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Europe_covers:NewOccasionalPaper 7/17/2009 11:59 AM Page 3 A European Approach to Space Security Xavier Pasco AMERICAN ACADEMY OF ARTS & SCIENCES Europe_covers:NewOccasionalPaper 7/17/2009 11:59 AM Page 4 Europe_inside:NewOccasionalPaper 7/17/2009 12:00 PM Page i A European Approach to Space Security Europe_inside:NewOccasionalPaper 7/17/2009 12:00 PM Page ii Pleasedirectinquiriesto: AmericanAcademyofArtsandSciences 136IrvingStreet Cambridge,MA02138-1996 Telephone:617-576-5000 Fax:617-576-5050 Email:[email protected] Web:www.amacad.org Europe_inside:NewOccasionalPaper 7/17/2009 12:00 PM Page iii A European Approach to Space Security Xavier Pasco Europe_inside:NewOccasionalPaper 7/17/2009 12:00 PM Page iv ©2009bytheAmericanAcademyofArtsandSciences Allrightsreserved. Coverimage©EuropeanSpaceAgency/S.Corvaja,2009. ISBN#:0-87724-080-9 ThispublicationwasmadepossiblebyagrantfromtheCarnegieCorporationof NewYork.Thestatementsmadeandviewsexpressedaresolelytheresponsibility oftheauthorsandarenotnecessarilythoseoftheCarnegieCorporationofNew YorkortheOfficersandFellowsoftheAmericanAcademyofArtsandSciences. Europe_inside:NewOccasionalPaper 7/17/2009 12:00 PM Page v Contents vii Acknowledgments viii Preface 1 AEuropeanApproachtoSpaceSecurity XavierPasco 41 AbouttheAuthor Europe_inside:NewOccasionalPaper 7/17/2009 12:00 PM Page vi Europe_inside:NewOccasionalPaper 7/17/2009 12:00 PM Page vii Acknowledgments ThispaperispartoftheAmericanAcademy’sReconsideringtheRulesof Spaceproject,whichisguidedbytheAcademy’sCommitteeonInternational SecurityStudies.TheprojectexaminestheimplicationsofU.S.spacepolicy fromavarietyofperspectives,andconsiderstheinternationalrulesandprinci- plesneededforpromotingalong-termbalanceofcommercial,military,and scientificactivitiesinspace.TheReconsideringtheRulesofSpaceprojectis supportedbyagenerousgrantfromtheCarnegieCorporationofNewYork. WethanktheCarnegieCorporationforitssupportandPatriciaNicholasfor hercontinuedinterest,advice,andperceptivecomments. TheAcademyjoinstheauthorinthankingthethreeanonymousreviewers fortheircommentsonthispaper.ThankyoualsotoKimberlyDurniak, ChristopherDavey,AliceNoble,KarthikaSusikumar,ScottWilder,Micah Buis,andPhyllisBendellinhelpingtoproducethisreport.Mostofall,thank youtotheauthorforapplyinghisknowledgeandexperiencetotheseimpor- tantissues. WearegratefultoCarlKaysenandJohnSteinbruner,co-chairsofthe Committee on International Security Studies, for their dedication to the projectandthoughtfulreviewofthispaper.WewouldalsoliketothankNancy Gallagher,whohashelpedtoadvancethisstudy,andespeciallyJohnStein- bruner,whohasservedastheprincipalleaderanddirectoroftheReconsider- ingtheRulesofSpaceproject. LeslieBerlowitz ChiefExecutiveOfficerand WilliamT.GoldenChair AmericanAcademyofArtsandSciences A EUROPEAN APPROACH TO SPACE SECURITY vii Europe_inside:NewOccasionalPaper 7/17/2009 12:00 PM Page viii Preface Spacehaslongbeenthesettingofespeciallyintricateencountersbetween humanaspirationsandtheimplacablelawsofthephysicaluniverse.Itisa naturallaboratoryoffundamentalscience,atoncethesourceofseminal conceptualachievementsandbewilderingmysteries.Ithasbeenthevenue forbothspectacularfeatsofengineeringandtragicaccidents.Ithasbeenthe locusofupliftingcollaborationamongnationsaswellasominousconfronta- tion.Itisanever-compellingtemplateonwhichpopularimaginationplaysout. Theresultingarrayofinterests,attitudes,andemotionsengagedinthe practicalutilizationofspacehasmadethattopicanespeciallydemanding problemofpublicpolicy.Becauseoftherisksandexpenseinvolvedinspace operations,theburdensofarhasbeenborneprimarilybythemajornational governments.Andthosegovernmentshavebeendrivenprimarilybynational securityconsiderations,thelegacyofconfrontationsbetweenthetwoglobal alliancesthatdominatedthelatterhalfofthetwentiethcentury.Thepassing ofthateraandtheprogressiveexpansionofcommercialutilizationofspace haveclearlycreatedanewsituationbutnotasyetthedecisivereformulation ofbasicpurposeandoperationalpolicythatthechangeofcircumstancecan beexpectedtorequire. There has in fact been an argument about the basic character of the appropriateadjustment.AnimpulseemergingfromwithintheUnitedStates governmenttodominatetheutilizationofspacefornationalmilitaryadvan- tagehasbeenresistedbyanearlyuniversalcoalitionofothercountriesdefend- ingtheprincipleofequitableutilizationforcommonbenefit.Iftheoutcome weretobedirectlydecidedbysimplemajoritysentiment,theargumentwould havelongsincebeensettled.Mostpeoplewhenaskedoptforcollaboration andthepursuitofcommoninterest;redirectingtheinertiaofestablished policyisanythingbutsimple,however.Theunderlyingargumentinvolves acollisionofintenseconvictions,andcasualendorsementofcommoninterest isoftenmixedwiththeresidualfearofimperialaggressionthatisanenduring productofhistoricalexperience. Theappropriatebalancebetweencollaborationandconfrontationinthe eraofglobalizationisanunsettledquestion,andtheimplicationsforspace policyhavenotbeenworkedoutinthenecessarydetail.Theefforttodoso isdemanding,andwillundoubtedlytakesometime. viii A EUROPEAN APPROACH TO SPACE SECURITY