SPACE: PUNCHING ABOVE OUR WEIGHT

Tom Flanagan

Canada’s space program has flourished for half a century through close co- operation with NASA, with the Canadian government making strategic investments in technology as part of its pay-to-play model. The model remains valid for the future, but the situation is also becoming more complex due to President Barack Obama’s new space policy framework, which will put more emphasis on commercialization and globalization. While continuing to invest in carefully selected technological niches, Canada will have to learn to play with a wider range of private- and public-sector partners.

Le programme spatial du Canada a connu en un demi-siècle une solide expansion grâce à une étroite collaboration avec la NASA et à des investissements stratégiques en technologie. Une stratégie qui reste valable, bien que la situation se soit complexifiée avec l’adoption par Barack Obama d’une nouvelle politique cadre de l’espace axée sur la commercialisation et la mondialisation. Tout en continuant d’investir dans des créneaux technologiques bien choisis, Ottawa devra donc composer avec un éventail élargi de partenaires publics et privés.

n July 2009, and Julie Payette spent 16 ongoing relationship with NASA, in which Canada became days together with other crew members on board the both a paying and a playing partner. Indeed, paying and I International Space Station (ISS). The presence of two playing are inextricably linked. By investing in space tech- Canadian astronauts in space at the same time symbolizes nology in collaboration with NASA, Canada has exemplified how successful our space program has been for a nation of the principle of leverage, earning a far bigger role in space our size. That impression was powerfully reinforced by the exploration than it ever could have afforded on its own. recent annuncement that Canadian astronaut Chris Developments have proliferated in multiple directions. Hadfield will captain the ISS for six months in 2010. The has been succeeded by Canadarm2 as well as In space as in the G8, Canada punches above its weight, (the Dexterous Manipulator, or “space hand”) on the playing in the same league with much bigger and more ISS, making Canada a world leader in space robotics. Similar powerful nations such as the United States, Russia, the technology has been employed on the Mars rovers for explo- United Kingdom, France and Japan. In that sense, Canada’s ration of the red planet. And the benefits of robotics are not space program is an important adjunct to our traditional confined to space; the same Canadian technology is now foreign policy goal of being not just a middle power, but an being used for brain surgery at Foothills Hospital in Calgary. influential middle power with close ties to great powers. The robotic arm is superior to the human hand for delicate Our efforts in space go back half a century. In 1962, surgery because it is not subject to muscular tremors. Canada became the third country, following the USSR and Another area of Canadian leadership is remote sensing the United States, to orbit a satellite — Alouette-1 Launched technology. RADARSAT-1 (1995) and RADARSAT-2 (2007) for us by the United States National Aeronautics and Space scan the Earth 24 hours a day with microwaves rather than Administration (NASA) and still in orbit, Alouette-1 func- optical-wavelength radiation, thus providing a view unob- tioned for 10 years studying the ionosphere, thus helping structed by weather, cloud formations or darkness of night. pave the way for many additional satellites. Such remote sensing has applications in many directions, In July 1975, Canada’s National Research Council (NRC) such as monitoring all three of Canada’s coastlines for intrud- signed an agreement with NASA to develop a robotic arm for ers, weather forecasting, observation of environmental its nascent space shuttle program. Thus was born the iconic change and exploration for subsurface mineral deposits. Canadarm, first launched into orbit in 1981. But the Canada could hardly pursue many of its key goals in nation- Canadarm was not a one-off achievement. It signalled an al security and public policy without the support of satellite

POLICY OPTIONS 51 OCTOBER 2010 Tom Flanagan

remote sensing. And then there are all avoidance; protection of critical old technology. We do not know yet the commercial applications of satellite space systems and supporting infra- whether Congress will accept all of the communications technology that have structures, with special attention to President’s plans; there has been stiff become so much a part of modern life, the critical interdependence of space opposition from existing interests in such as bank machines, cellphones, and information systems; and major space states such as Florida, satellite television and the Global strengthening measures to mitigate Texas, Alabama, California and Positioning System. orbital debris. Colorado. At the time of writing, Yes, Canada has had a great run in G Increase assurance and resilience debate about specifics was ongoing, space, but we are now coming to a cross- of mission-essential functions but the broad policy-level framework initiated by Obama is clear- The benefits of robotics are not confined to space; the same ly leading to change. Canadian technology is now being used for brain surgery at In any case, President Obama’s initiative brings Foothills Hospital in Calgary. The robotic arm is superior to Canada to a crossroads in the human hand for delicate surgery because it is not subject space policy. In the past, we to muscular tremors. have prospered in close partnership with NASA and roads. In less than a year, the final space enabled by commercial, civil, scien- the United States, but the future is shuttle is scheduled to blast off for the tific, and national security space- bound to be different. This will mean International Space Station. The ISS, craft and supporting infrastructure change, and the loss of some roles that together with Canadarm2 and Dextre, against disruption, degradation, and we have filled in the past, but also will remain in orbit until 2020, but it destruction, whether from environ- enormous opportunities for future will no longer be the focal point that it mental, mechanical, electronic, or development. once was, and the shuttle’s Canadarm hostile causes. will soon become a museum piece. G Pursue human and robotic ini- s the orbital space around Earth On June 28, 2010, American tiatives to develop innovative tech- A is commercialized, Canada will President Barack Obama released his nologies, foster new industries, have to start dealing with more pri- new National Space Policy. Beyond a strengthen international partner- vate sector partners in addition to modest funding increase of $6 billion ships, inspire our Nation and the governments. Also, the public sector over five years, Obama’s National world, increase humanity’s under- will be more globalized. Emerging Space Policy represents a distinctly standing of the Earth, enhance sci- economies such as China, India and new vision, as shown in its stated entific discovery, and explore our Brazil are joining the former leaders, goals, which emphasize commercial- solar system and the universe the United States and Russia, as major ization and globalization: beyond. players. Still other advanced nations, G Energize competitive domes- G Improve space-based Earth and such as France and Israel, are compet- tic industries to participate in solar observation capabilities ing vigorously to sell their own tech- global markets and advance the needed to conduct science, forecast nologies, often in areas where Canada development of: satellite manu- terrestrial and near-Earth space has led in the past, such as robotics. facturing; satellite-based servic- weather, monitor climate and global As we continue to work with NASA es; space launch; terrestrial change, manage natural resources, and the United States, we will also applications; and increased and support disaster response and have to learn to deal with all these entrepreneurship. recovery. new partners. G Expand international coopera- President Obama wants the The new situation will be challeng- tion on mutually beneficial space agency to get out of the business of ing, but also favourable to Canada if activities to: broaden and extend the transporting astronauts back and forth properly addressed. Our space program benefits of space; further the peace- to the ISS, hoping that the private sec- has excelled by concentrating on nich- ful use of space; and enhance collec- tor can take over this function. He es, especially in developing infrastruc- tion and partnership in sharing of wants NASA to concentrate on devel- ture, such as the Canadarm and Dextre, space-derived information. oping technologies to propel robotic, that can be adapted to many missions. G Strengthen stability in space and eventually manned, spacecraft to We will need to build on this experience through: domestic and international the Moon, Mars, asteroids and even to extend our range of cooperation with measures to promote safe and beyond. He also cancelled current an ever-widening range of private and responsible operations in space; plans for the Constellation mission to public partners. And this new world of improved information collection and return to the Moon, saying that it was space policy will put demands on the sharing for space object collision hopelessly over budget and relied on Canadian government.

52 OPTIONS POLITIQUES OCTOBRE 2010 Space: Punching above our weight

NASA Photo astronaut Julie Payette and pilot Doug Hurley work controls on the aft flight deck of the space shuttle Endeavour in July 2009.

In the last 15 years, the policy situ- out into our planetary system? Will be taken for granted; new competitors ation in Canada could best be described we get in on the ground level as we are lining up to replace us, should as marking time. Recent funding for the did 35 years ago when the NRC under- Canada not participate or fail to make Canadian Space Agency (CSA) has been took to develop the first Canadarm for a timely decision to participate. And at static at about $300 million a year. NASA? Will we attempt to maintain the same time, we will have to reach Although the CSA has funded Earth the leading role in satellite communi- out to new partners as investment in observation satellites (RADARSAT-1, cations, remote sensing and robotics space becomes both more commercial- RADARSAT-2 and the soon-to-be-built that has generated a Canadian space ized and more globalized. RADARSAT Constellation mission), the industry with almost 7,000 highly Canada’s overall fiscal position is overall policy framework has been paid workers distributed widely across sound, indeed better than that of weak; indeed, there has been no long- the country? any other country in the G8. term space plan since 1994. The CSA Parliamentary Budget Officer Kevin went through a period of instability ost crucially, will Canada con- Page is now projecting a return to with the departure of as M tinue with the pay-to-play balanced budgets by 2014-15, a year president in 2006, though the appoint- model that has given us a role in space earlier than the Finance Minister had ment of former astronaut Steve far beyond what we could have predicted in his March 2010 budget. MacLean as the new president in 2008 achieved on our own? Canada wisely The Conference Board of Canada has improved that situation. concentrated its focus in certain areas, says that a balanced budget may The CSA, however, is not an thus achieving the technological pre- even be possible by 2013-14. Against autonomous actor; it is dependent eminence that made us indispensable this fiscal backdrop, it seems that upon government appropriations and to many NASA missions and generated Canada will be well able to continue government approval of its plans. It is all sorts of collateral benefits, such as making the investments in space the government, therefore, that will putting eight Canadian astronauts technology and exploration that have to grapple with the questions into space. Canada can continue to have helped make our space program posed by the winding down of the ISS reap the benefits of participating in a success story. era and by President Obama’s new the enormous American space pro- space plan. Does the government fore- gram, but not for free; we will have to Tom Flanagan is professor of political see a role for Canada in Obama’s new go on making strategic, well-calibrated science at the and vision, emphasizing space exploration investments proportional to our size. a strategic adviser to MacDonald, beyond low-level orbits and further Our partnership with NASA should not Dettwiler and Associates Ltd.

POLICY OPTIONS 53 OCTOBER 2010