House of Commons Science and Technology Committee 2007: A Space Policy Seventh Report of Session 2006–07 Volume I Report, together with formal minutes Ordered by The House of Commons to be printed 4 July 2007 HC 66-I Published on 17 July 2007 by authority of the House of Commons London: The Stationery Office Limited £0.00 The Science and Technology Committee The Science and Technology Committee is appointed by the House of Commons to examine the expenditure, administration and policy of the Office of Science and Innovation and its associated public bodies. Current membership Mr Phil Willis MP (Liberal Democrat, Harrogate and Knaresborough)(Chairman) Adam Afriyie MP (Conservative, Windsor) Mrs Nadine Dorries MP (Conservative, Mid Bedfordshire) Mr Robert Flello MP (Labour, Stoke-on-Trent South) Linda Gilroy MP (Labour, Plymouth Sutton) Dr Evan Harris MP (Liberal Democrat, Oxford West & Abingdon) Dr Brian Iddon MP (Labour, Bolton South East) Chris Mole MP (Labour/Co-op, Ipswich) Dr Bob Spink MP (Conservative, Castle Point) Graham Stringer MP (Labour, Manchester, Blackley) Dr Desmond Turner MP (Labour, Brighton Kemptown) Previous Members of the Committee during the inquiry Mr Brooks Newmark MP (Conservative, Braintree) Powers The Committee is one of the departmental Select Committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No.152. These are available on the Internet via www.parliament.uk Publications The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the Internet at www.parliament.uk/s&tcom A list of Reports from the Committee in this Parliament is included at the back of this volume. Committee staff The current staff of the Committee are: Dr Lynn Gardner (Clerk); Dr Celia Blacklock (Second Clerk); Dr Chris Tyler (Committee Specialist); Ana Ferreira (Committee Assistant); Christine McGrane (Committee Secretary); and Jonathan Olivier Wright (Senior Office Clerk). Previous Committee staff during the inquiry Dr Anne Simpson (Committee Specialist); Dr Sarah Bunn (Committee Specialist); and Robert Long (Senior Office Clerk). Contacts All correspondence should be addressed to the Clerk of the Science and Technology Committee, Committee Office, 7 Millbank, London SW1P 3JA. The telephone number for general inquiries is: 020 7219 2793; the Committee’s e- mail address is: [email protected] 2007: A Space Policy 1 Contents Report Page Summary 5 1 Introduction 7 Our inquiry 7 Relevant recent reports 9 Structure of Report 10 Does space matter? 10 2 Civil space policy in the UK 12 Current UK space policy 12 UK investment in space 12 UK Space Strategy 2003-2006 and beyond 14 Space Strategy 2007-2010 17 Vision 18 Horizon scanning 18 Co-ordination with other strategies 19 Conclusion 19 3 The BNSC 21 The partnership model 22 A user-driven approach to space 24 A UK space agency? 25 Strengthening the partnership 28 BNSC’s profile & status 28 A leadership role for BNSC headquarters 30 Reporting 31 The co-ordination role of BNSC headquarters 32 Resources at BNSC headquarters 33 Relationship with partners 34 Cross-governmental links 36 Involving the space community 38 4 International relations 40 European Space Agency 40 Investment in ESA 41 Future developments 49 European Union and European Commission 51 Bilaterals 53 5 The UK space industry 56 Overview 56 Government support for the space industry 59 Industrial funding through ESA programmes 60 Support at a national level 62 2 2007: A Space Policy Alternative funding mechanisms 65 Targeted support for SMEs 66 Licensing & space monitoring 67 6 Space science and technology 70 Overview 70 Health of space science and technology in the UK 70 Skills 72 Creation of the Science and Technology Facilities Council 73 Current levels of investment 76 7 The ‘technology food chain’ 78 Technology development 78 Funding and the National Space Technology Programme 79 Knowledge transfer 83 The process 83 Facilitating knowledge transfer 84 Technology spin-off 85 8 Earth observation 88 Overview 88 Introduction to Earth observation programmes 89 Funding 90 Use of Earth observation data 92 Co-ordination of Earth observation activities in the UK 93 GMES 94 Funding 95 The lead BNSC partner 99 Applications 100 9 Satellite navigation and telecommunications 102 Satellite navigation 102 Galileo 102 Telecommunications 105 10 Exploration and launchers 108 Exploration 108 ESA’s Aurora programme 108 NASA’s Lunar Programme 109 The Global Space Exploration Strategy 110 Manned spaceflight 112 Arguments around manned spaceflight 112 Costs 114 Future options 116 Space medicine 117 Overview 117 History of the debate 118 Potential for widespread benefit 119 Funding 120 2007: A Space Policy 3 Space tourism 122 Overview 122 Environmental impact 123 Government support & regulation 124 Launchers 126 11 Education & outreach 129 Impact of space 129 Space in education 131 Current activities 131 Co-ordination 132 National Space Education Initiative 133 ESA’s ESERO project 134 Space education materials 135 Outreach 136 12 Conclusion 137 Conclusions and recommendations 138 Abbreviations used in this report 148 Formal minutes 151 Witnesses 152 List of written evidence 154 List of Reports from the Committee during the current Parliament 157 2007: A Space Policy 5 Summary Space is a highly significant area of science policy and it is necessary for the Government to take a strategic approach to space activities such as robotic exploration, satellite navigation and Earth observation. The forthcoming civil space strategy should inspire and motivate the UK space sector and emphasise the UK Government’s commitment to space. The strategy is an opportunity for the British National Space Centre to outline clearly its vision and ambition for space. We support the UK’s user-driven approach to space, which focuses on activities which will enhance scientific knowledge and bring benefits to the UK economy and society. There are problems with the current partnership arrangement but if existing levels of expenditure persist, the Government should not establish a space agency but should continue its current approach to space. The partnership should be strengthened by improving its profile, leadership, co-ordination and perhaps a change of name. We recommend that the wider space community be involved through a space forum and that the British National Space Centre Headquarters be provided with a small budget of its own. The space sector has great economic potential. The UK space industry is ambitious and focused. Despite its health state, the industry relied upon Government seedcorn funding. We recommend that the Government review its subscriptions to ESA programmes that support industry through seedcorn funding and establish mechanisms to increase support for SMEs. The space industry is high tech and requires highly skilled workers. We are concerned that there is a skills shortage in the space industry and a broad programme of incentives may be necessary to ensure a continued flow of people into the industry. The UK has world-leading space scientists and technologists. Space science both depends on technology and can drive technology developments. The current lack of a domestic programme to support early stage technology development places the UK at a disadvantage. The proposed National Space Technology Programme could fill this funding gap and we urge the Government to provide appropriate funding for this initiative. We welcome the creation of the Science and Technology Facilities Council and recommend that it ensure that there are no gaps in funding for research in space science. Approximately two thirds of UK investment in space is channelled through the European Space Agency. The UK’s involvement in ESA is worthwhile and the establishment of an ESA centre in the UK would be beneficial. ESA and the EU have been developing two projects: Global Monitoring for Environment and Security (GMES), and Galileo for satellite navigation. The Government has concerns that the GMES programme does not meet user objectives and policy requirements. If these concerns are addressed by the European Space Agency, the Government should consult industry regarding the level of subscription to the programme. There are currently problems in the Galileo programme and we urge the Government to work at a European level to clarify the situation. The UK does not fund launchers to any significant level or participate in human spaceflight programmes. Exploration is crucial to improve knowledge and understanding of space. The Government’s stance should be flexible enough to ensure that the best science 6 2007: A Space Policy can be funded, whether that be undertaken by manned or robotic exploration. Funding for space medicine should be provided by the Medical Research Council and not through a special funding stream. The space tourism industry should be supported by appropriate regulation and there should also be no “in principle” block on funding the development of launchers in future. We suspect that unfortunately the public is still unaware of the variety, breadth and importance that space activities play in their everyday lives. We welcome the plans for the establishment of a European Space Education Resource Office contact point in the UK and hope that this will be the start of a truly national education project. Although there are weaknesses in the organisational structures, funding and co-ordination of space activities, the sector is characterised by an enthusiasm for discovery, research and experimentation. A strong political lead is essential for the UK research and industrial sectors. There are opportunities for the UK to lead developments in areas such as exploration, satellite navigation and Earth observation. It is crucial that the Government increases funding for space programmes now in order to benefit future generations. 2007: A Space Policy 7 1 Introduction 1. Space has intrigued and inspired humankind for centuries. The unexplored vastness of space tempts questions, such as whether life exists elsewhere or whether humans could survive without the Earth.