STM Norway NTNU Statens Kartverk Telenor Satellite Broadcasting Møre og Romsdal SINTEF T&G Elektro Ship Equip Vestfold Universitetet for miljø- og biovitenskap Høgskolen i Ålesund Jotron VeriSat

Hordaland Kongsberg Norspace Oslo Kongsberg Norcontrol IT CMR Prototech Conax EUROCOM Memscap Fugro Seastar Havforskningsinstituttet OSI Optoeletronics Indra Navia Nansensenteret NERSC Sensonor Telenor Maritim Radio Jotne EPM Meteorologisk institutt Universitetet i Bergen Telemark Norsk Regnesentral Bandak Group Norges vassdrags- og energidirektorat Rogaland Aust-Agder Norsk institutt for vannforskning Presens Eik jordstasjon MCP (Astrium Services) Science [&] Technology UNEP/GRID Arendal SINTEF Oslo Mars Institute Stavanger Post- og teletilsynet Prekubator TTO Universitetet i Oslo

Figure 3.4 Geographical overview of Norwegian businesses engaged in space Source: Norwegian Space Centre

Norwegian actors in space include a wide vari- They are spread throughout the country and ety of companies, scientific research institutes, their range of activities is quite large – from mar- public agencies and educational institutions, of itime satellite communications and rocket which a selection is presented here. They either engine production to managing fish resources supply products and services related to space- and tracking sheep. based activity or are active users of satellite data. to provide satellite communications for Norwe- sector, is a prime example of how investments gian ships. Development of high-precision naviga- motivated by national user needs have sparked tion services for the Norwegian offshore petro- commercial success. In the 1980s, Norway’s chal- leum industry gave rise to the emergence of com- lenging topography, large expanse and sparse set- petitive Norwegian technology companies – one tlement pattern made it difficult and expensive to example being Fugro Seastar, which today is the develop a nationwide terrestrial network for televi- leading supplier of high-precision navigation ser- sion broadcasting. So Televerket, the state-owned vices to the offshore industry. Telenor Satellite forerunner of today’s Telenor, pursued the devel- Broadcasting, which by revenue is clearly the opment of satellite broadcasting – a business that largest Norwegian business player in the space has since become a major commercial success. 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 29 Between heaven and earth: Norwegian space policy for business and public benefit

Since 1992, Televerket and then Telenor Satellite Broadcasting have acquired altogether six com- Box 3.8 PwC’s assessment of munications satellites. The company sells satellite strengths in the Norwegian space capacity for broadcasting and for broadband ser- activities it examined vice to shipping and offshore operations, and is currently the sixth largest satellite operator in – Important aspects of the model for public Europe. support to the sector work as intended. These public policy instruments reinforce positive developments that contribute to the achievement of goals on wealth crea- 3.3 PwC’s evaluation of some tion, innovation, knowledge development, Norwegian space activities environmental protection and public Under assignment with the Ministry of Trade and security. Industry, the consulting firm Pricewaterhouse- – Norwegian industry has large market sha- Coopers (PwC) in 2012 conducted an evaluation of res in segments of the space-based service Norway’s participation in the European Space sector, particularly in connection with satel- Agency (ESA), the Radarsat agreement and Nor- lite communications and earth observa- way’s own national funding support programme, tion. Certain companies that produce Nasjonale følgemidler. The evaluation did not space-related technical equipment have cover scientific activities or Norway’s participa- also seen revenues and market share grow, tion in Galileo and EGNOS. As a result, the evalua- albeit to a lesser extent than the service tion does not provide a complete picture, but con- sector. tributes helpfully to further space policy develop- – Space activities create positive ripple effe- ment. The review process was anchored in a refer- cts across Norwegian industry. Positive ence group with input from relevant ministries, synergies exist between the country’s agencies and industrial players, and it was con- various support mechanisms. The propor- ducted in dialogue with the Norwegian Space tion of national space industry that is devo- Centre. ted to commercial activity is greater in Nor- The report describes Norwegian space activi- way than in many other countries. ties and the international framework in which – Norwegian space efforts have resulted in they occur. It notes that important aspects of Nor- cost-effective systems that meet user needs wegian space policy are working well, providing in the public sector. The development of significant benefits to society; but the report also space-based systems for maritime surveil- casts light on structural factors that may make lance, such as the AIS satellite, has been a policy adjustments necessary. It also makes sev- particular success. eral specific suggestions for the future design of – The Norwegian Space Centre’s expert Norway’s policy apparatus. A complete and thor- advisory services and leadership are ough review of PwC’s comments and proposals is highly regarded by the authorities and by not possible in this white paper. We do present industry alike. PwC’s assessment of the strengths and weak- nesses it found in various segments of the space sector, along with its strategic and operational rec- achieved towards the objectives of value creation, ommendations. Those recommendations form innovation, knowledge development, environmen- some of the basis for the analyses presented in tal protection and public security. Chapter 1 of this white paper. Recommendations Norway’s space industry is more commercial not included in Chapter 1 are not a part of the in nature than its counterparts in many other Government’s policy. countries. It has large market share in segments The PwC evaluation focuses on Norway’s par- of the space-based services sector, particularly ticipation in ESA as well as the country’s national those related to satellite communications and development support funding programme and the earth observation. Several companies in this sec- Radarsat agreement with Canada. The main con- tor have experienced rapid growth in recent years. clusion is that Norway has benefitted greatly from Certain companies that produce space-related all three. The report asserts that key aspects of technological equipment have also seen growing the model for public support to the sector are revenues and market share, albeit to a lesser working as designed, and that progress is being extent than companies in the service sector. 30 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Box 3.9 PwC’s assessment of Box 3.10 PwC’s strategic weaknesses and challenges in the recommendations Norwegian space activities it 1. Support should be reoriented towards market examined segments with significant growth potential – Indicators are declining for Norwegian and comparative advantages. space-related industry as a whole. Total 2. Earth observation data services have large sales volume has not increased in recent public-sector customers that can trigger years and the global market share for Nor- further technology development and wegian companies is falling. demand for services. A commercialisation – Space-related companies are being bought strategy for government procurement of up and incorporated into foreign-owned earth observation data services should be concerns. In some cases this has led to ope- considered. A strong domestic market rations being moved out of Norway. could fuel growth in new value-added seg- – Internationally, the sector is increasingly ments. dominated by commercialisation and the 3. Support for space-related business develop- emergence of new service segments. Nor- ment should increase in scope across the way’s set of policy instruments is somewhat value chain and reach a larger number out of alignment with this development. companies in order to ensure a level play- – Support mechanisms for industry are lar- ing field among competing actors and gely directed towards the production of solutions. Recruitment of new businesses space-related technology, while much of in IT and telecommunications may help to the international growth potential lies in increase the number of participants. service development. 4. Further support to segments whose – Structural changes in international space growth is stagnating should be carefully programmes, including the EU’s enhanced weighed to maker sure support corre- role and increased activity by countries sponds to the potential for value creation such as China, India and Brazil, pose a chal- and growth. Companies offering space- lenge to Norway’s position. related ground equipment have anchor customers in the maritime sector but limi- ted growth and market share. Certain upstream sub-segments have achieved The report also documents positive spinoff strong results. However, there are strong effects elsewhere in the economy, as well as posi- obstacles to upstream industry growth, and tive synergism between the country’s various sup- no national anchor customers. port mechanisms. Participation in ESA strength- 5. Other tools to encourage service expansion ens Norwegian industry in general, with ripple must be developed, a process that may effects in the form of increased sales for compa- involve national or bilateral programmes. In nies that have participated in ESA programmes. PwC’s view, ESA programmes are less use- The report suggests there is positive interaction ful for service development. National pro- between support mechanisms – between, for grammes may have to be expanded to example, the national development support funds develop support mechanisms for the for industrial development (Nasjonale følgemidler) commercialisation of near-market-ready and ESA programme participation. downstream technologies. Likewise, the national development support funds in combination with initiatives like Radarsat and the AIS satellite development programme have resulted in cost-effective systems that meet Space Centre’s expert advisory services and lead- space-related needs in the public sector. The ership are held in high regard by both the author- development of space-based systems for maritime ities and private industry. The NSC is also said to monitoring, such as the AIS satellite, is cited as a contribute to positive synergy among Norway’s particular success. The PwC report also points different support mechanisms. out promising projects associated with space- On the other hand, the evaluation mentions a based systems for surveillance of land areas. Last number of overall weaknesses, challenges and but not least, the report says that the Norwegian ongoing change processes that, according to 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 31 Between heaven and earth: Norwegian space policy for business and public benefit

PwC, might make it necessary to adjust the public try has experienced a prolonged period of consoli- policy apparatus that supports Norwegian space dation, with space-related companies being activity. The report cites declining indicators for bought up and incorporated into larger concerns. the industry as a whole in Norway. Overall, public Some of these concerns have foreign owners, expenditures on space-related activities are rising leading in some cases to the movement of opera- faster than commercial sales. Even though some tions out of Norway. Industry support pro- companies and segments are growing, the space grammes are largely geared towards the produc- sector’s share of Norwegian GDP is falling. Total tion of space-related technology, while much of sales volume has not grown in recent years, and the international growth potential lies in service the global market share of Norwegian companies development. is sinking. Ground equipment manufacturers in The report also cites challenges stemming particular have lost a great deal of sales volume from major structural changes in international and market share. space activities. Political processes in the EU and Furthermore, few new companies have arisen the United States will affect access to decision- in the past decade, and among the companies that making arenas in Europe and market access for have received support, there has been no growth Norwegian enterprises. The EU’s strengthened in space-related employment. The report asserts role is highlighted as a possible challenge for Nor- that public funding has long been concentrated in way, especially in view of an accelerating EU-ESA a small number of actors – in particular, upstream convergence. Intensified activity in space by coun- companies that produce ground equipment and tries such as China, India and Brazil signals geo- equipment for use in space. Meanwhile, the indus- political changes underway. Internationally, the

Box 3.11 PwC’s operational recommendations 1. The Ministry of Trade and Industry should 5. The Ministry of Trade and Industry and the develop a comprehensive policy on space- Norwegian Space Centre should revise their related activities that assigns relative weights hierarchy of goals and priorities and link it to industrial development, public-sector pro- more closely to governance dialogue and grammes and scientific research. organisational strategy. The system of mana- 2. Increased investment in national program- gement by objectives and results should be mes should be conditioned on broader econ- simplified, clarified and made relevant to the omic options analyses, along with normal Norwegian Space Centre’s strategic plan. assessments of life-cycle cost and market 6. Transparency with regard to support sche- options. mes and awards within the ESA framework 3. Bilateral agreements and industrial return can be improved. The information is not schemes should be subject to a greater publicly available at present, which is a pro- degree of evaluation, pitting the benefits to blem, given that so few companies are invol- particular companies against the state’s ved. costs. The processes should be open, with 7. The Ministry of Trade and Industry should competition conforming to normal practice. consider a reorganisation of corporate gover- 4. Clearer separation is needed between space nance at KSAT to reduce the potential for programme development support and the conflict of interest. acquisition of specific services from public 8. The Ministry of Trade and Industry should bodies, such as Radarsat and AIS. Such sepa- consider strengthening capacity and support ration will help to clarify objectives, priorities for changing ESA’s budget process and and costs. An expanding marketplace, IPSAS accounting principles. meanwhile, is able to meet the state’s operati- 9. If a further scale-up of national programmes onal requirements for data, and market opti- is desired, the Norwegian Space Centre ons should be reviewed with regard to furt- ought to be strengthened. her investment in AIS. Procurements and 10. If the EU and ESA roles converge further, the support schemes should also be reviewed to Norwegian Space Centre ought to be strengt- make sure they accord with legal and regula- hened. tory codes. 32 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit market is increasingly characterised by commer- Although national user needs and business cialisation and the emergence of new service sec- development goals have been the main factors tors. This poses challenges to the commercialisa- driving Norwegian public investment in space, sci- tion strategies of Norwegian companies. Accord- entific research has influenced Norwegian space ing to PwC, the Norwegian public support appara- activity as well. For many years, Norway has par- tus for space activity is somewhat out of step with ticipated in international space-related research such developments. through ESA and EU framework programmes. In According to PwC, there is also room for addition, bilateral and multilateral agreements improvement with regard to public-sector govern- have been signed with a number of countries, ance issues. The Ministry of Trade and Industry including Japan, Germany, France, Switzerland, and the Norwegian Space Centre could be clearer the United States, Sweden and Canada. The in their dialogue about goals and priorities. Clari- Research Council of Norway’s space research pro- fying and operationalising objectives, the report gramme has contributed to national funding of says, would be a step towards a more robust space space-related research for many years. strategy. In addition, strategies should be devel- Norway has a long tradition of space-related oped to improve the balance between national pro- research, particularly in fields relevant to the gramme development and compliance with regu- High North. Norwegian scientists have long lations, with the goal of avoiding risky practices played a pioneering role in aurora research; in related to procurement and competition. The 1899, they set up an observatory on Haldde moun- report notes a potential conflict of interest in the tain near Alta. Since 1962, Norwegian and foreign state’s partial ownership of Kongsberg Satellite researchers have taken m easurements in the Services (KSAT). Given the strength inherent in atmosphere and near space using sounding rock- the company’s solid growth, it is possible that ets launched from the Andøya Rocket Range close relationships with the Norwegian Space (ARR). Over the years, Norwegian universities Centre and blurred roles could contribute to a have developed advanced capabilities in fields potential conflict of interest and to the exclusion of such as solar research, cosmology and astrophys- market competitors. ics. Largely due to its commercial interests and On the basis of its analysis, PwC also recom- geographical location, Norway has long had lead- mends improvement measures, some of them ing research organisations active in such fields as strategic and some operational. A complete and ocean science, meteorology, polar research and thorough assessment of PwC’s recommendations climate and environmental research. Increasingly, is not possible here. However, PwC’s recommen- such research relies on data from earth observa- dations do form some of the basis for the analyses tion satellites. Norwegian universities, research made in Chapter 1 of this white paper. institutes and public bodies are at the global fore- front in exploiting earth observation data. Exam- ples are the Norwegian Meteorological Institute, 3.4 Research in Norwegian space the Institute of Marine Research, the Norwegian activity Forest and Landscape Institute, the Geographical Survey of Norway, the Norwegian Institute for Air Space activities have always been closely linked Research, the Norwegian Institute for Water with scientific research. The technologies that Research, the Northern Research Institute have underpinned practical applications and value (NORUT), the Norwegian Computing Centre and creation in the private and public sectors often the Nansen Environmental and Remote Sensing stem from basic research at research institutions. Centre (NERSC). Society’s increasing dependence on advanced Through ESA programmes, Norway partici- electronic infrastructure has strengthened the pates in the development of satellites and space need for knowledge about solar storms and other probes to observe the sun and outer space. Nor- natural phenomena that can interfere with elec- wegian researchers utilise data obtained through tronics on the ground, in aircraft and on satellites. ESA to investigate basic questions about the uni- Satellites have become an important tool for verse’s origin, the possibility of life on other plan- researching phenomena on the earth’s surface ets and the fundamental forces of the solar sys- and in the atmosphere, including ocean currents, tem. Norway also contributes to scientific weather systems and ice cover. Observation of research by way of a small financial stake in the distant stars and planets helps enhance our under- International Space Station. This gives Norwegian standing of fundamental principles of physics. researchers access to the space station’s on-board 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 33 Between heaven and earth: Norwegian space policy for business and public benefit

ogy. The University of Stavanger has research and Box 3.12 Space weather educational programmes related to the synergy between space activities and the oil and gas sec- The sun is a variable star. Space weather tor. Most Norwegian universities offer educa- occurs where solar radiation and the solar tional programmes involving space-related phys- wind encounter the earth’s magnetic field and ics. atmosphere. The aurora borealis (northern The Tromsø Centre for Remote Sensing at the lights) is a visible manifestation of this. Satel- University of Tromsø is a hub of important Nor- lites and astronauts in orbit are more vulnera- wegian research actors in the field of earth obser- ble to solar storms and space weather than vation. Participants in the centre collaborate on people on the ground, but technical systems research, technology development, services down below can be affected too. Space development and the establishment and operation weather affects radio communications, naviga- of earth observation infrastructure. tional precision and radiation levels for aircraft In 2013, the Birkeland Centre for Space Sci- personnel. The sun can also trigger geomag- ence was established as a Centre of Excellence in netic storms, which can disturb power grids research. Its mission is to increase knowledge of and increase corrosion in pipelines. Govern- electrical current flows around the earth, particle ment, industry and tourism would all benefit showers from space, auroras, gamma-ray bursts from improved space weather forecasting. A and other links between the earth and space. The European space weather service is under work will lay a foundation for improved space- development, with participation by several weather forecasting and heightened security for Norwegian actors. satellite navigation and positioning systems, TV signals, payment systems and other satellite- based services. The centre is operated by the Uni- laboratories. Materials technology and biological versity of Bergen and will receive a total of some processes are Norway’s priorities in space-station NOK 160 million from the Research Council of research. Such knowledge is applicable to aqua- Norway over a 10-year period. culture, plant breeding and the development of The Research Council funds space research new materials, among other things. The technol- primarily through its 2011–2018 Romforskning ogy behind Norway’s AIS satellite was tested (space research) programme. It was set up to fund aboard the space station. The control centre for follow-up research exploiting Norwegian space ESA’s space-station plant experiments is located in activities within ESA, EISCAT (European Incoher- Trondheim. The Norwegian University of Science ent Scatter Scientific Association) and NOT (Nor- and Technology (NTNU) has been a pioneering dic Optical Telescope) organisations. The pro- environment for research into plant behaviour in gramme follows on the heels of prior program- weightless conditions and under varying light and matic commitments to basic research in priority radiation conditions. The University of Oslo has segments of Norwegian space research. It aims to world-class expertise in solar research, and it improve fundamental knowledge of space by houses the European data centre for Japan’s examining important physical processes and Hinode solar research satellite and for an upcom- developing the necessary technological tools. The ing NASA satellite called IRIS. Research con- research programme also encompasses near ducted with data from such satellites helps us to space, where cosmic radiation, solar wind and understand the fundamental laws of physics as other solar processes interact in the earth’s upper well as pressing matters like the sun’s effect on atmosphere. climate change and the phenomenon of space The Centre for Earth Evolution and Dynamics weather, which can disturb critical electronic sys- (CEED) at the University of Oslo conducts tems. research into mechanisms at work near the Several Norwegian educational institutions earth’s surface and their connection to processes have developed centres of learning with a focus deep within the earth. The centre is to be funded on space. Narvik University College and NTNU by the Research Council of Norway as a Centre of offer engineering programmes in space technol- Excellence from 2013 through 2023. 34 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

4 How space activity benefits society and contributes to key policy areas

The number of sectors touched in some way by 4.1 The High North space activities has been increasing in the past few decades. Norwegian authorities use satellites For several decades, the High North has been a to address key public responsibilities related to central focus of Norwegian space policy. The Gov- sustainability, security and national sovereignty. ernment’s space efforts are also discussed in Satellite-based infrastructure has become a signif- Report No. 22 (2008–2009) to the Storting: icant factor in value creation across much of the Svalbard and Meld. St. 7 (2011–2012) The High economy, not least by facilitating safe, efficient North: Visions and strategies. Our needs in the operations in fields like transportation and natural High North have been a key reason for Norway’s resource extraction. commitment to the advancement of ocean moni- Norwegian space policy has been based in toring technology through ESA, Copernicus and large part on finding concrete solutions to soci- our radar collaboration with Canada. One of the ety’s needs. Because of the country’s geography most important goals of Norwegian participation and business interests, it became apparent long in the EU satellite navigation programmes ago that Norway, more than many other coun- EGNOS and Galileo has been to make sure the tries, faced national challenges best addressed programmes are able to perform satisfactorily in through space-based technology. Norwegian the High North. The satellite ground operations at authorities, researchers and technology compa- Jan Mayen Island and Svalbard are representative nies have often been quick to identify the opportu- of Norway’s continuing involvement in the Arctic, nities represented by new space-related technolo- and they help secure the deployment of satellite gies. Today’s advanced satellite systems for ship systems that perform capably over Norway’s communications, ocean monitoring and high-pre- ocean expanses. cision navigation demonstrate how early-phase There are few if any alternatives to satellite- Norwegian involvement in promising new tech- based systems when addressing the communica- nology projects can result in beneficial services tion, navigation, surveillance and preparedness and commercial success. needs of the High North. Distances are too vast More and more tasks these days can be and human activities too scattered for land-based accomplished cost-effectively by using space- infrastructure, aircraft and ships to be effective. based infrastructure. Moreover, many of the chal- Satellite-based infrastructure provides coverage lenges that space-based technology may be help- across wider areas. Once such infrastructure is ful in solving have grown in significance in recent rolled out, the cost of adding users to a service is years. While Chapter 3 dealt with the political pri- very low. Radar satellites and AIS satellites can orities that have shaped Norway’s current perform their observations day and night regard- approach to space, this chapter will look ahead to less of visibility conditions – an obvious advantage the role space activities may play in solving the in harsh environments far to the north. Still, the country’s present and future challenges. In some High North poses special space-based infrastruc- detail, it examines five policy areas where the use ture challenges. For some kinds of infrastructure, of space-based systems may be particularly cost being on top of the world is an advantage. Satel- effective: the High North, climate and environ- lites in polar orbit provide particularly good cover- ment, security, transport and research. age near the poles. That’s why ocean monitoring of the High North is one of their strong suits. For other types of infrastructure, northern geography is a challenge. Satellites that move in geostation- ary orbit, as most communications satellites do, 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 35 Between heaven and earth: Norwegian space policy for business and public benefit

Figure 4.1 Ship traffic north of 60 degrees latitude Figure 4.2 Fishing north of 60 degrees latitude (1 Oct. 2010–1 Oct. 2012) (1 Oct. 2010–1 Oct. 2012) Source: Norwegian Space Centre/Norwegian Coastal Adminis- Source: Norwegian Space Centre/Norwegian Coastal Adminis- tration tration have limited coverage north of 75 degrees lati- tude. Communicating by satellite in the High North therefore poses special demands to the infrastructure employed. Activity in the High North and the Arctic is on the rise. Norway’s fishing fleet has been ranging farther and farther northward, and boats off Sval- bard have crossed 80 degrees latitude on several occasions. Cruise tourism around Svalbard has grown in scope over the years. The offshore oil and gas industry is moving ever further into the Arctic, while the retraction of Arctic sea ice is increasing the feasibility of long-distance central Arctic Ocean shipping routes. Safe, efficient and sustainable shipping and natural resource extrac- tion in the High North and Arctic will depend in large part on the use of satellite-based infrastruc- ture. The great distances to be traversed and the lack of land-based infrastructure make satellite- based surveillance, navigation and communica- tion essential to safe, efficient ship traffic and sea Figure 4.3 Fishing north of 60 degrees latitude rescue operations. Advanced offshore petroleum (1 Oct. 2010–1 Oct. 2012) exploration and drilling projects depend on navi- Source: Norwegian Space Centre/Norwegian Coastal Adminis- gation and broadband services available only by tration satellite. Norwegian authorities already have sub- stantial experience using satellites to monitor oil tic to petroleum activity. The need for improved spills and oversee fisheries. Now, High North monitoring is thus likely to intensify, underlining shipping is on the rise, the operational radius of the importance of having high-quality communica- the fishing fleet is expanding, and oil and gas com- tions and surveillance systems in place. panies are entering sensitive environments as the The EU satellite navigation programmes Gali- authorities open new zones in and around the Arc- leo and EGNOS, in combination with the Ameri- 36 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit can GPS system and Russia’s GLONASS, will pro- broadband services for ships. Existing satellite vide robust satellite navigation coverage on land communication systems offer little or no coverage and at sea in the High North and Arctic. Norway’s north of 75 degrees latitude. Communication sat- participation in Galileo’s early phase has helped ellites orbiting over the poles can solve this chal- ensure that the system will perform better in the lenge. Several states with High North interests High North than had originally been planned. As have started to study options for polar satellite to earth observation capacity in the region, the communications, but for now, no plans are ready EU’s Copernicus programme in combination with to implement. In Norway, the Norwegian Space Norway’s AIS and Canada’s radar satellites should Centre and Telenor have begun the Arctic Satel- do an adequate job in the years ahead. Good com- lite Communications project (Norwegian acro- munication systems for the High North, however, nym: ASK). The project will examine potential remain unprovided for; lacking in particular are commercial demand and Norwegian governmen-

Box 4.1 Satellites Satellites are the foundation of all applied ser- face, such satellites appear to be stationary. vices that take advantage of space. More than They are used for TV broadcasting, telecommu- 6,500 satellites have been launched since 1957. nications and earth observation. About 2,500 satellites currently orbit the earth, Navigation satellites occupy medium earth and between 800 and 1,000 of them are in active orbit (MEO). These satellites move some 20,000 use. There are three main types of satellites, cat- km above the earth’s surface. Their orbit is egorised by function. Communication satellites inclined at an angle of about 60 degrees from the relay signals for TV, telephone and broadband equator. Circling the earth takes 12 to 14 hours. service. Navigation satellites determine position, A minimum fleet of 24 satellites is needed to speed and precise time. Earth observation satelli- ensure that four or more satellites have line-of- tes register data on sea, land and air conditions. sight to a given surface location, so that geo- The satellites make use of different types of graphical position can be calculated. orbits: Satellites moving in low earth orbit (LEO) have almost circular paths at altitudes of 200 km to 1,500 km. Due to this low altitude, each satel- lite covers only a small area, whose boundaries shift continuously with the motion of the satel- lite. Each orbit takes 90 to 120 minutes, and the satellite stays within a user’s line of sight for less than 20 minutes. Many satellites are required to achieve continuous coverage over a fixed area. LEO satellites are used for research, earth observation and communications. A low-altitude satellite in polar orbit passes over or near the poles. Because of the earth’s rotation, such a satellite can cover the entire sur- face of the earth in the course of relatively few orbits. At northern latitudes, each orbital pas- Figure 4.4 Illustration of different satellite orbits sage can be observed. Source: Norwegian Space Centre Satellites in highly elliptical orbit (HEO) move around the earth at varying altitudes. Satellites in geostationary earth orbit (GEO) These satellites are used for communications move at the same velocity as the earth’s rota- during the long orbital segment when they are tion, some 36,000 km over the equator. Their furthest from earth. Those that spend most of coverage area on earth ranges in latitude from their time over northern latitudes provide good 75 degrees south to 75 degrees north. The polar coverage of the High North. Such orbits typi- areas are left uncovered. From the earth’s sur- cally take 12, 16 or 24 hours. 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 37 Between heaven and earth: Norwegian space policy for business and public benefit tal needs as well as the relevant communications decisions can be made on the basis of sound infor- technologies, organisational structures, costs and mation. Earth observation satellites have proved funding needs. Such a development may generate to be a particularly suitable tool for obtaining activity in northern Norway while reinforcing the information crucial to our understanding of cli- Government’s High North strategy. mate changes and other environmental issues. BarentsWatch is a web portal that collects The great advantage of using satellites to study information on coastal and marine areas from a environmental and climate-related issues is that variety of Norwegian governmental data sources, they permit observation of large areas as well as and makes it available. Though headed by the repetitive scans of the same spots over time. The Norwegian Coastal Administration (NCA), Bar- earth’s climate is regulated by a variety of large, entsWatch is beholden to no one agency. It is dynamic phenomena, including solar activity, being developed in phases. The first version of the greenhouse gas emissions, changes in snow and open information portal was launched in 2012. As ice cover, atmospheric soot particles, ocean cur- services in the open system are gradually rolled rents, wind systems and variations in cloud cover, out, a closed system for operational purposes is to name but a few. Even a partial understanding of also to be developed. The closed system will com- the causes and effects of climate changes requires bine information from various sources to improve a sense of the complex interplay among these and the situational awareness of public maritime other phenomena over time. Comparable observa- authorities. Over time, BarentsWatch is to tions from around the globe, collected over a long become a comprehensive monitoring and infor- period, are therefore necessary. mation system for maritime and coastal areas. In the past 25 years, we have seen a rapid The open portal, Barentswatch.no, will assem- expansion of satellite observation capability. It is ble facts and documentation that exist already, but it will also develop new web services that exploit combinations of data from numerous sources. Box 4.2 The Government’s Climate The web portal will offer factual information of a and Forest Initiative historic nature – statistical data stored systemati- cally over time – but also (near) real-time data During the climate negotiations in Bali in reflecting current snapshots of certain activities, 2007, the Government decided to allocate up phenomena or geographic locations. Users will to NOK 3 billion annually for measures thus be able to follow developments over time as designed to reduce greenhouse gases in the well as to observe what’s happening at the atmosphere by preventing deforestation and moment. forest degradation in developing countries. The portal will assemble and present material The Climate and Forest Initiative was estab- relevant to five major subject areas: lished in 2008 and is administered today by – Maritime transport the Ministry of Foreign Affairs and the Minis- – Marine resources try of Environment. Verifying that recipient – Oil and gas countries implement what they agree to do is a – Exercise of public authority/sovereignty significant challenge. Satellites are a useful – Climate/environment way to document deforestation and forest deg- radation. From 2009 to 2012, the Norwegian For target groups with interests in one or more of Space Centre led and coordinated Norway’s these areas, the portal will be a useful new tool. involvement in the Group on Earth Observa- Information that previously was spread across tions’ Forest Carbon Tracking Task (GEO many sites will be available in one place, and can FCT) and the Global Forest Observations Ini- be combined to achieve a new level of awareness. tiative (GFOI). GFOI is a platform to foster sustained access to satellite- and ground-based observations as well as to support the use of such observations in national forest informa- 4.2 Climate and environment tion systems. The aim is to provide systematic For years, climate and environmental issues have access to satellite data for countries with tropi- been rising on the political agenda, both in Nor- cal forests, enabling them to improve their way and internationally. With greater political surveillance and anti-deforestation pro- interest follows the need for increased knowledge grammes. to ensure that climate and environmental policy 38 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Box 4.3 Oil spills, viewed from Box 4.4 Satellite-based landslide space mapping and monitoring New satellite sensors make it possible to detect movements of the earth’s surface amounting to just millimetres per year. This has made it possible to develop effective tech- niques for mapping and monitoring of unsta- ble geological formations, and potentially of road surfaces and railway tracks susceptible to ground movement. Satellite data will increase our knowledge of landslide dynamics and triggering mechanisms, so that advance notice of such events will become more com- mon.

Figure 4.5 Satellite picture of oil spill off South Korea Photo: ESA 4.3 Civil protection, preparedness and crisis response

Radar satellites can «see through» clouds and Satellite-based infrastructure is employed in a at night, and they cover large areas. Norway wide range of crucial tasks. Communications, nav- in the 1990s was the first country in the world igation and surveillance via satellite have become to employ such satellites on a regular basis to very important to the performance of safety- and monitor oil spills at sea. At KSAT, in Tromsø, emergency-related public services ranging from satellite images from many parts of the world sea rescues to oil-spill preparedness and crisis are analysed in a search for oil spills from management. Satellite usage gives rise to new and ships or platforms. This form of observation cost-effective means of handling many of our soci- has been developed jointly by Norway’s ety’s vulnerabilities. At the same time, our satellite authorities, research organisations and indus- dependence carries with it a new type of risk. Sab- trial companies. oteurs and cyber attackers, for example, or natu- ral phenomena such as space weather, could cause significant harm by knocking out critical now possible to observe most of the key factors satellite infrastructure. Increasingly, Norway and influencing the climate. A number of indicators major international space powers such as the EU and illustrations presented by the U.N.’s Intergov- and the United States acknowledge the impor- ernmental Panel on Climate Change (IPCC) are tance of managing this risk. based on satellite data, much of it received in Sval- The utility of satellite-based infrastructure in bard. The overview provided by satellite observa- civil protection, emergency preparedness and cri- tion is critical to monitoring environmental prob- sis management stems from many of the same fac- lems such as desertification, oil spills and the tors that make satellites useful in addressing long-range transport of pollution. Where terres- needs related to the High North and climate and trial infrastructure is poor, as in the polar regions environmental policy. Satellite communications and in developing countries, satellite observations provide coverage in areas where no other commu- are particularly important. They are also used to nications systems reach. The value of satellite verify that individual countries fulfil their binding communications is also demonstrated when international agreements. storms or other natural disasters damage terres- trial communications infrastructure. In the after- math of the big Nordic storm «Dagmar», in December 2011, satellite communication systems were the only way to contact the outside world for many people in Norway’s Sogn og Fjordane County. Earth observation satellites provide a 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 39 Between heaven and earth: Norwegian space policy for business and public benefit quick view of disaster areas and make it easier to determine the appropriate response. Japanese Box 4.5 Space debris authorities made e xtensive use of satellite obser- vations to coordinate relief efforts after the Fukus- The number of objects in earth orbit has hima accident in March 2011. Radar satellites are increased significantly over the past decade becoming very important to the mapping and due to collisions and explosions. The orbits of monitoring of unstable mountainsides in Norway. nearly 20,000 objects are followed regularly by As with all systems our society becomes radar or telescope. Many additional orbiting dependent on, the increased reliance on satellite- objects are large enough to damage satellites, based systems represents a potential vulnerability. but too small to be tracked from the ground. As satellite systems become more and more The orbital speed is typically 7 km per second. important to aerospace, emergency preparedness With increasing frequency, operative satellites and security-related activities, it is to be expected must be manoeuvred in their orbits to avoid that those systems will become attractive targets collision with space debris. That requires fuel for hostile attack. Satellite infrastructure can also and reduces the lifespan of an orbiting satel- be damaged by natural phenomena, including lite. The United States is the leading operator space weather, and by space debris. Measures to of space surveillance systems, and regularly address such vulnerabilities have become an transmits collision alerts to satellite owners in important governmental priority. The Norwegian many other countries. A European capacity to Space Centre is in the process of preparing a vul- contribute to space surveillance is under con- nerability report on the civilian use of satellite nav- struction. The United Nations has also igation systems. The report was ordered by the become involved in this field. Radar systems Ministry of Fisheries and Coastal Affairs, which is in northern Norway and Svalbard already con- responsible for coordinating Norway’s civilian tribute to efforts to obtain a clearer view of the radio-navigation policy. The development of poten- traffic in space. It is hoped that larger satellites tial alternatives to the GPS satellite navigation sys- will be steered out of orbit when their opera- tem – Galileo, GLONASS and Beidou – will help tive periods end. Such end-of-life operations reduce the vulnerability that comes with depend- are not always successful. ESA’s large environ- ence on a single system. The «Public Regulated mental monitoring satellite ENVISAT sud- Service» component of the EU’s Galileo pro- denly stopped working in the spring of 2012, gramme is designed to provide national emer- and will continue orbiting for more than 100 gency service providers with access to encrypted years if not removed by some other means. satellite navigation services. These will be less vulnerable to attempts at sabotage or manipula- tion. With regard to space debris, the EU and the United States are pushing to establish interna- cient, accessible, safe and environmentally tional guidelines aimed at reducing the amount of friendly transport system that meets the transport space debris in key satellite orbits. needs of society and promotes regional develop- ment. Satellite-based services are important to maritime, aviation and land-based transport activi- 4.4 Safe, efficient transport ties, and are classified as intelligent transport sys- tems and services (ITS). Transport is one of the sectors that has changed the most in recent years as a result of the increased use of satellite-based infrastructure. It is Maritime transport also the sector whose use of satellite systems is In maritime transport, satellites are crucial to ship most evident in daily life. Car navigation systems owners who require contact with their ships. Sat- and handheld navigation devices are examples ellites also let crew members to talk to their fami- that come quickly to mind, but the transport sec- lies, watch television and access the Internet. tor relies on satellite-based infrastructure for com- Indeed, for ship crews far from land, satellite links munication and earth observation services in are the only way to communicate with the outside addition to navigation. According to the white world. To improve safety at sea, carriage require- paper Meld. St. 26 (2012–2013) National Trans- ments mandate the installation of satellite-based port Plan 2014–2023, the Government’s overall communications and navigation systems on larger objective for transport policy is to provide an effi- vessels. Satellite data are also important for the 40 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Box 4.6 ITS (intelligent transport Box 4.7 Volcanic eruption at systems and services) Eyjafjallajökull The acronym ITS (intelligent transport sys- tems and services) has evolved into a generic term for a wide range of technological approaches to improving transportation, in particular those focused on information and communications technology. Examples include systems for road-traffic information dissemination, satellite navigation, electronic ticketing and logistics. ITS can help increase capacity utilisation and efficiency across the entire transport sector: roads, rail, sea, and aviation.

Source: Ministry of Transport and Communications, Stra- tegy for intelligent transport systems, 2010)

design of maritime navigational charts. Satellite data are also used to map the current status of ice cover, so that ship crews in northern waters can plot cost-effective routes. Norway, an active par- Figure 4.6 Eruption at Eyjafjallajökull ticipant in the UN International Maritime Organi- Photo: ESA sation (IMO), built a chain of AIS (Automatic Identification System) receivers along the Norwe- The April 2010 eruption of the Eyjafjallajökull gian coast soon after the IMO enacted its resolu- volcano in Iceland had a major impact on air tion introducing AIS. Such coastal networks in travel across Europe. In May 2011, however, concert with satellite-based AIS technology pro- during the eruption of Grimsvötn, Norwegian vide a clear overview of global traffic at sea. Data airspace could be held open. The country was from the Norwegian AIS satellite and the Norwe- thus spared major economic losses. Satellite gian AIS receiver on the International Space Sta- imagery and weather models were key to the tion have made v aluable contributions to the operational decision-making in 2011. fight against piracy in the waters off Africa. Satel- lites also allow Norwegian authorities to substan- tially improve their supervision of vessel activity in the South Atlantic, including the waters around Satellite-based landing systems allow aircraft Bouvet Island and off Dronning Maud Land. crews to land and take off in curving trajectories, to plan the most direct flight paths, to save energy, and to modify approach paths so as to minimise Aviation the noise burden for airport neighbours. Runway- Many Norwegian aircraft today use GPS for hori- length needs can also be reduced – a benefit for zontal navigation during parts of their flights. GPS airports in northern Norway in particular. Of late, is the primary source of navigational data for the GPS has been used increasingly to provide verti- helicopter traffic that carries 600,000 passengers a cal navigational assistance, especially during air- year to and from North Sea installations. While port approach and departure and other situations flying in this airspace, helicopters broadcast their where the system provides operational and envi- GPS-derived positions to ground stations. The use ronmental benefits. Satellite technology is an ele- of this technology for monitoring and controlling ment of initiatives like Performance Based Navi- air traffic halves the cost in comparison with con- gation, which is being phased in here in Norway struction of radar systems. The Norwegian air and elsewhere. ambulance helicopter service uses GPS-based Satellite-based infrastructure assists aviation procedures on approach to bases and hospitals. in many ways. When Iceland’s Eyjafjallajökull vol- 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 41 Between heaven and earth: Norwegian space policy for business and public benefit cano erupted in 2010, airborne volcanic ash cre- large, dynamic phenomena such as weather sys- ated major problems for aircraft. Millions of pas- tems, long-range migration of pollution and cli- sengers experienced delays, and even air ambu- mate changes. Scientific research into the High lance services were grounded. The eruption North is a case in point. In a region characterised inflicted major economic losses on airlines. But by vast distances, poor infrastructure and harsh the following year, when Iceland’s Grimsvötn vol- climate, good alternatives to satellite-based obser- cano erupted, Norwegian authorities were able to vation are hard to find. Research results from the hold large swaths of airspace open. By analysing International Polar Year (2007–2008) show that detailed satellite observations and weather mod- satellite data are particularly valuable to research els, they were able to minimise travel delays and in the polar regions. economic losses. Norway participates in international space activities through ESA, Galileo and Copernicus, and through a number of bilateral agreements. Land transport Such cooperation puts Norwegian researchers in Satellite-based infrastructure for navigation is direct contact with their international colleagues very important to land transport. In 2010, 32 per and gives them dependable access to data and a cent of vehicles in the EU made use of satellite say in scheduling future observations. The infor- navigation. The Norwegian Public Roads Adminis- mation obtained and lessons learned help Norway tration relies on satellite-based navigation and expand its scientific and technological knowledge data services to perform road construction and base in areas of great strategic importance. maintenance. New forms of road pricing that rely Data that can only be obtained from satellites on satellite navigation sensors are potentially play a major role in the study of processes in, on more accurate than those that use existing and around the earth. The oldest field of study is ground-based tolling systems. Satellite navigation atmospheric dynamics, which is the basis for is also employed in fleet management and pack- numerical weather models. Since the early years age tracking, enabling freight companies to plan of the 20th century, when the physicist Vilhelm their loading and unloading operations in advance Bjerknes did pioneering work in meteorology, and to alert customers when to expect delivery. Norwegian scientists and organisations have been For rail systems, GPS data is more valuable leaders in the development of weather models. than physical detection systems for calculating More recently they have been in the forefront of train speed and station arrival and departure climate modelling. Atmospheric models have times. Such positioning data is also used in combi- been expanded to include a wide range of chemi- nation with energy data to accurately invoice train cal components and reactions, and satellite instru- operators for their energy consumption on routes ments today measure a range of chemical compo- crossing national boundaries. GPS devices fitted nents in the atmosphere. Observations and into locomotives are also used in maintenance research conducted at Ny-Ålesund, in Svalbard, planning; they let planners and workshop person- are among Norway’s contributions to interna- nel know at all times where particular equipment tional conventions on monitoring global air pollu- is located and how far it has travelled since prior tion. maintenance. Ocean research is a field where satellite data is crucially important, due to the vast geographic extent of marine areas and the problems of physi- 4.5 Research cal access. Leading Norwegian academic and research groups participate in all the major Euro- In a relatively short period, researchers across pean marine research programmes. Newer satel- nearly the whole spectrum of natural sciences lites, like ESA’s GOCE research satellite, make it have put satellite data to use in important ways. possible to include coastal areas in ocean model- They use satellites to observe everything from ling. That’s a development of interest to Norway. wind systems and ice cover to air pollution and Norway is also a leader in sea-ice research and oil- forest conditions. Among the great advantages of spill detection. The observation of algal blooms to satellite-based technology are the ability to help understand how they develop is also of great observe large areas in a cost effective manner and importance, not least for the aquaculture industry. the ability to make many commensurate observa- Research on land areas is multi-faceted, and tions over time. Information obtained from satel- Norway has made its mark on research into snow lites is particularly important to understanding and ice and the use of satellite data for forest 42 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Box 4.8 What can satellites tell us about climate and the environment? – At sea: Satellite observation is especially use- alerts when appropriate. Detection of volca- ful over open water, where geometric reso- nic ash is an important application. lution need not be particularly high. Satellites – Climate and greenhouse gas emissions: Not all can measure sea level, sea ice, objects on the gases are equally observable from space, sea surface, wave height, currents, ocean because they have different absorption cha- temperature, ocean «colour» (associated with racteristics. Some greenhouse gases are algal blooms, for example), particle content observable by satellite, however, and produ- (suspended matter), distribution of spilled cts are available to measure CO2, CH4 and oil, etc. Wind speed and wind direction at sea H2O. level are measured for weather forecasting – Ozone, UV and solar radiation: Ways to quan- purposes. tify stratospheric ozone, ozone-depleting sub- – Fresh water – rivers, lakes and groundwater: stances and related UV and solar radiation Satellite observation technology is increas- are well established. Satellite data are parti- ingly applicable to coastlines, fjords and fres- cularly useful in monitoring the size of the hwater bodies. The parameters that are mea- Antarctic ozone hole and studying the deple- surable at sea are also measureable in fresh- tion of ozone in our own areas. Ozone data water bodies. Limitations apply, however, from satellites (TOMS/OMI) are used opera- particularly for small water surfaces. tionally in Norway to estimate and forecast – Land, land use and biodiversity on land: Satel- UV radiation for the general public. lite observation applications ashore are wide – Polar regions: Satellite observation is unsur- ranging, from environmental surveillance of passed as a means to acquire data frequently large areas to the details of properties or and quickly on what’s happening in the polar infrastructure. Satellites equipped with opti- regions. In the years ahead, more than 150 cal and infrared sensors can provide impor- instruments fitted onto various satellites will tant data on vegetation, including climate- be able to observe Svalbard. Measuring sea related changes, vegetation cover, land use, ice is the most obvious application, since reli- forest condition/forest damage/ able measurement is practically impossible deforestation, pollen, and urban green areas. without satellite data. In addition to ice Radar observation can provide data on lands- extent, thickness and volume, observable lides, glacier movement, snow, ice and floo- features include currents (ice transport) and ding. changes in the sea ice’s role as animal habitat – Air pollution, both local and global: Satellite and transport medium. ESA’s CryoSat satel- observations are used increasingly in combi- lite provides sea-level data for the central nation with in-situ measurements. Techni- Arctic Ocean. Looking down on polar land ques to measure concentrations of NO2 , SO2, masses, satellites observe glacier coverage CO, CH2O and aerosols are well developed. and changes in vegetation. The large flow of Satellites still lack the accuracy and sensiti- data will necessitate a substantial effort to vity of ground instruments, but their broad calibrate and validate the various observed spatial coverage makes satellites useful. parameters, using ground-based measure- Satellites measure gas and particle concen- ments. trations, making it possible to estimate pol- – Cultural heritage: Satellites are used to loca- lution emissions, monitor trends and issue lise and monitor cultural heritage sites, as a supplement to field work.

research. At the Norwegian Forest and Landscape under planning will provide expanded observa- Institute, researchers have used earth observa- tional coverage, researchers envisage potential tion of agricultural conditions to develop operative new applications tied to resource mapping, forest monitoring systems for forests and other outlying degradation and other changes in vegetation. A resources. Agriculture itself is largely dependent long tradition of systematic, field-based sampling on observations made during the course of a in agriculture provides a solid basis on which to short growing season. Because satellites now develop earth observation services. 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 43 Between heaven and earth: Norwegian space policy for business and public benefit

ducted at Arctic latitudes. International collabora- tion at Norwegian rocket ranges is extensive. Norwegian research efforts have provided much of the basis for space-related business growth in Norway. But business development has been characterised by specialisation in clearly defined technical niches. A number of industrial players do operate within the same value chain, though on different levels. This has made collabo- ration and knowledge sharing possible. Formal- ised collaboration was attempted through the SIREN space cluster, an ARENA project in the 2006–2009 period. When the project was evalu- ated, a conclusion was that one and the same value chain lacked critical mass, despite the fact that several strong space-sector participants had been involved in SIREN. The space cluster con- tributed nonetheless to the founding of the Centre Figure 4.7 SWARM for Remote Sensing in Tromsø, in 2008. Illustration: ESA/AOES Medialab In the field of satellite communications, back in the 1970s and 1980s, Oslo and Akershus coun- Satellites can tell us much about active pro- ties saw the emergence of a network of compa- cesses inside the earth. In 2013, ESA will launch nies, many of which had common goals in satellite SWARM, a system of three satellites designed to operations and the development and manufacture observe the earth’s electromagnetic fields. It is of satellite communications equipment. Many of believed that such measurements from space will Norway’s technology actors are participants in make it possible to answer questions about the the Norwegian Centres of Expertise (NCE) pro- earth’s crust and interior. Research centres in gramme, which offers collaboration and funding Norway are strongly attuned to the earth’s crustal in the speciality disciplines the actors represent. magnetic fields. What they learn helps us to Examples include NCE Instrumentation, NCE understand developments in Nordic geology as Systems Engineering and NCE Micro- and Nano- well as to chart natural resources. technology. In addition, a number of companies In addition to being a major consumer of satel- and organisations established the Space & Energy lite data for research, Norway hosts a range of Network in 2009 to promote cooperation between activities associated with the launch of research the energy and space sectors. The network rockets from launch pads at Andøya and Svalbard. focuses on open innovation, skills development, These rocket missions are a necessary comple- technology sharing and high-quality meeting are- ment to satellite and aircraft observations, and are nas in which to highlight shared technology chal- important to understanding phenomena such as lenges like extreme operating conditions, remote the aurora borealis, space weather and climate control, automation, materials selection, project changes. Norway is one of the few places in the management and safety. world where rocket-based research can be con- 44 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

5 The European Space Agency

Membership in the European Space Agency their origins to the early 1960s. While ESRO had (ESA) has been the mainstay of Norwegian space had considerable success in developing scientific activity since the country became a member in satellites, ELDO had never achieved its goal of 1987. Our participation in the organisation has developing a launcher that would give Europe contributed greatly to the growth of a competitive independent access to space. The purpose of both space industry, to the spread of technological ESRO and ELDO, and later of ESA, was to pursue expertise in government and business, and to the European self-reliance in space technology. A internationalisation and strengthening of Norwe- great deal of space technology development was gian research. ESA has put us in a position to then taking place in Soviet and US military pro- develop autonomous national capabilities even as grammes closed to European countries. The 1975 we exploit the economies of scale that come with merger was intended to improve the return on working in a large organisation. Like most ESA investment by member countries, in part through member states, Norway never would have had the increased focus on industry and user-group inter- financial or human resources on its own to ests. In the 1970s and 1980s, ESA developed the develop large and advanced satellites, launch vehi- first European launchers in the Ariane series as cles or space probes. By pooling their resources well as a number of satellites and space probes, in ESA, member countries have been able to some for basic research and others for applied achieve results that most would have been unable development projects in communications, earth to accomplish otherwise. ESA has not only put observation and other fields. Europe on the space-technology map, but has Norway was never a member of ESRO or made it possible for Norway and other member ELDO, and chose at first to remain outside ESA as states to develop expertise sufficient to protect well. Participation was not seen as relevant their interests in strategically important space enough to Norwegian research or industry needs. technology and infrastructure. What little there was of publicly funded space ESA is an independent intergovernmental activity in Norway (primarily associated with the organisation with 20 member states, headquar- Norwegian Defence Research Establishment) tered in Paris, with an annual budget of about 4 was confined to domestic programmes or collabo- billion euros. The EU and ESA work closely ration with US research institutions. Things began together, and their memberships overlap. (Among to change, however, in the late 1970s. The cause ESA members, only Norway and Switzerland are was complex, but three factors predominated. not members of the EU.) ESA’s role has primarily First, Norway had developed a substantial been in technology development. While ESA was community of experts in satellite communica- responsible for the bulk of development work tions. This expertise had sprung from the need underpinning the Galileo and Copernicus pro- for communications at sea by the Norwegian mer- grammes, it’s the EU that sees to their operational chant shipping fleet. But as the 1970s unfolded, funding. Under the 1975 ESA convention, ESA some Norwegian actors discovered that their activities are to be restricted to peaceful purposes. expertise was in demand internationally. Norwe- gian participation in international development projects became increasingly important as a 5.1 Context for Norway’s ESA means of sharpening technological prowess and participation competitiveness. The second factor that drew Norway towards ESA was founded in 1975 through the merger of ESA membership was the vast expanse of ocean the European Space Research Organisation that fell under Norwegian stewardship in the (ESRO) and the European Launcher Develop- 1970s. It soon became clear that the proper exer- ment Organisation (ELDO), both of which traced cise of administrative responsibility and sover- 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 45 Between heaven and earth: Norwegian space policy for business and public benefit eignty across such enormous and desolate areas Every three or four years, the ESA Council would necessitate extensive satellite monitoring. meets at the ministerial level. Ministerial-level ESA participation became a tool for developing council meetings are attended by ministers with the competence Norway would need to fulfil its responsibility for national space programmes. stewardship obligations. These council meetings determine long-term pro- A third factor in the decision to move closer to gramming activity, membership contributions and ESA was a desire to strengthen Norway’s indus- overall strategic guidance. The last ministerial- trial competitiveness by tying Norwegian compa- level council meeting took place on 20–21 Nov. nies more firmly to international networks. In the 2012, in Italy. 1980s, technological innovation was increasingly In addition to the ESA Council, ESA has four recognised as a fundamental driver of economic standing committees at the technical level, all of growth. ESA participation was seen as a tool for them with an advisory function. These are: the technology transfer and a channel to new markets Industrial Policy Committee (IPC), which is for high-tech Norwegian companies. responsible for ESA activities related to industrial That was the background for Norway’s agree- development; the Administrative and Finance ment, in 1981, to become an associate member of Committee (AFC), which follows through on ESA ESA for a limited period. Norway became a full budgets; the International Relations Committee member on 1 Jan. 1987. (IRC), which sees to relations with third countries and international organisations; and the Science Programme Committee (SPC), which has responsi- 5.2 ESA’s organisation bility for ESA’s scientific activities. In addition, programme boards have been established in each ESA’s goals and governance structure are set out area of ESA activity, such as earth observation, in the ESA Convention of 1975. The agency’s high- navigation, communications and technological est governing body, the ESA Council, normally development. meets four times a year at the delegate level. Daily operations of ESA are supervised by an Council delegates represent each of the member administration headed by a director general. The states and take positions on topical issues related director general is appointed by the ESA Council to the management of ESA activities. As an associ- for a term of four years, and can sit for more than ate member, Canada has the right to express its one period. Frenchman Jean-Jacques Dordain has views. By act of the council, the European Com- been the director general of ESA since 2003. mission and individual EU member states that are Under the director general are about 2,000 not ESA members may attend meetings and speak employees divided between the agency headquar- out on issues concerning matters of common ters in Paris and various technical centres in Ger- interest to ESA and the EU. many, the Netherlands, Italy and Spain. Of all the

Figure 5.1 Ministerial-level ESA Council meeting in Naples, 20 Nov. 2012 Photo: ESA/S. Corvaja, 2012 46 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

European organisations active in space, ESA has resenting less than a quarter of a country’s NNI the broadest base of technical expertise. share level, however, give the country no voting ESA is funded primarily through member- rights in the programme in question. state contributions, of which there are two kinds. ESA programmes are tightly linked to ESA Contributions to mandatory activities go towards industrial policy, which includes a principle of the funding of ESA administration, basic technol- guaranteed industrial return. In principle, each ogy development and the science programme. In member state’s share of industrial contracts in a addition, countries can make financial commit- programme shall equal the percentage of pro- ments enabling them to participate in a variety of gramme costs that the country pays for, with a optional programmes. Those commitments are deduction for administrative costs. In practice, a made at the time of ministerial-level council meet- country’s return rate depends partly on its ability ings. In addition to member-state contributions, to deliver competitive products. For most member ESA gets significant financial support from the EU countries, the principle has worked well. The and EUMETSAT. industrial policy ensures that member-state indus- tries come into contact with ESA technology pro- grammes while bolstering support within the 5.3 ESA programmes and industrial member states for continued ESA participation. policy Through ESA’s industrial return policy, most member countries have found it possible to build ESA’s research-and-development activities are a competitive space technology industry. The organised into programmes. These can be result is true competition between companies on grouped into two categories: the mandatory pro- price and quality. ESA policy is to actively promote gramme and the optional programmes. The man- industrial development in countries that struggle datory part is divided into the general budget pro- to achieve full return on their contributions. gramme (accounting for about a third of the budget) and the science programme. The science programme is focused on scientific research, such 5.4 Norwegian ESA participation over as exploration of distant planets, solar research time and the search for dark matter. General budget programme activities are geared towards basic Norway’s annual ESA participation, as measured technology development. in unadjusted kroner, has gone from just under The optional programmes are funded through NOK 100 million in 1987 to nearly NOK 500 mil- financial commitments made voluntarily by mem- lion today. Figure 5.2 shows the change over time ber states on a programme-by-programme basis. in mandatory contributions and annual payments Such commitments come in addition to the states’ to optional programmes. mandatory contributions. The motivation is usu- The long-term increase in Norwegian contri- ally to ensure participation in a certain pro- butions is attributable to two factors. The ESA gramme by one’s own national industries and budget increased by 5 per cent annually until research bodies. Optional programmes are mainly 1994, and Norway’s NNI share has almost dou- focused on the development of technology and bled from 1987 to the present. Fluctuations from applied services for communications, navigation year to year are due to exchange-rate variations. and earth observation. It is the optional pro- The purchasing power of the mandatory contribu- grammes that are of particular interest to Norway, tions has been fairly stable over the past decade. as they cover technology areas where we have Norway’s involvement in optional pro- major industrial interests (like satellite communi- grammes was relatively stable from 1993 to 2005. cations and launch technology) or end-user inter- At the ministerial-level meeting in 2005, great ests (like earth observation). emphasis was placed on the importance of space ESA contributions are tied to the member investments to support the Government ‘s High countries’ net national income (NNI). Mandatory North policy and Norwegian technology develop- subscriptions in particular are based directly on ment. Norway contributed funds about equal to NNI share, with each country’s percentage share our NNI share of all the new optional pro- of mandatory programme costs equalling its grammes. The effect of this increase and an share of the combined NNI of ESA member investment in new programmes at the ministerial- states. For optional ESA programmes, contribu- level council meeting in 2008 account for the tions are essentially voluntary. Contributions rep- sharp rise in contributions from 2006 onward that 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 47 Between heaven and earth: Norwegian space policy for business and public benefit

Figure 5.2 Norwegian participation in ESA programmes Source: Norwegian Space Centre can be seen in Figure 5.2. At the ministerial meet- increasingly difficult to compete on price. ESA ing in 2012, Norway declared the equivalent of a and Norway together have examined how these little below its NNI share in new optional ESA pro- structural problems can be rectified. ESA has grammes (see Prop. 74 S (2012–2013)). The moti- used internal funds, and Norway has used the vation for Norway’s increased commitment is the technology programmes to strengthen the com- opportunity it represents to develop technologies petitiveness of Norwegian actors. Norway’s and markets, particularly those related to national return has improved since 2010, and stands in utilisation of satellite data. In the case of earth 2012 at 95 per cent of the nominal value. In the observation, Norway pays about 2 per cent of the straightforwardly technological programmes, European total, and uses 15 to 20 per cent of the Norway’s nominal return is in line with what the information, with a focus on information relevant programmes call for. to our expansive northern areas. The utility of Norway’s ESA membership was Until 2000, the level of industrial return to Nor- evaluated by PwC in 2012. The evaluation empha- way was good for all ESA programmes. Since sises that revenues in the Norwegian space econ- then, the return level for optional programmes omy are unusually large for a small country, has remained good, but it has been hard to accounting for close to 2 per cent of the global achieve a satisfactory return level in the manda- space economy. The main conclusion was that tory programme. The main reason for this is that Norwegian industry and end-users alike have ben- Norwegian companies capable of contributing to efitted greatly from the country’s ESA participa- satellite construction are relatively niche-oriented. tion, and that the industrial projects return clear In addition, wage growth in Norway has made it socio-economic value. 48 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

6 The European Union

In a few short years the EU has become one of the Copernicus. Norway will benefit greatly from most important European actors in space. When these systems. On the other hand, Norway’s abil- the Treaty of Lisbon entered into force in 2009, it ity to promote its own interests may be chal- gave the EU a space mandate for the first time. lenged. The key decisions on European space With the development of the Galileo satellite navi- activity are moving from ESA, where Norway is a gation programme and the Copernicus earth full member, to the EU, where we are outsiders. observation programme, the EU is about to This poses new challenges to Norwegian policy. become one of the world’s major satellite infra- Our space policy is becoming more like our other structure operators. The EU’s growing involve- European policies, and we must find ways to make ment in space has captured the attention of Euro- our voice heard on issues where EU space policy pean leaders. Once regarded as a relatively affects Norwegian interests. peripheral endeavour, done for its own sake, space activity has gained status over time as a means to achieve objectives in other policy fields – in par- 6.1 The EU’s role in European space ticular, to promote growth and innovation. Space activity – background and trends now has a place at the heart of European politics. As the EU has gained influence in European The EU’s role in European space programmes space activities, ESA’s role in some areas has began to develop in the late 1980s, with the Euro- changed. ESA’s strength is that of a research and pean Commission’s initiative to open up the Euro- development organisation. The EU for its part has pean satellite communications market. At the the political, financial and administrative muscle time, this market was hampered by a complex required to build and operate major infrastructure regulatory regime in which rules varied from systems and hitch them to European policy objec- country to country. The complexity stifled compe- tives like economic growth, security, the environ- tition and was seen as an obstacle to the effective ment and climate. In recent years we have seen a use of satellite communications technology in growing tendency towards a division of labour Europe. It is worth noting that this issue went between the two organisations, with ESA develop- right to the core of the internal market, namely ing basic infrastructure technology that the EU the potential for cross-border business activity later funds and constructs for deployment. This and effective competition. Right from the start, was this model by which Galileo and Copernicus then, the EU’s involvement in space touched on arose with considerable success. The future rela- policy fields at the core of the EU project. tionship between the two organisations has not During the 1990s and 2000s, EU space activi- been clarified. Some countries want to integrate ties became gradually stronger, primarily through ESA into the EU, as a EU agency, while others close cooperation with ESA and through the EU’s prefer to maintain the status quo. Regardless of framework programmes for research and develop- the organisational structure that emerges, it is ment. The EU’s efforts were mainly aimed at clear that many of the most important strategic developing space infrastructure and satellite- decisions on European space activity in the future based services that would be helpful in achieving will take place in the EU by virtue of its size, its political goals in fields such as the environment, breadth of interest and its legitimacy in the eyes of climate, transport and security. Since the late member countries. 1990s, the major pan-European infrastructure pro- For Norway, the changing landscape affords grammes Galileo and Copernicus have been the both opportunities and challenges. On the one focal points of EU space activity and of EU-ESA hand, the EU’s enhanced role has given Europe cooperation. the ability to execute large and complex infra- As collaboration between the EU and ESA structure programmes, such as Galileo and became more extensive, several initiatives were 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 49 Between heaven and earth: Norwegian space policy for business and public benefit undertaken to formalise relations between the two organisations. The joint ESA-EU space strat- Box 6.1 Industrial policy in the EU egy declaration of 2000 was intended to strengthen European space activity by establish- From an industrial policy perspective, there ing collaborative projects between ESA and the are fundamental differences between ESA and EU. In 2004, the two organisations signed a frame- the EU. ESA is a research and development work agreement. An important consequence of organisation. The ESA convention calls for this agreement was that high-level EU officials member countries to receive a timely share of began discussing space issues more frequently, projects and contracts in a proportion roughly including at regular ministerial-level meetings of a equal to the payments they make to ESA – a joint body known as the Space Council. policy of guaranteed industrial return. In the main, the early decades of the EU’s par- The EU in principle has an industrial policy ticipation in space was characterised by ad hoc ini- based on open competition among companies tiatives and cooperation with ESA to solve con- in the countries that participate in a given pro- crete problems. The EU had no formal mandate to gramme. This means countries have no implement its own space policies. This situation «right» to get back contracts in proportion to changed significantly when the Treaty of Lisbon the project costs they fund. EU industrial pol- entered into force in December 2009. The treaty icy assumes that a country’s industry must be gives the EU an explicit mandate to formulate a competitive. For small businesses, it is impor- European space policy to support scientific and tant to be active in the sub-supplier networks technical development, competitive strength and of prime contractors. EU activities in other policy fields. To implement Since price is an important factor in win- the policy, the EU is to establish appropriate rela- ning contracts, countries with high costs face tions with ESA and if necessary to take other major challenges in securing contracts in open measures, like creating a European space pro- EU competition. gramme. But the Treaty of Lisbon provides no legal basis for trying to harmonise member states’ policies in the area; on the contrary, the text looking at space. Traditionally, space activities expressly exclude such initiatives. have been regarded largely as basic research, As a step in carrying out the Treaty of Lisbon albeit with significant side effects in the form of mandate, the EU issued a communication in 2011 technological and industrial development. The titled «Towards a Space Strategy for the European basic premise of EU space strategy is that the Union that Benefits its Citizens». It contains three space sector is to supply infrastructure, products aims: public benefit, economic growth and a and services critical to economic competitiveness, stronger EU role on the world stage. The aims of welfare and security in a modern industrial soci- benefitting society and strengthening the Euro- ety. The clearest manifestations of such thinking pean economy are familiar from previous EU initi- are the space programmes Galileo and Coperni- atives in the area. Of more recent date is the cus. explicit emphasis on the EU’s global status. This must be seen in the context of the EU’s height- ened attention to security and foreign affairs 6.2 EU space programmes – common (exemplified by the appointment of an independ- infrastructure, common goals ent high representative for security and foreign policy) and to the increasing emphasis on space Most of the EU’s space-related activity takes place infrastructure in these policy areas. Infrastructure in the context of programmes whose aim is to in space is becoming a prerequisite for security on develop and operate pan-European space-based the ground. As a consequence, European capabil- infrastructure. By far the largest and most signifi- ity has emerged as an important priority in it is cant programmes to date are Galileo, the satellite own right, along with dialogue with major space navigation programme, and Copernicus, the earth actors like the United States, Russia and China. observation programme. Through Galileo and The foremost characteristic of EU space strat- Copernicus, Europe has in many ways stepped egy is its very strong orientation towards practical into a new era. In a few years, the EU will be man- utility, with space activity defined as a means to aging space-based systems of a magnitude and achieve objectives in other policy areas. For many complexity achievable by no one else but major European countries, this implies a new way of powers like the United States, Russia and China. 50 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Galileo’s development is among the largest tion, maintenance and continued development. collaborative industrial projects ever mounted in Construction was to be completed in 2013, but the Europe. The system ensures institutional demand project’s complexity and the late introduction of for Europe’s satellite navigation industry as well additional safety requirements have delayed the as European control and capacity in a service cate- programme and raised costs. Galileo is now gory of increasing strategic importance. scheduled to enter early operational status in Copernicus will be an important tool for scien- 2015. By 2020 the system is to be complete, with tific research, public security and environmental 30 satellites in orbit and fully operational services. and climate monitoring in Europe and around the The development of next-generation Galileo satel- world. Data obtained from the system’s satellites lites is already underway. will be an important component of public services The EU regards Galileo and EGNOS as tools and a commodity for businesses that process sat- to help develop Europe’s high-tech industrial ellite data. In addition to Galileo and Copernicus, capabilities and attain European self-reliance in a the EU has engaged in space-related activities technology that is seen increasingly as a strategic through framework programmes for research and priority. EGNOS consists physically of equipment innovation. Some EU officials have an ambition to installed on two satellites in equatorial orbit as establish programmes on such topics as space well as a network of ground reference stations and research and space weather. four control centres. The signals from EGNOS can be received by most any GPS device, and are used to correct inaccuracies in the signals from 6.3 EU satellite navigation these systems’ satellites. EGNOS provides three programmes: Galileo and EGNOS services: an open service that provides more pre- cise measurement data than GPS alone, a service The EU channels its satellite navigation invest- oriented to the aviation market for use during air- ments into the EGNOS and Galileo programmes, port approaches, and a data service that supplies whose missions are to develop, operate and raw data and corrections through the Internet. expand systems of the same names. EGNOS When fully developed, Galileo will be a fully (European Geostationary Navigation Overlay Ser- operational, global satellite navigation system con- vice) has been in operation since 2009. It verifies sisting of 30 satellites and 20 or so ground sta- and corrects GPS signals (and eventually will do tions. It will provide the following services: so for Galileo signals) so the signals are more reli- – Galileo OS (Open Service), an open public ser- able and precise. Galileo is to be an independent vice similar to today’s GPS as experienced by global satellite navigation system comparable to its civilian users. the American GPS, Russian GLONASS and future – Galileo PRS (Public Regulated Service), which Chinese Beidou systems. Unlike the others, Gali- will provide encrypted signals on dedicated fre- leo will be a purely civilian system. EGNOS and quencies. This makes the signal more resistant Galileo are being built and operated as separate to disturbances and false signals, and makes it systems, but are funded from the same EU budget possible to regulate access. PRS will be offered line. Each must be viewed in relation to the other. to accredited users in the public sector. In the mid-1990s, the EU and ESA began col- – Galileo SAR (Search and Rescue), which will laborating on satellite navigation, initially by detect signals and positioning data from emer- developing EGNOS. At the same time, prepara- gency beacons and relay them to the interna- tions began for a future independent satellite navi- tional search-and-rescue system COSPAS-SAR- gation system. Development of Galileo got under SAT. In contrast to existing services, Galileo way in 2001. For the rest of the decade, attempts SAR will include a return channel, by which the were made to fund the construction and operation party in distress will receive confirmation that of Galileo as a public-private partnership between its emergency signal has been received. the EU, ESA and private investors. It proved – Galileo CS (Commercial Service), which is still impossible, however, to get private investors to in the planning stages and is expected to pro- assume financial responsibility, mainly because of vide high-precision services to professional the modest direct revenue potential and the high users and signal-authentication for use in appli- political, technological and financial risks. In 2007, cations such as road pricing. therefore, the EU decided to fully fund the sys- tem’s development. The EU became the owner of The construction and future development of Gali- the system with responsibility as well for its opera- leo and EGNOS provide assurance that Europe’s 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 51 Between heaven and earth: Norwegian space policy for business and public benefit

Figure 6.1 Galileo satellites Illustration: OHB System AG space industry will enjoy institutional demand for control. The Americans make no service guaran- the satellite navigation technology. Such demand tees and reserve the right to block signals if it is a precondition for the very existence of the would serve US needs. This has made it problem- industry, given that foreign suppliers are barred atic to rely on GPS alone for critical services from serving the (military) US, Russian and Chi- demanding high reliability, as in aviation. Moreo- nese systems. In addition to the opportunity of ver, dependency on another country’s military supplying technology to satellites and ground system has been deemed undesirable with regard infrastructure, Galileo and EGNOS give European to European foreign and security policy autonomy. companies and user groups early insight into, and Galileo will be compatible with GPS in such a influence over, programme specifications and way that satellite navigation device users will be technical systems. That insight is crucial for suc- able to receive signals from both systems. Users cess in the growing market for products and ser- will in fact perceive the two systems as seamlessly vices that exploit satellite navigation data, includ- integrated. With Galileo and GPS working ing intelligent traffic systems in the road sector, together, the number of satellites available to location-based smartphone applications and high- users at any given time will be about twice what precision services for the maritime sector, the off- would have been the case if there were only one shore oil and gas industry and agriculture. system. That means improved access to satellite By establishing Galileo and EGNOS, the EU navigation services in polar regions, in deep val- achieves independent capability in a strategically leys and in the midst of buildings in urban areas. important navigation technology. European The existence of two independent but compatible demand for satellite navigation services so far has systems also means greater robustness and relia- largely been satisfied by the US GPS system. bility for the services provided. One side effect of While that system has met most European user the EU’s investment in satellite navigation has needs, it is a military system outside European been that it motivated the United States to 52 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit improve its GPS system to meet the prospect of ground, the European Commission launched the competition from Galileo. This was part of the rea- idea of a pan-European initiative on earth obser- son US officials in 2002 chose to cease their inten- vation in 1998, through a declaration called the tional degradation of the civilian GPS service. The Baveno Manifesto. A partnership was set up precision of the civilian GPS service improved among the European Commission, ESA and the overnight from 100 metres to 10 metres, a major member states of the EU and ESA. In 2000, the benefit to users worldwide. partners began development work aimed at estab- lishing an operational earth observation system for Europe. By 2010 they had progressed far 6.4 The EU earth observation enough to begin initial operations. The EU then programme: Copernicus adopted Copernicus as an EU programme, on par with Galileo and EGNOS. The initial operations The EU invests in earth observation through the phase, from 2011 to 2013, features the establish- Copernicus programme, formerly known as ment of services based on data from existing Global Monitoring for Environment and Security national, commercial or ESA-owned satellites. The (GMES). The primary purpose of this programme breadth of available data will be expanded consid- is to acquire information relevant to environmen- erably from 2013 onward, as the programme’s tal and climate policy, ocean monitoring, research own satellites begin to orbit. As planned, Coperni- and security. Copernicus will collect data from cus is to achieve fully operational status in 2014. earth observation satellites, airborne sensors and Fully developed, Copernicus will consist of a ground-based monitoring stations. It will also large number of earth observation satellites in operate systems to process the data for different addition to land-based, ocean-based and airborne users. Copernicus represents a new phase in envi- sensors. Some of the most advanced earth obser- ronmental monitoring by satellite. Until now, we vation satellites, the Sentinels, are under construc- have had to rely on individual research satellites tion and scheduled for launch in 2013. The pro- with a limited service life. Copernicus by contrast gramme will also use data from several existing will be an operative system providing continuous satellites owned by ESA, the European weather coverage, with replacement satellites going up as satellite organisation EUMETSAT and the mem- old ones are phased out. Such continuity is par- ber states. Ground stations will also have to be set ticularly important for the study of environmental up to control Copernicus’ own satellites and and climate changes, work that requires repetitive receive data. The data provided by all this infra- observation over a long period of time. Thanks to structure will permit the gradual development of a Copernicus, Europe in 2015 will be operating the wide range of services for European and interna- world’s most advanced fleet of environmental sat- tional users. Copernicus programme services will ellites. Europe already has a well-developed sys- be categorised as follows: tem of weather satellites. In the long run the pro- – Marine environments: Monitoring in connec- gramme is meant to be Europe’s contribution to tion with maritime safety and transport, oil the Global Earth Observation System of Systems spills, water quality, polar environment, sea ice, (GEOSS). GEOSS will integrate data from differ- oceanography and marine weather forecasting. ent regional earth observation services to create a – Land environments: Monitoring in connection common platform, and will organise the informa- with freshwater access, flood risk, agriculture tion for different users. The goal is to develop a and food security, land use, changes in vegeta- shared global infrastructure from which to obtain tion, forest conditions, soil quality, urban plan- continuously updated information relevant to envi- ning and conservation. ronmental management and disaster response. – Atmospheric services: Monitoring of air quality, Copernicus has its roots in international envi- long-range transboundary pollution, ozone, ronmental and emissions agreements concluded ultraviolet radiation and greenhouse gases. in the 1980s and 1990s. With many countries com- – Crisis situations: Services to aid response to mitting themselves to emissions reductions and natural and man-made disasters such as floods, other environmental measures, there arose a forest fires, earthquakes and refugee flows. need to document environmental conditions and – Security: Support for border control, maritime monitor the extent to which countries lived up to surveillance and protections against terrorism their commitments. It soon became clear that the and international crime. only effective way to do this would be to employ It is the EU’s stated goal that Sentinel satellite earth observation satellites. Against this back- data and the core services, which are to be freely 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 53 Between heaven and earth: Norwegian space policy for business and public benefit

Figure 6.2 The Sentinel satellites will be part of Copernicus Illustration: ESA/P. Carril and openly available, will give rise to significant related to public administration, the environment, commercial activity and innovation in downstream climate and security, is also supposed to stimulate service markets. In other words Copernicus, commercial growth and innovation. while directly addressing significant challenges

Box 6.2 The Sentinel satellites At the core of Copernicus are the Sentinel envi- – Sentinel 2: Satellites designed to provide ronmental satellites, which will move in low images over land and coastal areas. These earth orbit over the poles. Their continuity, pre- images will have particular value in the mon- dictability and sensory capabilities should sat- itoring of forests, soil and freshwater bodies, isfy important environmental monitoring needs, and in support of emergency services. especially when it comes to data of global and – Sentinel 3: Satellites combining radar with international significance. The satellites are to optical sensors to be used for ocean monitor- be launched between 2013 and 2019. Six differ- ing and environmental monitoring over land. ent categories of satellite are planned: – Sentinel 4 and 5: Satellites able to discern the – Sentinel 1: Radar-imaging satellites capable chemical composition of the atmosphere. of observing land and sea areas regardless of – Sentinel 6: Satellites designed to take precise light conditions. These satellites will be par- elevation measurements, to be used in deter- ticularly useful for ocean monitoring and mining changes in sea level. landslide hazard detection. 54 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

6.5 Norwegian participation in Galileo, the Galileo and EGNOS governing bodies to EGNOS and Copernicus improve system performance in the High North. The Norwegian Storting approved Norway’s Norway’s participation in Galileo, EGNOS and participation in Galileo and EGNOS in 2009. The Copernicus has evolved gradually over the past two European legislative acts that regulate the sat- two decades. In all three programmes, Norway ellite navigation programmes were incorporated was an early participant in developing technology into the EEA agreement by decision of the EEA and instruments, first through ESA and later Joint Committee on 8 July 2009. The acts incorpo- through a cooperative arrangement with the EU rated were: under the European Economic Area agreement. – Regulation (EC) No. 683/2008 of the Parlia- Our participation has given us the opportunity to ment and the Council of 9 July 2008 on the furt- influence the programmes, so that they serve her implementation of the European satellite Norwegian interests to the degree possible. Nor- navigation programmes (EGNOS and Galileo) wegian companies and public authorities have – Council Regulation (EC) No. 1321/2004 of 12 gained early insight into the programmes, July 2004 on the establishment of structures for strengthening Norwegian players in the market the management of the European satellite radio- for services and products that rely on satellite nav- navigation programmes igation and earth observation. Early insight has also made it possible for Norwegian public offi- Respectively, the acts deal with the construction cials to identify ways the programmes could help of Galileo and the programme’s funding through improve public services. To date, Norwegian 2013 (No. 683/2008) and with the establishment space-related industrial concerns have won con- of the GNSS Supervisory Authority, or GSA (No. tracts in the programmes totalling about 130 mil- 1321/2004). The act concerning the GSA was later lion euros. replaced by a new one, which was itself incorpo- rated into the EEA agreement by decision of the EEA Joint Committee on 15 June 2012: Galileo and EGNOS – Regulation (EC) No. 912/2010 of the European Norway has been involved in constructing the Parliament and of the Council of 22 September Galileo and EGNOS satellite navigation systems 2010 setting up the European GNSS Agency, since work on the programmes began in the repealing Council regulation (EC) No. 1321/ 1990s, first through ESA and later in cooperation 2004 and amending Regulation (EC) No. 683/ with the EU. Norway has contributed 13 million 2008 euros to the programmes through ESA and 72 million euros through the EU. Through its partici- Apart from the acts incorporated into the EEA pation, Norway is helping to construct pan-Euro- agreement, a bilateral agreement has been signed pean infrastructure that will be of great benefit to with regard to aspects of Galileo and EGNOS that Norway. Active Norwegian participation in the do not naturally belong in the EEA agreement, satellite navigation programmes makes it easier including security, ground facilities, protection of for Norwegian authorities, industries and enter- frequencies and export control. Exchange of clas- prises to influence matters affecting coverage sified information related to the programmes area, access and use of services. Norway’s partici- takes place in the context of Norway’s security pation also helps the country’s industries, compa- agreement with the EU. Norway has committed nies and organisations gain access to the technol- itself financially to participate in Galileo and ogy and expertise they need to exploit the oppor- EGNOS until the end of 2013. Further Norwegian tunities that Galileo provides. This is fertile participation in the programmes, beyond 2013, ground for developing competitive services and would require a decision by the Storting. technologies with commercial promise that can be Norway’s participation in Galileo and EGNOS of particular support to users in Norwegian indus- permits the country to sit in the programmes’ gov- try and public administration. An important erning bodies. As with other EU programmes, aspect of participation in the Galileo and EGNOS Norway lacks voting power, but our right to speak programmes is the opportunity it represents to out and participate in other ways gives us consid- make sure those systems perform capably in Nor- erable influence in the specialised bodies that gov- wegian areas, particularly in the far north. Nor- ern Galileo and EGNOS. way has worked actively – and successfully – in Taking part in Galileo and EGNOS has resulted in contracts for Norwegian industry and 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 55 Between heaven and earth: Norwegian space policy for business and public benefit the creation of satellite navigation infrastructure on Norwegian territory. Since 2003, Norwegian Copernicus companies have won Galileo- and EGNOS-related Norway helped develop the technology that contracts valued at some 79 million euros. Three underpinned the establishment of Copernicus, Galileo sensor stations have been established on first through ESA and the EU’s Seventh Frame- Norwegian territory – at Svalbard, Jan Mayen work Programme for Research (FP7), and since Island and the Troll research station in Antarctica. 2012 through the EEA agreement. The total Nor- There is also an uplink station on Svalbard for nav- wegian financial contribution to Copernicus igational data, and a receiving station is being through 2013 amounts to approximately NOK 227 planned for the search-and-rescue service that million. In part because of Norway’s early involve- underpins COSPAS-SARSAT. Additionally, ment in Copernicus, Norwegian authorities, EGNOS reference stations have been established industries and businesses today are able to influ- at Svalbard, Jan Mayen Island, Kirkenes, Tromsø ence the programme. It is important for Norway and Trondheim to ensure good coverage across to ensure that Copernicus performs well over Norwegian areas. The stations are run by Kongs- areas of Norwegian interest. Good performance, berg Satellite Services and the Norwegian Map- from Norway’s perspective, refers to good geo- ping Authority. Galileo ground stations and graphic coverage of areas administered by Nor- EGNOS reference stations are part of the ground way as well as the fine-tuning of satellites to gener- segment that monitors overall system perfor- ate the earth-observation data that is most rele- mance and generates navigational data. The per- vant to this country. Norway is one of the nations formance of EGNOS is steadily improving in assumed to benefit most from the data and ser- northern latitudes. It is hoped that EGNOS will vices Copernicus will offer. Not only do satellites become a useful tool for pilots approaching air- in polar orbit provide coverage that’s twice as ports in all of mainland Norway. good in our areas than further south, but we have vast expanses of sea and land to cover. The pro- gramme is expected to be an important data

Figure 6.3 EGNOS will contribute to safer airport flight approaches Photo: Markus Mainka/123RF 56 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit source for many Norwegian users, including 6.6 What does the EU’s expanded role national initiatives such as BarentsWatch. Partici- mean for Norway? pation will also result in a level playing field for Norwegian companies competing to supply the The EU’s activity in space has major conse- programme. Norwegian players are expected to quences for ESA and for the countries of Europe. be able to provide things like ground station ser- In the course of a few years, ESA has gone from vices and the development of services using earth being the undisputed forum for pan-European observation data. Norwegian participation is also space activity to being challenged by an EU with considered a contribution, in solidarity with other rising ambitions. The EU has made i t possible to nations, to the development of global earth obser- execute large infrastructure programmes that vation capacity. ESA would never have been able to manage alone; Norway formally became a participant in yet the EU also represents a challenge to ESA’s GMES (as it was then called) in 2012. The EU’s role as an independent organisation. In countries regulation of GMES was incorporated into the with membership in both the EU and ESA, gov- EEA agreement by decision of the EEA Joint ernmental focus on space has broadened as space- Committee on 13 July 2012, and was approved by related issues rise to higher levels of political dis- the Norwegian Government in the Council of cussion in a greater number of policy areas. This State on 12 October 2012. The regulation incorpo- gives space activities greater political weight, but rated was: it complicates national and European decision- – Regulation (EC) No. 911/2010 of the European making processes. Norway, one of only two ESA Parliament and of the Council of 22 September members not in the EU (Switzerland is the other), 2010 on the European Earth monitoring pro- is in a unique position. On the one hand, the EU’s gramme (GMES) and its initial operations strengthened role has led to the development of (2011 to 2013) infrastructure from which Norway will benefit greatly. Galileo and Copernicus will help to solve This regulation is to pave the way for a full-scale major Norwegian challenges, many of them operational programme starting in 2014. Nor- related to the High North and to Norwegian cli- way’s approval of the regulation gives us the right, mate and environmental policy. On the other but not the obligation, to participate in Copernicus hand, influence is shifting from an organisation in after 2014. Norwegian participation in Copernicus which Norway is a full member to an organisation beyond 2013 would require action by the Storting. that obliges us to try to be heard while standing Participation in Copernicus has resulted in outside. As the EU expands its role, Norway’s contracts to Norwegian industry and opportuni- space policy naturally takes on aspects of the ties to influence the services to be provided. So country’s overall European policy. far, participation in the programme has returned The relationship between the EU and ESA to contracts worth 51.5 million euros. In the initial date has been characterised by a divvying of phase of operations, Kongsberg Satellite Services tasks, with ESA conducting research and develop- has been awarded a framework contract valued at ment and the EU funding and carrying out the NOK 200 million to provide ground station ser- construction and operation of satellite-based sys- vices in Svalbard for five years. Kongsberg Space- tems. This arrangement has benefitted both par- tec, based in Tromsø, has supplied advanced sig- ties and expanded Europe’s capacity to develop nal processing equipment to ground stations serv- space infrastructure serving public interests ing the Sentinel satellites. Other Norwegian com- across national boundaries. It is unclear how the panies, too, have contributed to several of the sat- relationship between the two organisations will ellites. Within the EU’s FP7 programme, develop in the years to come. The European Com- meanwhile, a number of Norwegian research mission has expressed increasing resistance to institutions have had a hand in specifying services the idea of ESA issuing guidelines that may have related to marine environments and atmospheric bearing on the EU’s own political priorities. On services. The Norwegian Meteorological Institute several occasions, leading EU countries have has been a central Norwegian participant on the called for stronger integration between the two service side with regard to both sea and atmos- organisations – for example, by incorporating ESA phere, ensuring that important public administra- into the EU as an agency comparable to the Euro- tion interests are safeguarded. pean Defence Agency. Other important EU mem- bers have aligned against such a proposal. Which- ever structure emerges, many of the most impor- 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 57 Between heaven and earth: Norwegian space policy for business and public benefit tant strategic decisions about European space active participation in EU space programmes activity in the years ahead will be taken in the EU, affords plenty of scope to advance Norwegian by virtue of the organisation’s size, its breadth of interests. Norway has earned a reputation as a interests and its legitimacy in the eyes of member competent and constructive partner, and the countries. European Commission has repeatedly empha- In the years ahead, Norway’s effect on the sised that the EU desires Norwegian participation developing relationship between the EU and ESA in such programmes. Even without voting rights, will be limited. However, there is much we can do our participation in the governing bodies and to safeguard Norwegian interests, regardless of working groups of Galileo and Copernicus has how European space activities are organised. proved to be a powerful means of addressing spe- First, we can contribute constructively to ESA’s cial Norwegian interests, and of obtaining early further development, so the agency can continue, insight into programme capabilities and specifica- to the extent possible, to be a strong and inde- tions. We have also seen that we can be excluded, pendent a partner for the EU. If despite that effort without much ado, from important decision-mak- ESA seems likely to face assimilation into the EU ing processes when we are not sufficiently com- system, it can be surmised that Norway would mitted to active participation. In 2011, when seek to negotiate an agreement on participation. A Copernicus became an EU programme after hav- strong Norwegian role in ESA in the meantime ing been under ESA control, Norway lost the will strengthen our ability to negotiate an advanta- right, previously granted through ESA member- geous agreement. Second, it will be important to ship, to take part in meetings of the programme’s position Norway in near relation to EU space pro- governing bodies. Only in 2012, when Norway grammes and to take a proactive approach to signed a special agreement with the EU to partici- developments in EU space policy. In our dealings pate in Copernicus, did we regain our right to join with Galileo and Copernicus, we have seen that the meetings. 58 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

7 Norway’s space-related ground infrastructure

Many earth observation satellites move in vices to research institutes and satellite operators. polar orbit, circling the earth 14 times per day. Space-oriented infrastructure has been estab- Our northern location allows us to receive the lished in Svalbard, on Jan Mayen Island, in main- data from most of these satellites. Norway’s posi- land Norway and in Queen Maud Land in Antarc- tion – along with our tradition of successfully tica. Some of the infrastructure is uplink and building and operating infrastructure in the Arctic downlink equipment that represents a market in and Antarctic – has given rise to a cluster of com- itself. Other infrastructure is part of the value petitive companies offering ground-based ser- chain in Norwegian services. Space-related infra-

Box 7.1 SvalSat SvalSat is the largest ground station on earth for ellite organisation EUMETSAT and the US control of polar-orbiting satellites and data National Oceanic and Atmospheric Administra- reception from them. Many of the satellites pro- tion (NOAA) are heavy users of SvalSat’s down- vide meteorological data essential to accurate link services. weather forecasting. The European weather sat-

Figure 7.1 SvalSat Photo: KSAT 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 59 Between heaven and earth: Norwegian space policy for business and public benefit structure attracts other activities and enterprises lite Suomi NPP, which was launched in the to the polar regions while simultaneously contrib- autumn of 2011. SvalSat will also be crucial to the uting importantly to Norwegian interests in these Landsat 8 environmental monitoring satellite and areas. The placement of this ground infrastruc- the IRIS solar research satellite, both owned by ture also represents a significant component of the United States and launched in 2013. Norway’s international space collaboration. National and international organisations alike take part in space-related research in Svalbard. Notable Norwegian infrastructure includes the Svalbard Norwegian Mapping Authority’s geodetic obser- Svalbard is the only easily accessible place in the vatory at Ny-Ålesund, the Kjell Henriksen Obser- world for communicating with polar-orbiting satel- vatory outside Longyearbyen (for observation of lites on every one of their daily orbits. The hub of the aurora borealis and space weather phenom- space activities in Svalbard is the Svalbard Satel- ena) and the Norwegian portion of the interna- lite Station (SvalSat), owned and operated by tional EISCAT Svalbard Radar. The German and KSAT. SvalSat is the world’s largest ground sta- French space agencies, DLR and CNES, have tion for communication with satellites in polar positioned some infrastructure in Svalbard for orbit. Japanese research and earth observation improved tracking of their satellites’ orbits. satellites are among those whose data are down- Collaboration with the US organisations NASA linked here. Of the many antennas at SvalSat, and NOAA prompted the installation of fibre-optic some are owned by KSAT and others by major cable to Svalbard in 2004. The subsea fibre-optic customers such as NASA, the European Union connection between Svalbard and mainland Nor- (Galileo and EGNOS) and EUMETSAT. SvalSat is way is owned by Norwegian Space Centre Proper- the main ground station for the US weather satel- ties. The cable must be regarded as a critical part

Box 7.2 Jan Mayen Island Stations on Norwegian territory, including the Island, are required for high-quality system per- EGNOS monitoring station on Jan Mayen formance across Norway’s expansive areas.

Figure 7.2 EGNOS-stasjonen på Jan Mayen Photo: Kjell Arne Aarmo 60 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit of Norway’s space infrastructure; it also provides Pursuant to Norway’s Telecommunications Act important services to the population of Svalbard. and § 3 and § 4 of its Svalbard Act, the Norwegian In 2010, the Government commissioned Uninett regulation on establishing, operating and using to install a fibre-optic cable between Ny-Ålesund satellite earth stations contains special provisions and Longyearbyen. This cable is scheduled to be for Svalbard. To ensure that earth-station opera- ready in 2013–2014. The increase in space-based tions are consistent with the Svalbard Treaty’s activity in Svalbard is drawing increased attention prohibition against using the archipelago for «war- from scientific communities elsewhere in Norway like purposes», Article 3 of the regulation estab- and around the world. That affects other activities lishes rules for the authorisation and use of earth in Svalbard, including businesses in other sectors. stations in Svalbard. As stated in Report No. 22 (2008–2009) to the In addition, a separate permit application must Storting: Svalbard, the Government aims to invest be made to the Norwegian Post and Telecommu- in space activities as part of Svalbard’s future live- nications Authority for each satellite that is to lihood. make use of ground station services in Svalbard. The Svalbard Treaty of 9 February 1920 estab- The Governor of Svalbard is responsible for the lishes certain regulations in Svalbard that may oversight of ground station activities, and con- have implications for space-related infrastructure. ducts regular inspections.

Box 7.3 Troll The Norwegian Galileo sensor stations at Troll, precise orbits for Galileo satellites and synchro- Jan Mayen Island and Svalbard are important nises their clocks. elements of the ground segment that calculates

Figure 7.3 Troll, in Queen Maud Land Photo: Kjell Arne Aarmo 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 61 Between heaven and earth: Norwegian space policy for business and public benefit

global network of ground stations operated by Jan Mayen Island KSAT. TrollSat has a variety of customers, and is Jan Mayen Island is the site of an EGNOS refer- especially important for establishing quick con- ence station. Recently, a Galileo sensor station tact with new satellites in the critical phase after was established there as well. This equipment is launch. Because of TrollSat’s large bandwidth owned by the EU and is essential to the naviga- needs, its communications infrastructure is suffi- tional performance of the two systems. The main cient to serve the other activities at the research technical purpose of the Galileo sensor station is station. The launch of Telenor’s Thor 7 satellite in to help make corrections to the orbits or timing of 2014 will significantly improve communications individual Galileo satellites, while the EGNOS sta- options to and from TrollSat. This will permit tion helps expand the EGNOS coverage area growth in the number of missions and thus beyond mainland Norway. strengthen TrollSat’s long-term role. There are also some Norwegian space- The Antarctic Treaty of 1 December 1959 weather instruments on Jan Mayen Island, and establishes certain activity restrictions on the con- the use of the island for this purpose is likely to tinent that may have implications for space activi- increase. Jan Mayen Island has no fibre-optic ties. The treaty mentions specifically that Antarc- cable connection, so communication to and from tica is to be used only for peaceful purposes, and is the island is entirely satellite-dependent. to be a demilitarized area. As a consequence of the treaty’s environmental protocol, which came into force in 1998, Norway is under strict obliga- Antarctica tion to take measures to protect the environment The Troll research station in Queen Maud Land is in the course of its activities in the Antarctic. All operated by the Norwegian Polar Institute, and is states operating in Antarctica are subject to the staffed the year around. Troll is also the site of a right of other states to inspect their installations satellite station – TrollSat – that is part of the and bases.

Figure 7.4 Nittedal Teleport earth station Photo: Telenor Satellite Broadcasting (TSBc) 62 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

of scientific balloons. The rocket range is situated Mainland Norway by the ocean, and rockets can be made to splash On the mainland there are a number of different down in remote, unoccupied waters. In the moun- types of ground infrastructure related to con- tains above the rocket range is ALOMAR, which trolling and receiving signals from satellites, sen- conducts research on atmospheric conditions and sors and smaller stations as well as basic research assists with the launch of sounding rockets. (ARR infrastructure related to space. is more fully discussed in Chapter 8.) Notable The Tromsø Satellite Station is owned and infrastructure elsewhere on the Norwegian main- operated by KSAT. Its antenna array serves satel- land includes reference stations in Kirkenes, lite owners from many countries and organisa- Tromsø and Trondheim to serve the EU’s tions on a commercial basis. (KSAT is discussed EGNOS system. The Norwegian Coastal Adminis- more fully in Chapter 8.) Nittedal Teleport is Tel- tration has 12 stations along the Norwegian coast enor’s main control station for communication sat- for differential GPS enhancement. ellites in the Thor family and for communication The Tromsø Geophysical Observatory (TGO) channels that Telenor controls on other satellites. operates a magnetometer network consisting of The Eik earth station in Rogaland is operated by 14 instruments positioned around Norway, includ- Astrium Services, of France, and relays broad- ing Svalbard. Magnetometers monitor geomagne- band traffic to and from maritime parties. The tism by measuring the strength and direction of Norwegian Meteorological Institute in Oslo has the earth’s magnetic field around the instruments. some antennas of its own for direct access to data The measurement data have many different appli- from European and US weather satellites. cations, from earthquake research to aurora fore- The Andøya Rocket Range (ARR) is a centre casting and navigation for subsea oil drilling. for the launch of research rockets and the release 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 63 Between heaven and earth: Norwegian space policy for business and public benefit

8 Space activity in Norwegian public administration

In Norway as in the rest of the world, public-sec- companies whose space activities account for a tor needs and public-sector undertakings have minor part of their total business. That is the case dominated space activity, and continue to do so. with Kongsberg Gruppen, Telenor and Nammo. Many space-technology advances have been trig- The Ministry of Trade and Industry has overall gered by the service requirements of public responsibility for Norwegian space policy, but the authorities. In Norway, public-sector demand has implications of space infrastructure are so broad centred on the need for effective services for the as to involve other ministries and subordinate oil and gas industry, the shipping industry and the agencies as well. The Government therefore population of Svalbard. As space-based services established an interdepartmental coordinating have developed, government agencies have been committee in connection with Norway’s agree- able to employ them to address immediate needs, ment to join the Galileo programme. or to modernise their methods and services. Public authorities play a key role in facilitating the development of national infrastructure. The 8.1 Norwegian Space Centre space sector is no exception. Getting satellite sys- tems to address Norwegian areas of interest has The Norwegian Space Centre (NSC) was set up as become as important to government as to indus- a public foundation in 1987. At first the founda- try. And space activities require large invest- tion’s main duties lay in administering Norway’s ments. Public authorities therefore play a pivotal ESA membership and operating the Andøya role in bringing forth the robust space-based infra- Rocket Range, but gradually its responsibilities structure that key industries require. Government were expanded. In 1995, Norwegian Space Centre can help facilitate the development of systems Properties was spun off from the foundation as a whose performance and coverage properties company wholly owned by the space centre. Nor- meet public and private user needs. wegian Space Centre Properties was created to In 1987, Norway felt motivated to join ESA in own and operate infrastructure in Tromsø and order to fulfil the country’s goal of strengthening eventually in Svalbard. The company operated its technology, industrial capability and user ser- ground stations in Tromsø and Svalbard until vices. Norwegian officials understood, however, 2001, when Kongsberg Satellite Services (KSAT) that the benefits of membership could only be har- took them over. Ownership in KSAT was divided vested if strategic actions were taken at the between Norwegian Space Centre Properties (50 national level. That is why the Government of that per cent) and Kongsberg Defence & Aerospace time established the Norwegian Space Centre. AS (50 per cent). In 2005, when the Norwegian Over the past 25 years, Norwegian space activ- Space Centre was converted from a foundation ities have come far. Along the way, changes have into a government agency, the foundation’s own- been made to keep in step with national and inter- ership stakes in the Andøya Rocket Range (ARR) national developments. At times, rapid processes and Norwegian Space Centre Properties were have had to be initiated to seize opportunities as transferred to the state. they arose. Today the Norwegian Space Centre (NSC) is The Norwegian state currently has administra- an agency with a certain degree of autonomy tive responsibility or ownership stakes in a num- within the Ministry of Trade and Industry. Under ber of space organisations and enterprises. The the current arrangement, the Storting each year foremost of these are the Norwegian Space Cen- authorises the NSC to manage the state’s owner- tre, an agency, and the following companies: the ship interests on behalf of the Ministry of Trade Andøya Rocket Range AS, Norwegian Space Cen- and Industry. That includes the authority to buy tre Properties AS and Kongsberg Satellite Ser- or sell shares in the companies, and to allocate vices. The state also has ownership interests in 64 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

EGNOS and Galileo, in the initial operations Box 8.1 National development phase of the EU earth observation programme support funding Copernicus, and in several bilateral agreements. In addition, the NSC administers Norwegian Norway’s national development support fund- national development support funding, assists ing programme (Nasjonale følgemidler) is Norwegian industrial actors and prepares a designed in part to strengthen Norwegian national long-term plan for space activity. actors so they will be better positioned to pro- The Norwegian Space Centre has 30 perma- vide products and services to national and nent employees and eight temporary ones, and it international space programmes; the pro- administers the state’s ownership of the Andøya gramme is also intended to address specific Rocket Range and Norwegian Space Centre Prop- national needs that international forums may erties. The Ministry of Trade and Industry fail to prioritise when the interests of other appoints the agency’s board of five members and participants diverge from ours. The EEA has two alternates. Board representatives are approved a set of rules to manage the alloca- appointed on the basis of their qualifications, and tion of such development support funds. In have traditionally come from government agen- recent years, some 30 actors benefitted from cies, industry, institutes and R & D organisations. the funding programme. In 2013, the funds NSC budgets are separate line items in the amounted NOK 35.4 million. national budget. The budgeting system permits the agency to receive other income than what is provided through the national budget. dividends or sales income to space-related pur- poses. The Norwegian Space Centre is designed to 8.2 State companies active in space be the state’s agency for strategy, coordination and implementation, making efficient use of space The Andøya Rocket Range, Norwegian Space for the benefit of Norwegian society. The NSC Centre Properties and KSAT are the space-ori- promotes and pursues Norwegian interests in ented Norwegian companies in which the state ESA, in the EU satellite navigation programmes has both ownership and administrative responsi-

Figure 8.1 Andøya Photo: ESA/J. Makinen 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 65 Between heaven and earth: Norwegian space policy for business and public benefit

Box 8.2 NAROM and «Spaceship Aurora» NAROM (the National Centre for Space-Related ment efforts, and seeks to encourage children Education) is a national centre and teaching lab- and young people to pursue their interest in sci- oratory for all educational levels, established in ence and technology. 2000. NAROM is uniquely situated – in co-loca- The Andøya Rocket Range is also in the pro- tion with the Andøya Rocket Range – and makes cess of establishing an activity centre called active use of Norwegian Space Centre Spaceship Aurora (Romskipet Aurora in Norwe- resources. Operations are funded through basic gian). This centre will be tied to ongoing space annual appropriations from the Ministry of Edu- activities, and will provide an exciting science- cation and Research, as well as through the sale based experience to visitors from Norway and of services to educational institutions and oth- abroad. The centre will consist of buildings total- ers. The national objective for space-related edu- ling some 1,000 m², including a visitor centre, cation is to develop instructional programmes, café, exhibition space, auditoriums and offices. courses and other training activities on selected Interactive activities will be offered. Target topics. Service offerings range from elementary groups include tourists and other visitors as well level to university level, and include online as schools and other educational institutions. learning resources, educational activities, semi- For several years, one of the ARR’s missions has nars and conferences on space technology, been to boost public interest in science, technol- space physics, the atmosphere and the environ- ogy and space exploration, and each year it has ment. These are developed and carried out in assembled pupils, students and teachers from close cooperation with other educational institu- around the world for exciting activities at tions; NAROM does not award degrees. Andøya. Spaceship Aurora will be a valuable NAROM contributes to space-industry recruit- addition.

bility. Public involvement and investment have Ålesund and two wholly owned subsidiaries: the helped turn the companies into substantial space- Andøya Test Centre (ATC) and the Norwegian sector players. The space-related infrastructure Centre for Space-Related Education (NAROM). they control makes Norway an attractive partner The ARR also runs the Arctic Lidar Observatory for international collaboration. for Middle Atmospheric Research (ALOMAR). The ATC offers testing of rocket technology for the defence industry and civilian space activi- 8.2.1 Andøya Rocket Range AS (ARR) ties, and it buys most of its services from the ARR. The ARR is a centre that provides research sup- The Norwegian Armed Forces use the ATC to port to scientists studying atmospheric phenom- test anti-ship missiles and has made investments ena, primarily through the launch of rockets and to optimise conditions there. NAROM (see Box research balloons. The centre is organised as a 8.2) educates teachers, university-level students limited company owned by the Ministry of Trade and school pupils. Half of its budget is funded by a and Industry (90 per cent) and Kongsberg Ministry of Education and Research grant. The Defence & Aerospace (10 per cent). Andøya-based ALOMAR examines our atmos- As a coastal island far from major settlements, phere using a laser technology called lidar («light Andøya’s location is a competitive advantage radar») and a variety of other measuring instru- exploited not only for research rocket launching, ments. The ability to combine measurements but increasingly for other activities that require taken at ALOMAR with those obtained by sound- lots of space, such as the testing of missiles and ing rockets is a competitive advantage for ARR. unmanned aerial vehicles (UAVs). The SvalRak rocket range in Ny-Ålesund is used With 65 employees, the ARR is one of the lead- to launch sounding rockets. SvalRak is not perma- ing high-technology centres in northern Norway. nently staffed, but is staffed by ARR personnel as It started in 1962 as an operational arm of the Nor- needed. wegian Defence Research Establishment, and ARR operations are supported in part by a became a limited company in 1997. In addition to multinational agreement, the Esrange Andøya the launch facility at Andøya, ARR’s assets include Special Project (EASP), with participation by Swe- the Svalbard Rocket Range (SvalRak) at Ny- den, Norway, Germany, France and Switzerland. 66 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

In 2012, revenues from this agreement accounted for approximately 45 per cent of sales. The share coming from international government sources has declined steadily the past 10 years. The EASP agreement is a cooperative arrange- ment for use of the rocket ranges at Kiruna, Swe- den, and Andøya. Norway joined the pact in its current form in 1990, but had been active since 1973 through an association accord with Sweden. The current agreement is automatically extended for five years at a time if none of the parties wish to change it. The present agreement covers the period from 2011 to 2015. It ensures the continu- ance of basic infrastructure and permits access to the facilities by user countries at somewhat reduced rates. Germany is the country that makes the most use of the ARR through the EASP agreement. A large multi-year German-Norwegian rocket cam- paign called ECOMA, designed to measure mete- oric dust in the atmosphere, was recently com- pleted. Specific German research plans suggest a continued use of sounding rockets at Andøya. Other countries, too, have ties to the ARR. The United States has been and remains Norway’s Figure 8.2 Thor 7 most important partner in space. This collabora- Illustration: Telenor Satellite Broadcasting (TSBc) tion is based on a 2006 bilateral agreement that began as an agreement on shared activity involv- ing sounding rockets at Andøya. A number of More than 70 people work at Andenes (the countries, including some that are not EASP par- main settlement on the island of Andøya) for the ticipants, maintain scientific equipment at or near ARR, ATC and NAROM. The focus on high tech- the ARR. nology and international relations makes this an In 2012, Norway’s funding contribution to the attractive, income-generating element of the ARR under the EASP agreement came to about regional economy, drawing a great many visiting 2.3 million euros, while the combined contribution scientists, teachers and students. of the other countries was about 1.3 million euros. In addition come direct mission revenues from users of the rocket range (universities and 8.2.2 Norwegian Space Centre Properties AS research institutes). Rocket missions are sporadic The purpose of Norwegian Space Centre Proper- by nature, with their duration depending on both ties is to help develop space-related infrastructure. the atmospheric conditions and the technical chal- Its activities are viewed in the context of the Nor- lenges that arise. The EASP agreement gives the wegian Space Centre (NSC) itself. The state, rep- ARR a smoother revenue stream and a longer resented by the Ministry of Trade and Industry, planning horizon than dependence on mission owns 100 per cent of the share capital of Norwe- revenues alone would have provided. gian Space Centre Properties. The NSC, a govern- Other sources of operational support include ment agency, administers the state’s ownership customer payments and subsidies from the interests, as approved in the Government resolu- national budget for education activities. The ARR tion of 12 December 2003. On behalf of the state, has received a total of NOK 17.6 million in funding the NSC appoints the board members of Norwe- from the Ministry of Trade and Industry to gian Space Centre Properties. The company upgrade its infrastructure. This support is pro- receives no state subsidies. vided by way of earmarked funds from the minis- Norwegian Space Centre Properties’ focus on try within the national development support pro- infrastructure development has been important to gramme administered by the Norwegian Space the High North. The company owns 50 per cent of Centre. KSAT, which operates satellite stations in Sval- 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 67 Between heaven and earth: Norwegian space policy for business and public benefit bard, Tromsø and Antarctica. The company also The capacity is subleased to KSAT, the main user, owns the fibre-optic cable linking Harstad on the but the entire Troll research station will enjoy the Norwegian mainland to Longyearbyen, Svalbard. benefits when the connection is opened 2014. The fibre-optic cable was laid to serve the Sval- bard Satellite Station and permit its further devel- opment. 8.2.3 Kongsberg Satellite Services (KSAT) The installation of a fibre-optic connection Kongsberg Defence & Aerospace owns the between Svalbard and the mainland in 2002 illus- remaining 50 per cent in KSAT, which was trated how ownership in Norwegian Space Centre founded in 2001. Prior to that, several foreign Properties could be used strategically to achieve companies were involved in operating the satellite greater benefits than would otherwise be possi- stations in Tromsø and Svalbard. The results were ble. The most significant part of the funding for poor in several ways, and financial performance at the cable was obtained with help from loans origi- times was highly negative. Through acquisitions nating in a long-term contract between the NSC and mergers, the Norwegian Space Centre helped on the one hand and NASA and NOAA of the sort out the ownership situation, concluding with United States on the other. Through agreements the current two-way shared ownership of the with Telenor and Uninett, Norwegian Space Cen- ground station operations. tre Properties has ensured that the fibre-optic Norwegian Space Centre Properties’ owner- cable capacity also benefits other parts of the Sval- ship stake in KSAT helps secure state control of bard community. The cable connection was estab- strategic infrastructure. Much of the company’s lished to serve KSAT’s satellite station, but it has business is tied to the infrastructure in Svalbard also contributed to a major improvement in com- and Antarctica. Even so, KSAT is a commercial munications options for Longyearbyen. company that has developed very positively, with Norwegian Space Centre Properties has also 2012 sales in excess of NOK 400 million. KSAT leased capacity from Telenor for broadband com- today runs the largest ground stations in the munications to Antarctica via the Thor 7 satellite. world for satellites in polar orbit, and posts solid

Figure 8.3 KSAT receives satellite data in Tromsø Photo: KSAT 68 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit earnings from the services it provides to public makes it necessary to clarify the state’s different and private international clients. roles. KSAT currently has ground stations in Sval- Today, the ARR, Norwegian Space Centre bard (SvalSat), Tromsø and Grimstad and at Nor- Properties and KSAT all manage valuable assets – way’s Troll base (TrollSat) in Antarctica, but also and they do so commercially. Nonetheless there in Dubai, South Africa, Singapore and Mauritius. are differences in the operations, objectives and In addition, KSAT has signed agreements with growth potential of the three companies: suppliers for access to data from stations in South – The ARR’s main activities are tied to the infra- America, North America and Australia. The com- structure used in space-related research and pany is in a phase of significant expansion. education. Although operating results have In recent years KSAT has also turned deci- been satisfactory in recent years, subsidies sively towards the provision of satellite-based from the national budget have been necessary earth observation services. KSAT is a global to fund substantial investments and modernisa- leader in oil-spill monitoring. The company also tion. provides services related to ship tracking, ice and – Norwegian Space Centre Properties is a signif- snow mapping and navigation in icy waters. In icant owner and developer of strategic Norwe- 2009, 22 per cent of revenues stemmed from earth gian space infrastructure, and stands out more observation services. clearly as a sectoral policy instrument. Its 2010 agreement with Telenor to lease Thor 7 satel- lite capacity for broadband communication 8.2.4 Opportunities and challenges in state with the Troll station in Antarctica came administration and ownership roughly to NOK 100 million. When, in addition, By helping facilitate the construction of national one considers the company’s ownership stake space infrastructure, or by supporting the emer- in KSAT, its fibre-optic cable to Svalbard and its gence of new technologies and services that meet other High North infrastructure, Norwegian both public and private user needs, the state can Space Centre Properties gives the impression play a key role in developing Norway’s space sec- of a robust, dynamic company. The company tor. The challenges – and opportunities – consist receives no state subsidies. in organising the state’s administrative and owner- – KSAT has undergone strong commercial ship roles so as to help achieve the objectives of development since its inception. The company Norwegian space policy in the best possible man- has solid earnings from the sale of services, ner, in accordance with applicable laws and regu- and 30 per cent of profits are paid as dividends lations. to the two owners, Norwegian Space Centre The Andøya Rocket Range, Norwegian Space Properties and Kongsberg Gruppen. The Centre Properties and KSAT are companies in majority of KSAT activities are nonetheless which the Norwegian state has administrative and related to the operation of the vital infrastruc- ownership roles. Their operations have grown as ture in Svalbard and Antarctica. a consequence of substantial public investment and effort over several decades, reflecting Nor- The current structures through which the state way’s top priorities in space. The companies were exercises administrative responsibility and owner- established as important sectoral policy tools, and ship at the Andøya Rocket Range, Norwegian have contributed to Norway’s position as an Space Centre Properties and KSAT have led to attractive partner for national and international concerns over the state’s different roles as owner space-related organisations. and grant administrator in the space field. Such The establishment of the ARR and Norwegian concerns become more urgent as the companies’ Space Centre Properties as corporations has market strength increases. The scope and organi- helped clarify management and responsibility sation of state ownership must accommodate both issues, and paved the way for efficient operations industrial growth on a commercial basis and the and service sales in the marketplace. KSAT has continued pursuit of policy goals. built a solid commercial foundation for its activi- The Government will therefore undertake a ties while operating strategically important infra- detailed assessment of the state’s interests in the structure in Svalbard and Queen Maud Land in ownership of ARR, Norwegian Space Centre Prop- Antarctica. The combination of public ownership, erties and KSAT, and of the significance these strategic interests and commercial considerations companies have today as sectoral policy tools. At the same time, it is important to recognise that 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 69 Between heaven and earth: Norwegian space policy for business and public benefit these companies manage valuable assets. KSAT is The Ministry of Trade and Industry is Norway’s distinguished by its strong commercial base, national space ministry. It participates in ESA’s which may have significance for company’s own- ministerial-level council and in the ESA/EU Space ership structure. The Government will also Council. The NSC coordinates national space pro- explore the degree to which state ownership grammes on behalf of the ministry. Appropria- affects the ability of the companies to fulfil their tions to ESA and the NSC come entirely from the international partnership roles, and it will exam- budget of the Ministry of Trade and Industry, ine what correlations exist between the compa- which is also responsible for the lion’s share of nies’ business activities and the contractual obliga- public funding for space infrastructure. The minis- tions of Norwegian authorities and the Norwegian try is also in charge of Norway’s participation in Space Centre. the Galileo and Copernicus programmes, with the Consideration will also be given to the best NSC serving as secretariat. way of organising state ownership in the compa- Since Norway became a member of ESA in nies to ensure proper corporate governance with 1987, the Ministry of Trade and Industry has been regard to objectivity and the problematic issue of the Norwegian state’s main agent in space activi- public subsidies, and to ensure that the compa- ties, both nationally and internationally. From the nies effectively fulfil their sectoral policy roles. start, its tasks focused largely on developing That would also be in line with recommendations industrial capability and skills. Eventually, as made in the PwC report. The Office of the Auditor actual services came into being, greater focus was General of Norway has raised questions about the given to developing solutions for public-sector administration of the Andøya Rocket Range and use. As new applications are demonstrated, it has Norwegian Space Centre Properties by the Minis- been left to the individual ministries and agencies try of Trade and Industry and the Norwegian to determine whether and how to leverage the Space Centre, most recently in Document 1 applications to improve their own operations. (2012–2013). As a specially empowered agency The Ministry of Education and Research con- within the Ministry of Trade and Industry, the tributes to space research through the Research NSC is to be the state’s organ for the strategy, Council of Norway. When Norway joined ESA in coordination and practise of space activity. Under 1987, the Research Council’s predecessor was current arrangements, the NSC is authorised assigned the responsibility of funding basic each year by the Storting to manage the state’s research that ESA made p ossible, including ownership interests. This authorisation includes, instrument building and participation by Norwe- as previously mentioned, the power to buy or sell gian research groups. shares in the companies and to expend dividend The Research Council also coordinates Nor- or sales income for space-related purposes. The wegian participation in EISCAT and the Nordic Ministry of Trade and Industry and the NSC Optical Telescope. The Ministry of Education and maintain close dialogue on management issues, Research pays Norway’s dues in EUMETSAT, and managers of the NSC also hold positions in where the Meteorological Institute represents the Andøya Rocket Range, Norwegian Space Cen- Norway with support from the Norwegian Space tre Properties and their subsidiaries. These Centre. The ministry demonstrates its commit- organisational relationships will be subject to ment to space-related learning through its super- renewed evaluation. vision of universities, colleges and research insti- tutions. The ministry funds aspects of the Norwe- gian Centre for Space-Related Education 8.3 Ministries and agencies (NAROM). Basic funding for universities and col- leges comprises its most significant contribution Space activities affect many ministries and agen- to space-related research and teaching. cies, each of which is responsible for user per- The Ministry of Fisheries and Coastal Affairs is spectives in a particular sector or operational responsible for the coordination of civilian radio sphere. Many Norwegian agencies and centres of navigation policy, a field that includes satellite- expertise cooperate with the NSC on development based navigation. The Norwegian Coastal Admin- projects to identify potential benefits from space- istration monitors ship traffic and oil spills by sat- based services, including the particular ways that ellite. It is the main user of the Norwegian satellite such services might help each agency or centre to that monitors ship traffic at sea. It is also responsi- perform its duties more efficiently. ble for the BarentsWatch project. The Directorate of Fisheries and the Institute of Marine Research 70 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit use satellite-derived information for research, closer supervision and more efficient round-ups at monitoring, resource management and planning. season’s end. Positioning services are also used The Ministry of Defence contributes to space when carrying out agricultural mapping and mon- research and earth observation through the Nor- itoring programmes. Agriculture-related earth wegian Defence Research Establishment (Norwe- observation research has led to operative map- gian acronym: FFI). The Norwegian Armed ping systems for forests and other wilderness Forces, including the Coast Guard, use informa- resources. tion gathered from earth observation, communi- The Ministry of the Environment represents cations and navigation satellites. Their satellite Norway in some of the governing bodies of the data requirements are expected to become so EU’s Copernicus earth observation programme. extensive in the years ahead that they plan to The Norwegian Environment Agency, the Direc- acquire their own satellite capacity. The Norwe- torate for Cultural Heritage, the Norwegian Polar gian National Security Authority contributes to Institute and the Norwegian Mapping Authority security programmes associated with the Galileo all use satellite-based earth observation and/or project and illuminates the importance of space navigation services. Through the independent infrastructure as an aspect of our nation’s public Norwegian Institute for Air Research, greenhouse security. Through the Globus 2 radar at Vardø, the gases in the atmosphere are quantified. Environ- Armed Forces help in the monitoring of space mental officials use space-derived information in debris. The Ministry of Defence administers an their reporting to international environmental agreement with the United States on access to the monitoring programmes. The ministry supports GPS system’s military element. the use of satellite data for monitoring tropical for- The Ministry of Justice and Public Security has ests. both direct and indirect use for satellite services The Ministry of Transport and Communicati- because of its responsibility for civil protection ons is responsible for traffic flow and safety issues and crisis management. Norway’s rescue coordi- throughout the transport sector. The sector’s use nation centres use space services in connection of satellite-based navigation services is growing. with rescue operations, and the ministry partici- Major public users are Avinor, the Civil Aviation pates in the international COSPAS-SARSAT Authority, the Directorate of Public Roads and the search-and-rescue collaboration. During rescue Norwegian National Rail Administration. Through actions in Svalbard, the authorities increasingly the Post and Telecommunications Authority, the employ all three forms of satellite assistance: com- ministry is responsible for radio frequency man- munications, navigation and earth observation. agement, including the frequencies used by satel- Satellite-based infrastructure is also used by the lites, and for issuing permits to build and operate Norwegian Directorate for Civil Protection and earth stations. The Governor of Svalbard enforces the Norwegian National Security Authority. The the specific provisions of Article 3 in Norway’s police are a pertinent consumer of new space ser- earth station regulation. vices like Galileo’s Public Regulated Service. The Ministry of Foreign Affairs contribute to The Ministry of Agriculture and Food is respon- research activity through project funding to the sible for agricultural businesses, which use satel- Research Council of Norway. It is the ministry’s lite-based navigation and positioning services for responsibility to make sure that Norway’s obliga- a variety of purposes. In the forestry industry, sat- tions under international law are addressed as ellite-based positioning services are used space activities are pursued. The Ministry of For- throughout the value chain. Livestock and rein- eign Affairs is party to a number of international deer, meanwhile, can graze more safely in unculti- initiatives involving space; these focus on topics vated areas if fitted with radio beacons traceable such as crisis preparedness, maritime search-and- by navigation satellite. Such monitoring has posi- rescue and forest protection. tive animal-welfare consequences by permitting 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 71 Between heaven and earth: Norwegian space policy for business and public benefit

Table 8.1 Ministries and agencies, and the satellite services they use

Ministry Agency Relevant services, areas of responsibility Ministry of Trade and Norwegian Space Centre ESA, EU space projects, earth Industry observation, satellite communica- tions, satellite navigations, indus- try Geological Survey of Norway Mapping, landslide monitoring Innovation Norway/Industrial Technology transfer, general busi- Development Corp. of Norway ness support and regional devel- (SIVA) opment Norwegian Maritime Authority Sea safety – navigation. communi- cations, monitoring Norwegian Metrology Service Calibration, precise time measure- ment Ministry of Finance Norwegian Customs and Excise Transactions, monitoring, road pricing Ministry of Fisheries and Directorate of Fisheries/Institute Ocean research, monitoring, Coastal Affairs of Marine Research resource mapping Norwegian Coastal Navigation, safety, oil-spill moni- Administration toring, DGPS Ministry of Government Agency for Public Management Digital services Administration, Reform and and eGovernment Church Affairs Ministry of Defence Norwegian Coast Guard Fisheries supervision, environ- mental protection, search-and-res- cue and customs control Norwegian Defence Logistics Procurement, operations Organisation Norwegian Defence Research Technology, methodology devel- Establishment opment National Security Authority Preventive security, preparedness Norwegian Armed Forces Military operations Ministry of Health and Norwegian Directorate Welfare services technology Care Services of Health Ministry of Justice and Police Communications, navigation Public Security Governor of Svalbard Supervision of Svalbard earth sta- tions Joint Rescue Coordination Search-and-rescue, COSPAS-SAR- Centres SAT Norwegian Directorate for Civil Public security, emergency pre- Protection paredness, hazardous materials Ministry of Local Government Counties and municipalities Land-use planning, emergency and Regional Development preparedness 72 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

Table 8.1 Ministries and agencies, and the satellite services they use

Ministry Agency Relevant services, areas of responsibility Ministry of Education and Research Council of Norway Space-related research Research Universities and colleges Space-related research, instruc- tion National Centre for Space-Related Education, training Education (NAROM) Norwegian Meteorological Weather forecasting, EUMET- Institute SAT contact Ministry of Agriculture and Norwegian Forest and Monitoring, mapping, tracking, Food Landscape Institute resource mapping Ministry of the Environment Norwegian Mapping Authority Mapping, Norway Digital, geod- esy, SATREF Norwegian Environment Climate, environment, pollution, Agency resource management Norwegian Polar Institute Environmental research, monitor- ing, climate, mapping Directorate for Cultural Monitoring of historical sites Heritage Ministry of Petroleum and Norwegian Petroleum Monitoring, resource mapping Energy Directorate Norwegian Water Resources Hydrology, floods and landslides, and Energy Directorate mapping services, electric power supply Ministry of Transport and National Rail Administration Infrastructure construction and Communications operation, maintenance, traffic control Accident Investigation Board Transport accidents Norway Civil Aviation Authority Air safety Norwegian Public Roads Traffic safety, navigation, infra- Administration structure Norwegian Post and Frequency management Telecommunications Authority Avinor Aircraft safety, airport operations, SCAT-1 Ministry of Foreign Affairs Foreign service missions, Crisis management, communica- NORAD tions, earth observation, naviga- tion, tropical forestry project

8.4 Inter-ministerial coordinating tory authority resides in Proposition No. 54 to the committee for space activities Storting (2008–2009). But as the number of other Norwegian space Norway’s inter-ministerial coordinating commit- issues proliferated – including matters related to tee for Galileo (Norwegian acronym: IKU) was the AIS satellites, the Andøya Rocket Range, Bar- created to coordinate matters relating to Nor- entsWatch, Copernicus, Radarsat, research pro- way’s Galileo participation. The committee’s statu- jects and the EU’s space strategy – it was felt that 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 73 Between heaven and earth: Norwegian space policy for business and public benefit the committee should handle them as well. All mittee meets two to three times per year, adjust- these issues have interested parties in several ing the tempo as required by events. It is headed ministries. Coordination among ministries helps by the Ministry of Trade and Industry, with the maximise the benefit from the Norwegian state’s Norwegian Space Centre acting as secretariat. investments in space. Other participants are the Ministry of Foreign In 2011, therefore, the committee became the Affairs, the Ministry of Defence, the Ministry of inter-ministerial coordinating committee for space the Environment, the Ministry of Fisheries and activities (in Norwegian: Det interdepartementale Coastal Affairs, the Ministry of Justice and Public koordineringsutvalget for romvirksomhet). The Security, the Ministry of Education and Research, committee’s job is to coordinate the handling of the Ministry of Agriculture and Food, the Minis- space-related issues by relevant ministries and to try of Petroleum and Energy and the National be an arena for information exchange. The com- Security Authority. 74 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

9 The Government’s commitment to space

The Government is committed to space activity, 9.1 Profitable companies, growth and and will work to ensure that it continues to serve as employment a tool for Norwegian interests. Four strategic goals have been set: profitable companies, growth and The Government’s industrial policy is intended to employment; meeting important needs of society help create an environment in which companies and user groups; greater return on international succeed and have the ability to grow. The authori- space collaboration; and high-quality national ties seek to provide the most stable and predicta- administration of Norwegian space activity. ble framework conditions possible; it is the com- To accomplish the four goals, the Government panies themselves that must seize opportunities. has prepared a number of priorities. What follows The Norwegian space sector is no exception to are the top priorities associated with each goal. this general perspective.

Box 9.1 Measures trigger value creation in Norwegian industry, The Government will: provided the approach is consistent with – Work to ensure that public investment in choosing the most cost-effective solutions space activity strengthens value creation and – Use policy and funding instruments strategi- business development cally to promote service development and – Work to enhance market access, technologi- commercial success in business segments cal development and system insight as means with significant growth potential and compar- to stimulate Norwegian business growth and ative advantages development – Help to ensure that Norwegian businesses – Help ensure that Norway benefits as much as and other users of earth observation data possible from its European space collabora- have the access to data they need, by: tion – helping to develop a commercialisation – Foster conditions under which Norwegian strategy for satellite data industrial participation in ESA programmes – considering Norwegian participation in contributes to greater strength in other tech- international satellite collaboration to nology areas secure access to useful data – Work to ensure that Norwegian industry – studying the need for coordinated takes advantage of the opportunities inherent national procurement of satellite data in ESA’s principle of guaranteed industrial – assessing the costs and benefits of an return, and that Norwegian industry is suffi- open data policy for raw data owned by ciently competitive to obtain contracts in EU the state space programmes – Help to ensure that relevant industrial actors – Help to ensure that Norwegian downstream are informed about opportunities in the Nor- companies gain more benefit from participa- wegian space sector tion in ESA programmes – Consider, in kind with other industries, the – Help to ensure that downstream companies potential for an Arena project in space-related enhance their competitive strength and research and business development, and in export potential due course a Norwegian Centres of Exper- – Help to ensure that space-related invest- tise programme. ments addressing national needs also help to 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 75 Between heaven and earth: Norwegian space policy for business and public benefit

Through the basic mechanisms of technology the ability or interest to develop systems that suc- development, market access and system insight, cessfully address them. Having influence over the Norwegian investments in space activities have development of essential infrastructure will be of helped to promote domestic economic growth and significance to public security and crisis manage- development. International collaboration in con- ment. Norway’s public officials and research and cert with complementary national framework con- technology communities must therefore possess ditions has enabled those three mechanisms to enough insight and competence to identify prom- boost profitability, growth and employment in ising solutions, to be competent parties in pro- Norwegian companies. curement transactions and international collabora- The Government therefore intends to carry tion, and to develop and implement national solu- out the following measures (see Box 9.1). tions where appropriate. The Government therefore intends to carry out the following measures (see Box 9.2). 9.2 Meeting important needs of society and user groups 9.3 Greater return on international These days, space-based applications reach into space collaboration many areas of everyday Norwegian life. Space operations have become essential to operating our International collaboration has always been – and society safety and efficiently and to pursuing key always will be – the backbone of Norwegian space policy objectives in the High North and in climate efforts. ESA membership has served Norway well and environmental policy. in several ways. It has helped the country to Increasingly, space-based infrastructure has develop a competitive space industry, to accumu- strategic value by virtue of its importance to the late expertise within the Norwegian state and exercise of governmental authority and the provi- business community, and to internationalise and sion of critical services. Protecting Norway’s strengthen Norwegian research programmes. interests requires a certain degree of national con- In the future, we must also be good at promot- trol and independent capability, even when ser- ing our interests in forums other than ESA. vices can be purchased commercially. Norway has Increasingly, important issues are settled at the special needs in the High North, and there is no EU. As a result, Norwegian space policy has taken guarantee that actors outside of Norway will have on aspects of the country’s European policy. Nor-

Box 9.2 Measures – Extend the space research programme at the The Government will: Research Council of Norway – Work to ensure that space activities are able – Work to achieve good, robust satellite naviga- to help meet important social and user needs tion coverage in the High North and the Arc- in a cost-effective manner tic – Actively employ supplementary national pro- – Review how best to address Norwegian grammes to address Norwegian user needs requirements for satellite communications in – Help to provide an operating framework in the High North which Norwegian technology companies and – Work to exploit the potential of satellite other centres of expertise can develop and observation to contribute to climate and envi- implement space-based systems that meet ronmental policies Norwegian user needs – Continue efforts to deal with vulnerabilities – Work to ensure that Norwegian space associated with the use of satellite systems research and expertise maintain a high inter- – Actively participate in efforts to establish national level international guidelines for the reduction of – Help to ensure that Norwegian space activi- space debris ties get the most out of the expertise available – Work to make satellite-based services availa- in Norwegian research and educational insti- ble as a key element of transport policy. tutions 76 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

important challenges faced by Norway. An active Norwegian approach to EU policy-making in Box 9.3 Measures space is therefore essential for a variety of rea- The Government will: sons, including: to secure influence over infra- structure important to Norway; to safeguard the – Continue Norwegian ESA participation as a interests of Norwegian industry, researchers and key tool for promoting Norwegian space user groups; and to position Norway for a future interests. In 2012, a commitment of 144.4 in which the EU increasingly sets the political million euros has been declared towards agenda for European space activity. Norway’s continued participation in The Government therefore intends to carry optional ESA programmes out the following measures (see Box 9.3). – Work to secure Norwegian interests in EU space programmes – Work to ensure that Copernicus and Gali- leo perform capably in Norwegian areas of 9.4 High-quality national interest administration of space activity – Ensure that Norwegian authorities have In order for space activity to best serve Norwegian sufficient ability to pursue Norwegian interests, expertise is required both within the interests in international space forums Norwegian state and in Norwegian technology cir- – Use bilateral agreements where appropri- cles and user groups. Norwegian authorities must ate to safeguard and pursue Norwegian be able to identify needs, assess system proposals interests and ensure effective implementation regardless of – Continue Norway’s commitment to inter- whether the services or infrastructure in question national collaboration in space-related are to be developed nationally, developed in collab- research oration with other nations or purchased from com- mercial providers. To ensure that good solutions are developed and implemented in a sound man- wegian interests increasingly have to be promoted ner, and to safeguard Norwegian interests in inter- from the outside, in forums where we are not a national collaborations, we must draw together the member, or where our right to participate is lim- public-sector expertise available in administration, ited. Galileo and Copernicus will help resolve very technology and international relations.

Box 9.4 Measures – Facilitate continued Norwegian space activ- The Government will: ity in Antarctica in accordance with the Ant- – Strengthen collaboration and coordination arctic Treaty between relevant ministries – Ensure effective organisation of space activi- – Use the Norwegian Space Centre as the ties in the Norwegian public sector, with state’s organ for strategy, coordination and measures that include: practise to ensure that space is exploited effi- – undertaking a detailed assessment of the ciently for the benefit of Norwegian society state’s interests in the ownership of ARR, – Strengthen the Norwegian Space Centre’s Norwegian Space Centre Properties and capacity for analysis and consultation KSAT, and of the significance those com- – Facilitate the use of space-related ground panies have as sectoral policy instru- infrastructure on the Norwegian mainland as ments appropriate – working to achieve as much transparency – Continue to exploit Svalbard’s geographical as possible regarding subsidy pro- advantages with regard to space activity in grammes and awards in the Norwegian accordance with existing laws and regula- space sector tions – assessing how governance dialogue with – Facilitate the further utilisation of Jan Mayen the Norwegian Space Centre can be Island for space-related activity improved 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 77 Between heaven and earth: Norwegian space policy for business and public benefit

Since the 1960s, the geographical advantages Norwegian space sector. The Andøya Rocket of Norwegian-hosted ground infrastructure have Range AS, Norwegian Space Centre Properties been exploited to develop space activities now AS and Kongsberg Satellite Services AS have regarded as world class in certain sector niches. been valuable tools in developing key aspects of Among these are the balloon releases and sound- Norway’s space effort. This effort has resulted in ing-rocket launches at Andøya and the downlink a foundation for commercial growth in the compa- services for polar-orbit satellites at Svalbard, Jan nies, which increasingly derive their revenues Mayen Island and Antarctica. As the future from the international market. Due to the combi- unfolds, Norway’s geographical location will nation of public ownership, strategic interests and remain an advantage for space-related ground commercial factors, a clarification of the state’s infrastructure. different roles is called for. The state currently has administrative and The Government therefore intends to carry ownership responsibility for several actors in the out the following measures (see Box 9.4). 78 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

10 Financial and administrative implications

With this white paper, the Government seeks to Norwegian Ministry of Trade and Industry anchor within the Storting the Government’s broad policy outlines for Norwegian space pro- recommends: grammes. Its content is based on approved budg- That the recommendation from the Ministry ets and plans, and entails no additional financial of Trade and Industry dated 26 April 2013 regard- commitment. For administrative purposes, notice ing «Between heaven and earth: Norwegian space is given that the Government will seek to deter- activities for business and public benefit», be sub- mine, by evaluation, the most appropriate organi- mitted to the Storting. sational structure for public-sector space pro- grammes, and will take the necessary steps to realise that structure. 2012–2013 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 79 Between heaven and earth: Norwegian space policy for business and public benefit

Appendix 1

Abbreviations

AFC ESA Administrative and Finance Committee AIS Automatic Identification System ALOMAR Arctic Lidar Observatory for Middle Atmospheric Research ARR Andøya Rocket Range ATC Andøya Test Center AS CERN European Organisation for Nuclear Research Copernicus EU earth observation programme, previously (until 2012) called GMES COSPAS-SARSAT International search-and-rescue satellite system EASP Esrange Andøya Special Project EDA European Defence Agency EGNOS European Geostationary Navigation Overlay Service EISCAT European Incoherent Scatter Scientific Association ELDO European Launcher Development Organisation ENVISAT Environmental satellite ESA European Space Agency ESRO European Space Research Organisation (forerunner of ESA) EUMETSAT European Organisation for the Exploitation of Meteorological Satellites FFI (Forsvarets Norwegian Defence Research Establishment Forskningsinstitutt) GEO Group on Earth Observations GEO FCT Group on Earth Observations Forest Carbon Tracking GEOSS Global Earth Observation System of Systems GFOI Global Forest Initiative GLONASS Global Navigation Satellite System GMES Global Monitoring for Environment and Security GNSS Global Navigation Satellite System GOCE Gravity Field and Steady-State Ocean Circulation Explorer GPS Global Positioning System GSA European GNSS Agency GSTP ESA General Support and Technical Programme IMO International Maritime Organisation INMARSAT International Maritime Satellite Organisation INTELSAT International Telecommunications Satellite Organisation IPC ESA Industrial Policy Committee IPCC Intergovernmental Panel on Climate Change IRC ESA International Relations Committee ISS International Space Station ITAR International Traffic in Arms Regulations ITS Intelligent transport systems and services ITU International Telecommunication Union 80 Meld. St. 32 (2012–2013) Report to the Storting (White Paper) 2012–2013 Between heaven and earth: Norwegian space policy for business and public benefit

KSAT Kongsberg Satellite Services NAROM (Nasjonalt Norwegian Centre for Space-Related Education senter for romrelatert undervisning) NASA National Aeronautics and Space Administration NNI Net national income NOAA National Oceanic and Atmospheric Administration NSC Norwegian Space Centre NSCP Norwegian Space Centre Properties PRS Public Regulated Service, Galileo PwC PricewaterhouseCoopers R & D Research and development SAR Search and rescue SCAT-1 Special Category 1 SPC ESA Science Programme Committee SvalSat Svalbard Satellite Station TRANSIT US satellite navigation system in 1960s TSS Tromsø Satellite Station UNCOPUOS United Nations Committee on the Peaceful Uses of Outer Space UNDP United Nations Development Programme UNESCO United Nations Educational, Scientific and Cultural Organisation UNITAR United Nations Institute for Training and Research UNOSAT UNITAR’s Operational Satellite Applications Programme Meld. St. 32 (2012–2013) Report to the Storting (White Paper)

Published by: Norwegian Ministry of Trade and Industry Between heaven and earth: Norwegian space policy Internet address: www.government.no for business and public benefit Cover photo: Norsk Romsenter/FFI/Seatex

Printed by: 07 Aurskog AS 12/2013

E JØM RKE IL T M

2 4 9 1 7 3 Trykksak