UK Government Review of Commercial Spaceplane Certification and Operations Technical Report
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UK Government Review of commercial spaceplane certification and operations Technical report July 2014 CAP 1189 © Civil Aviation Authority 2014 All rights reserved. Copies of this publication may be reproduced for personal use, or for use within a company or organisation, but may not otherwise be reproduced for publication. To use or reference CAA publications for any other purpose, for example within training material for students, please contact the CAA at the address below for formal agreement. Enquiries regarding the content of this publication should be addressed to: Civil Aviation Authority, Aviation House, Gatwick Airport South, West Sussex, RH6 0YR. The latest version of this document is available in electronic format at www.caa.co.uk/publications, where you may also register for e-mail notification of amendments. CAP 1189 Contents Contents Chapter 1 Introduction 6 Requirements of the Review 6 Output of the Review 7 Context of the Review 7 Review process 10 Chapter 2 Spaceplanes today and tomorrow 11 What is a spaceplane? 11 Main uses of spaceplanes 12 A short history of spaceplanes 13 Spaceplane designs 16 Meeting the mandate 28 Vertical launch vehicles 29 Chapter 3 Spaceplanes and commercial spaceflight: the opportunity for the UK 30 The UK space industry 30 Spaceplanes: a game-changing technology 32 The importance of a UK launch capability 34 Commercial launch markets 35 Wider benefits for the UK of commercial spaceplane operations 40 The case for investing in a spaceport 41 Securing the benefits of technology transfer 45 Recommendations 46 Chapter 4 Export controls 47 The importance of US spaceplane operators to the UK 47 Export controls 47 The implications of MTCR Category I classification 49 US export controls 50 How US export controls apply to the commercial space industry 52 The implications for spaceplane operations in the UK 54 The implications for the US spaceplane industry 55 Proposing a way forward 56 Recommendations 58 July 2014 Page 1 CAP 1189 Contents Chapter 5 Legal context and considerations for commercial spaceplane operations 59 The need for a legal framework 59 Space law 60 Aviation law 63 Applying Annex II to enable national regulation 65 Informed consent 68 Liability of the operator and Government 70 Spaceports 71 Recommendations 71 Appendix 5A Consumer protection from unfair trading 73 Appendix 5B Liability of aircraft under the Civil Aviation Act 1982 74 Chapter 6 Regulation of commercial spaceplane flight operations 75 Introduction 75 Defining regulation 76 Anticipated timeline for the development of commercial space operations in the UK 77 Current aviation and space regulatory frameworks and organisations 80 Procedures and requirements used by the FAA AST 91 What safety standards can be expected of commercial spaceplanes? 98 Towards a single integrated regulatory framework for commercial spaceplane operations 100 Recommended regulatory frameworks for different types of spaceplane operations 104 Recommendations 119 Chapter 7 Airworthiness 121 Introduction 121 Scope 121 Background to airworthiness requirements and the ICAO Annex 8 Certificate of Airworthiness 122 Legal context for airworthiness certification and flexibility in requirements 123 How airworthiness requirements have developed 124 Overview of current aircraft certification requirements 125 July 2014 Page 2 CAP 1189 Contents Overview of current space industry regulations 128 Challenges around airworthiness certification of spaceplanes 129 How airworthiness is assessed within the FAA AST system 133 The case for a safety management system approach to airworthiness assessment 136 Carriage of participants: informed consent 139 Airworthiness assessment for intercontinental very high speed travel 139 Assuring airworthiness in a maturing spaceplane industry: aligning with the commercial aircraft certification approach 141 Recommendations 142 Chapter 8 Airspace 143 Introduction 143 The principles of Airspace Management 144 Airspace usage in Europe 144 How airspace is divided 145 The case for using segregated airspace 146 Using existing areas of Special Use Airspace 150 Creating bespoke areas of SUA 153 The airspace change process 155 Managing airspace on a day-to-day basis 157 Analysis of airspace solutions for different types of space operation 158 Conclusion 165 Recommendations 165 Appendix 8A UK airspace classifications 167 Appendix 8B The SESAR programme 168 Chapter 9 Spaceports and Air Traffic Management 173 Overview 173 Characteristics of, and considerations for, a spaceport 176 Applying existing aerodrome regulation 178 Assessing the suitability of UK aerodromes 179 Infrastructure and facility requirements for spaceports 192 Meteorological considerations 194 Spaceport safety management 196 July 2014 Page 3 CAP 1189 Contents Health and safety considerations of spaceports 198 Identifying a vertical launch location 203 Air Traffic Control/Management considerations 203 Recommendations 206 Appendix 9A Regional meteorological information 208 Appendix 9B: Population density data 232 Chapter 10 Environmental impacts and considerations of spaceplane and spaceport operations 234 Environmental impact of aviation 234 Reducing emissions 235 Noise 237 Air quality 250 Conclusions 253 Recommendations 254 Chapter 11 Flight crew competence and licensing 255 Background: spaceflight crew training to date 255 The challenges of training for commercial spaceflight 255 Training of astronauts and cosmonauts by space agencies 256 Approaches to commercial spaceflight crew licensing and competence 258 The commercial spaceflight training industry today 260 Licensing requirements and training of aviation flight crew 262 Applying existing aviation flight crew regulations to spaceplane operations 263 Assessing the requirements for spaceplane flight crew licensing 267 Considering a short-term solution 269 Conclusion 271 Recommendations 271 Appendix 11A CFR 460 272 Appendix 11B Process for Annex III validation requirements of third country ICAO-compliant licences 274 July 2014 Page 4 CAP 1189 Contents Chapter 12 Medical requirements for spaceplane flight crew and participants 278 The challenges of defining medical requirements for spaceplane operations 278 Scope 279 Medical risks of spaceflight 280 Medical input to spaceplane design 283 Medical responsibilities of spaceplane operators 285 Medical requirements for flight crew 285 Medical requirements for spaceflight participants 293 Dealing with in-flight medical incidents 297 Radiation 299 Health surveillance 301 Health considerations at spaceports 302 Development of aviation and space medicine expertise 305 Medical research 307 Recommendations 309 Glossary 313 Acknowledgements 319 July 2014 Page 5 CAP 1189 Chapter 1: Introduction 1CHAPTER 1 Introduction In August 2012, the Government tasked the Civil Aviation Authority (CAA) under section 16 of the Civil Aviation Act 1982 to undertake a detailed review to understand better the operational requirements of the commercial spaceplane industry. This document is the full technical report of that Review. This chapter sets out the requirements of the Review, the context for it and the approach taken by the CAA. Requirements of the Review 1.1 In expectation of the advent of commercial space operations, in August 2012 the Department for Transport (DfT) requested, under section 16(1) of the Civil Aviation Act 1982,1 that the Civil Aviation Authority (CAA) undertake a detailed review to understand better the operational requirements of the commercial spaceplane and spaceport industry. 1.2 The findings of this Review should inform the aerospace and space industry and other key stakeholders about how the UK could accommodate and support future spaceplane operations, and pave the way for an appropriate regulatory framework that would allow this to happen. 1.3 The Review was specifically tasked with providing: a description and analysis of actual or anticipated key spaceplane operations and their requirements; an assessment of the potential for the growth of the spaceplane industry beyond sub-orbital space tourism and satellite launches; an analysis of the applicability of the procedures and requirements utilised by the US Federal Aviation Administration Office of Commercial Space Transportation (FAA AST) to the UK; recommendations for the appropriate regulatory framework for commercial spaceplane operations in the UK. This will include: spaceplane airworthiness; airspace requirements; Air Traffic Management; 1 Section 16(1) of the Civil Aviation Act 1982 states: ‘...it shall be the duty of the CAA to provide such assistance and advice as the Secretary of State may require it to provide for him or any other person in connection with any of the Secretary of State’s functions relating to civil aviation.’ www.legislation.gov.uk/ukpga/1982/16/section/16 (accessed 7 March 2014) July 2014 Page 6 CAP 1189 Chapter 1: Introduction flight operations; flight crew licensing; and flight crew and participant medical requirements; an analysis and recommendations regarding the appropriate regulatory requirements for spaceport operations; recommendations as to the most suitable locations for a spaceport in the UK; consideration of the likely environmental impacts peculiar to spaceplane and spaceport operations; and an assessment of the value to the UK of commercial spaceplanes and related technologies. Output of the Review 1.4 The formal output of the Review consists of two documents: this technical report, and a summary report including high-level recommendations. The two are being published