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SPACE DIPLOMACY FORUM

ADVANCING DIALOGUE FOR THE EXPANDING

CONSTELLATION OF GLOBAL ACTORS

ACKNOWLEDGEMENTS

Meridian International Center (Meridian) and the production of this report would not be possible without our supporters and partners. Special thanks to the report contributors:

• The Honorable Stuart Holliday CEO, Meridian International Center

• Natalie Jones Executive Vice President, Meridian International Center

• Frank Justice Vice President, Center for Diplomatic Engagement, Meridian International Center

• Danielle Najjar, Director of Marketing and Communications, Meridian International Center

• William Owens, Diplomatic Engagement Fellow and Principal Report Author, Meridian International Center

Thank you to the many leaders within the Meridian community who contributed to the project's success:

• Major General Charles F. Bolden Jr.

• Ché Bolden

• Jacqueline Feldscher

• Karen Feldstein

• Kristin Fisher

• Dr. Jeff Foust

• Dr. Jenni Gibbons

• Rear Admiral (Ret.) Michael Hewitt

• Dr. Diane Howard

• Aarti Holla-Maini

• Krunal Joshi

• Kelli Kedis Ogborn

• Her Excellency Mathilde Mukantabana

• Dr. Joel Joseph S. Marciano, Jr.

• The Honorable Pam Melroy

• Matt Ondler

• Temidayo Oniosun

• André Pienaar

• The Honorable John Plumb

• Dr. Sian Proctor

• Christina Ruffini

• Kurt Scherer

• Jared Stout

• David Thomas

• Volodymyr Usov

• Prof. Teodoro Valente

• Valda Vikmanis-Keller

• The Honorable Richard Verma

• Dr. Giovanni Zanalda

ABOUT MERIDIAN

Founded in 1960, Meridian International Center is a nonpartisan, nonprofit diplomacy center with the vision that greater understanding and collaboration between the United States and the world leads to a more secure, prosperous future for all.

The views described in this report are those of the speakers only. They are neither representative of the positions of the Meridian International Center nor those providing funding for the Forum. Meridian takes no institutional positions on policy issues and is committed to nonpartisan convening and exchanges. In addition, the suggested recommendations are the views of individual participants and do not necessarily represent a consensus of the attending members or their home institutions.

INTRODUCTION

We are witnessing a new space race. And this time, the United States and Russia are not alone. They are joined by an ecosystem of emerging spacefaring actors. Thirty-three countries have established national space programs since the turn of the century, private companies are rapidly increasing their share of operations in Low Earth Orbit (LEO), and a diverse array of industries are leveraging space’s unprecedented production of data. The barriers to entry have collapsed, rendering the longstanding laws governing space activity obsolete. Space has reached an inflection point.

This proliferation of stakeholders has elevated diplomacy as a necessity to shape how humanity

RESPONSIBLE EXPLORATION

NASA and the Department of State co-lead America’s international engagement in space through the Artemis program—a multilateral initiative that will return astronauts to the moon for the first time since 1972 and establish a permanent human presence on the lunar surface. American diplomacy through the Artemis program is further supported by the Department of State’s 2023 Strategic Framework for Space Diplomacy, which establishes three objectives: advancing space policy for the benefit of future generations, leveraging space activities for wider diplomatic goals, and empowering the workforce on space diplomacy.

America’s resurgence in space has been matched by rival actors like Russia and China, namely in the latter’s International Lunar Research Project (ILRS). The ILRS, which NASA Deputy Administrator Pam Melroy does not view as a competitor, is currently comprised of 11 members; however, it lacks the scientific and political transparency that Artemis is founded on.

TOP TAKEAWAYS

The Artemis program’s success hinges on the United States’ ability to coordinate with the opposing Chinese and Russian-led coalition in space. The U.S. must therefore continue to provide emerging and preemerging spacefaring nations with a seat at the table. As space’s downstream applications become increasingly valuable to the global economy, countries at all stages of socioeconomic development should feel empowered to shape the space policies of tomorrow.

“WE ARE GOING TO CHANGE HUMANITY FOREVER. AND WE HAVE TO BE DOING THAT IN A RESPONSIBLE WAY”

– Col. Pam Melroy, Deputy Administrator, NASA

NEXT STEPS

At minimum, the U.S. must preserve open lines of communication in space with Russia and China, despite the strained nature of those relationships on Earth. Remember, this has been done before: the Apollo-Soyuz mission was initiated at the height of the Cold War by American astronauts and Russian cosmonauts embracing their roles as space diplomats.

Meridian advances the concept of Open Diplomacy, in which non-traditional diplomatic actors like scientists, mayors, business leaders, and artists are the future interlocutors of American foreign policy. Through this lens, the modern space diplomat may be a private research institution-based astrophysicist, or a business school professor focused on creating international partnerships in space. As official lines of communication remain murky amidst geopolitical tensions, continued engagement through these new, modern diplomats demonstrates how common ground can be formed to advance scientific exploration for the betterment of society.

(From left to right) The Honorable Rich Verma (U.S. Department of State), The Honorable Pam Melroy (NASA), and Kristin Fisher (CNN) in conversation at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House. Photo by Oskar Dap.

MODERN SPACE GOVERNANCE & THE ARTEMIS ACCORDS

The Artemis Program should not be confused with the Artemis Accords. Jointly administered by NASA and the U.S. Department of State, the Accords came into existence in 2020 with eight signatories. They are grounded in the United Nations’ 1967 Outer Space Treaty, and signatories are expected to share their space policy and exploration plans with one another, work to release scientific data, and agree to utilize international standards, among other criteria. As of May 2024, the Accords are made up of 40 members representing all major continents, stages of socioeconomic development, and spacefaring capacity.

However, the Accords are non-binding, generating scrutiny from international space stakeholders who believe a lack of enforcement renders its principles toothless. Karen Feldstein, NASA’s Associate Administrator for International and Interagency Relations, rejects this notion. She suggested that the Accords’ non-binding nature lowers the barriers to entry for pre-emerging and emerging spacefaring nations, thus providing incentives for their cooperation. Aarti Holla-Maini, Director of the Office of Outer Space Affairs at the United Nations, echoed this sentiment. She claimed that there is “no appetite” for a new treaty amongst UN member states, and that the focus should be on implementing agile guidelines with the potential to evolve alongside the space domain.

TOP TAKEAWAYS

The goal of the Accords is not to chase a number. Instead, we should ensure that partners with shared values are part of the conversation, as conveyed by Valda Vikmanis Keller, Director of the Office of Space Affairs at the U.S. Department of State. So far, this philosophy has

“[THE ARTEMIS ACCORDS ARE] A STARTING POINT FOR WHAT THEN HOPEFULLY GOES ON TO BE A ROBUST CONVERSATION BETWEEN ADVANCED SPACEFARING NATIONS AND EMERGING SPACEFARING NATIONS—ALL OF WHOM SHARE THESE VALUES AND WANT TO SEE THE PROTECTION OF SPACE AS WE MOVE FORWARD TO EXPLORE.”

– Valda Vikmanis Keller, Director of the Office of Space Affairs, U.S. Department of State

made Artemis working group meetings highly effective. Feldstein shared that, during the Accords’ first meeting at the 2022 International Astronautical Congress, 19 of the then 21 signatories attended, and 17 different countries took the mic. This level of engagement indicates that pre-emerging and emerging spacefaring signatories feel empowered to participate in the decision-making processes defining our collective future in space.

NEXT STEPS

Artemis Accords members must continue to be effective communicators about their aspirations in space—to both potential signatories and their own citizens. With regards to potential signatories, Artemis Accords countries must effectively share the purpose, values, and goals of the Accords. This includes clarifying that ILRS signatories are still welcome to sign.

(From left to right) Karen Feldstein (NASA) and Dr. Jenni Gibbons (Canadian Space Agency) in conversation at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House. Photo by Oskar Dap.

Garnering the support of the public is also critical to ensuring the sustainability of long-term space operations. The United States stands to learn from its partners in this area. Canada provides a great blueprint. In 2023, the Canadian Space Agency (CSA) asked citizens to provide feedback on its national space strategy. Dr. Jenni Gibbons, an astronaut at the CSA, commented on the consultation process’ results.

It yielded over 200 responses from a diverse range of perspectives, the vast majority of whom voiced their support for Canada’s future in space. By engaging private citizens in the policymaking process, Artemis signatories may see an uptick in public interest in and support of space—something that could pay dividends for national programs and industry groups alike during hotly contested government appropriations processes.

MOONSHOTS: THE NEW SPACE ECONOMY FOR EMERGING SPACEFAR ING NATIONS

The Space Foundation predicts that the space economy will reach a $772 billion valuation by 2027—a number that has mushroomed since the turn of the century. This is largely due to a steady inflow of new actors, with governments eager to capture a share of space’s economic returns and leverage the domain to accelerate their broader development goals. As new entrants grapple with what their role in space will be, they often find themselves at the intersection of competing geopolitical spheres. This heightens the stakes behind international partnerships, upping the value they provide to emerging spacefaring nations’ legitimacy and expected trajectory.

TOP TAKEAWAYS

There is no “one size fits all” approach to space according to Kelli Kedis Ogborn, Vice President of Space Commerce and Entrepreneurship at the Space

Foundation. However, she recommends that preemerging and emerging spacefaring nations find ways to avoid starting from scratch. The industrial base should be mobilized to support a nascent space industry’s liftoff whenever possible.

Temidayo Oniosun, Managing Director of Space in Africa, argued that the continent should move away from large government programs and towards an industry-led sector. Many of the challenges facing national programs in Africa are due to space investment competing with other priorities like education, infrastructure, and healthcare in developing countries, as noted by Her Excellency Mathilde Mukantabana, Ambassador of the Republic of Rwanda to the United States. Therefore, if emerging nations choose to build their spacefaring capacity through the public sector, effective government communication about space’s

(From left to right) Temidayo Oniosun (Space in Africa), Rwandan Ambassador to the U.S. Mathilde Mukantabana, and Kelli Kedis Ogborn (Space Foundation) in conversation with The Honorable Charles Bolden (NASA Administrator, 2009-2017) at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House. Photo by Oskar Dap.

relevance to the daily lives of its citizens is critical to ensuring the sector is adequately funded.

NEXT STEPS

The United States cannot rely on the value of the Artemis Accords or its normative agenda alone to incentivize the cooperation between emerging spacefaring nations. Oniosun indicated that African countries will partner with anyone, regardless of regime type. This helps explain cases like Angola: a member of the Artemis Accords who turned to a Russian firm to launch its first national satellite. Emerging spacefaring nations care about finding partners willing to invest in their economies and develop local talent.

The U.S. needs to develop a space strategy specific for Africa. An important component of the strategy will be to educate American companies on how to conduct business in the region. African actors, such as Space in Africa, and U.S. civil society can support this learning through two-way exchange programs for government officials and business leaders.

"SPACE IS A FRONTIER WE ARE TRYING TO TACKLE AS WE GO INTO OUR STRATEGIC TRANSFORMATION, VISION 2050. IT’S PART OF THE SOCIOECONOMIC DEVELOPMENT OF THE COUNTRY."

- Her Excellency Mathilde Mukantabana, Ambassador, Embassy of Rwanda

Dr. Sian Proctor, 2024 U.S. Science Envoy, speaks at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House. Photo by Oskar Dap.

COSMIC COOPERATION: EDUCATION & WORKFORCE DEVELOPMENT PARTNERSHIP

Dr. Sian Proctor, the 2024 U.S. Science Envoy for the U.S. Department of State, has a “J.E.D.I” philosophy when it comes to space. It is an acronym for justice, equity, diversity, and inclusion—four tenets she has espoused to inspire, prepare, and employ in the international space workforce of tomorrow. This mission reflects the White House’s 2022 Interagency Roadmap to Support Space-Related STEM Education and Workforce, which acknowledges that the continued growth of the global space economy is constrained by human capital development. The 2023 State of the Space Industrial Base Report¬—co-authored by the U.S. Space Force, NASA, and the Defense Innovation Unit—confirmed this challenge. Along with supply chains, it identified workforce development as a top priority for American competitiveness, security, and prosperity in space.

Capacity building is more than just a domestic priority. It has become an admirable diplomatic tool that the U.S. has effectively leveraged across several fields. This is because workforce development initiatives have demonstrated consistent returns on investment, strengthening bilateral relations while bolstering the global space economy. Other nations are taking notice. India’s UNNATI program has brought participants from over 33 countries to Bengaluru for a two-month training program on nanosatellite assembly. Japan’s BIRDS program is similar, aiming to help emerging spacefaring nations launch their first satellite. Additionally, governments and private organizations (including AWS in India) are funding tech accelerators in hopes of spurring lucrative outcomes through local talent.

TOP TAKEAWAYS

Catch them young, proclaimed Krunal Joshi, Space Counselor at the Embassy of India. He believes that domestic capacity building can be supported by a space culture that inspires pride in a nation’s youth and encourages them to take ownership of the future.

Skilling and reskilling are additional critical aspects of workforce development. After all, we need more than just engineers in space. An emphasis on blue collar spacerelated fields, such as welding is key. Education programs

“WE TALK A LOT ABOUT THE DEMOCRATIZATION OF SPACE, BUT WE REALLY NEED TO WORK TO MAKE IT HAPPEN. AT LEAST FOR LIKEMINDED COUNTRIES.”

- Krunal Joshi, Space Counselor, Embassy of India

must provide this holistic understanding of what it means to work in and for space. At the advanced level, this includes trainings on various topics, such as intercultural communication to prepare astronauts for joint missions; the psychological effects of spaceflight; and the role of emerging technologies in space.

NEXT STEPS

Cross-border workforce development space partnerships need to be increased across the board. Talent development initiatives need to be included in the international space cooperation programs being designed by the State Department as well as NOAA, through the Office of Space Commerce. This also needs to take place at the subnational level. Local jurisdictions that rely on the space economy, such as Colorado Springs and Houston, should forge partnerships with their international counterparts leveraging their workforce acumen with the expertise, professional resources and natural resources of other nations. Global university partnerships are an effective avenue as well. Arizona State University’s Milo Space Science Institute has collaborated with academic and research institutions from seven countries on its Apophis Pathfinder mission. This type of partnership should be emulated.

We must continue to push for an open-source approach to space so that all countries, regardless of spacefaring capacity, can continue learning from it. As commercial activity in LEO flourishes, businesses must adopt some form of collaborative scientific ethos to ensure that we are developing the quantity of space sector talent

ORBITING

ORBIT: HOW DEVELOPING NORMS ACCELERATE SPACE COMMERCIALIZATION

“WE ARE DOING THINGS THAT HAVE NEVER BEEN DONE BEFORE. WE CAN’T CONSTRAIN OURSELVES TO THE TYPES OF REGULATORY SYSTEMS THAT WE’VE BEEN USING TERRESTRIALLY FOR INDUSTRIES THAT HAVE BEEN AROUND FOR 100 YEARS OR LONGER.”

- Jared Stout, Vice President of External and Government Affairs, Axiom Space

In 1962, President Kennedy signed the Communications Satellite Act, establishing the Communications Satellite Corporation (COMSAT) to represent the United States’ emerging space interests internationally. In 1965, two years prior to the ratification of the United Nations’ Outer Space Treaty, Intelsat launched the first commercial satellite into geostationary orbit. This marked a brief period of history where commercial actors were evolving alongside space governance frameworks. Since then, supranational regulation has remained at a standstill while novel space actors, technologies, and activities have multiplied.

Kenneth Hodgkins, Chair of the Off-World Approach at the Hague Institute for Global Justice, maintains that the Outer Space Treaty continues to serve as the only piece of international governance applicable to commercial space operations. Article VI of the Treaty states, “The

activities of non-governmental entities in outer space, including the moon and other celestial bodies, shall require authorization and continuing supervision by the appropriate State Party to the Treaty.” To bridge this gap, the White House created the Novel Space Activities Authorization and Supervision Framework in 2023. The policy established classes of commercial space activity and transitioned their oversight to the Departments of Commerce and Transportation, attempting to provide increased clarity about their respective involvement in the American space apparatus. Diane Howard, Director of Commercial Space Policy at the National Space Council, shared that the framework aims to codify processes today to better equip space stakeholders to navigate the challenges of tomorrow.

Non-governmental entities have also put forth frameworks to engage civil society and the private sector in the future of international space governance. The Washington Compact, authored by the Hague Institute for Global Justice in 2022, addresses four cross-cutting principles: transparency, predictability, interoperability, and sustainability. An invitation-only agreement, the Washington Compact has assembled space diplomats outside of government to advance its priorities. As of May 2024, it has amassed 135 signatories from all regions of the world—including Russia and China.

TOP TAKEAWAYS

For the United States to remain competitive on the global stage, we need transparent, stable, and predictable regulation, per Jared Stout, Vice President of External and Government Relations at Axiom Space. He stated, “I need to know what the rules are. I need to know that they are not going to change back and forth constantly. And

(From left to right) Kenneth Hodgkins (The Hague Institute for Global Justice), Dr. Diane Howard (National Space Council), and Jared Stout (Axiom Space) at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House. Photo by Oskar Dap.

I need to be fairly sure that if I follow the requirements of the regulations, that I know what the end-state will be from the regulatory authority.” Howard agreed, adding that congressional legislation on space is paramount to ensuring a consistent, whole-of-government engagement with the sector.

To supplement the effectiveness of policy, Hodgkins discussed the importance of fostering a productive space culture within government. It should guide how the domain is dealt with across the federal government to ensure that stakeholders are not siloed. Howard added that a culture of “providing guidance” to the commercial sector, rather than just “regulating,” would help keep the United States competitive.

NEXT STEPS

As suggested by Hodgkins, the Artemis Accords should be used to promote a friendly business environment for American space companies looking to go global.

A future where the Accords harmonize space regulations and standards across signatories will advance innovation and economic growth for all signatory nations.

Industry needs to be an active and honest participant in the development of commercial space regulation, underscoring laws that are prudent while making a clear case against those that result in onerous impediments. Small and medium-sized space enterprises need to be involved as well. Without an active government relations team in Washington, they are far too often left out of the policymaking process. Finally, as the United States struggles to define its regulatory environment, the European Union is preparing to publish its own comprehensive space law. Candid conversation between American and European stakeholders will be necessary to empower firms to expand their operations across the Atlantic and ensure the continued success of our spacebased relationship, asserted Howard.

THE PHILIPPINES’ EMERGING ROLE IN SPACE

The Philippine Space Agency (“PhilSA”) was established by former President Rodrigo Duterte in August 2019. Its current Director General Dr. Joel Joseph Marciano, Jr. emphasized that PhilSA’s work has been grounded in international partnerships since its inception. The Philippines frequently collaborates with regional partners like Japan, whose universities’ space programs prepare Filipino students to take ownership of their country’s future. PhilSA has also become a critical partner for the European Space Agency’s Earth Observation program, Copernicus. In 2023, the two agencies signed an agreement (the “CopPhil” initiative) to build a Copernicus data hub in the Philippines.

Domestically, Marciano is focused on building “appreciative capacity” amongst Filipino students and young professionals. He hopes this culture of engagement will ultimately manifest itself in human capital returns. So far, maps and other downstream products produced by PhilSA are finding their way into classrooms. As these materials are used to enrich STEM curricula, expect a positive feedback loop to begin driving the Philippines’ interest and output in space.

“OUR COUNTRY BEING SITUATED WHERE IT IS, IN THE PACIFIC RING OF FIRE AND TYPHOON BELT, WE FACE MANY CHALLENGES. THERE IS AN INCREASING REALIZATION THAT THE VANTAGE POINT FROM SPACE CAN SIGNIFICANTLY HELP US ALLOCATE LIMITED RESOURCES PROPERLY AND MAKE BETTER DECISIONS.”

- Dr. Joel Joseph Marciano, Jr., Director General, Philippines Space Agency

TOP TAKEAWAYS

The session provided a valuable roadmap as to how a pre-emerging spacefaring nation can chart its own course in outer space. Marciano identified micro and nanosatellites as novel technologies that have lowered the barriers to entry in space for emerging nations. In addition to surpassing technical and economic barriers, the Philippines’ embrace of small satellites has shattered a psychological barrier for the country, providing young Filipinos with a valuable source of pride and inspiration.

When asked to provide advice to fellow pre-emerging and emerging spacefaring nations, Marciano advised them to “stand on the shoulders of giants.” In other words, countries should first take what already exists—in the form of international standards and conventions—and incorporate them into their national strategies. Once this foundation is established, emerging nations can shift their attention to building upon the status quo, innovating, and attracting partnerships and capital.

NEXT STEPS

The Philippines and other pre-emerging spacefaring nations must continue developing their homegrown talent and safeguarding an amenable environment for space industry to blossom. For the Filipino private sector to grow, Marciano shared that PhilSA is focused on bridging the gap between “space adjacent” firms and commercial space entities, highlighting opportunities for investment and collaboration.

Partnering with spacefaring stalwarts that adhere to democratic principles like the United States provides pre-emerging spacefaring nations with the confidence to advance their domestic space priorities. Dr. Marciano’s participation in the 2024 Diplomacy Forum coincided with the first U.S.-Philippines Civil Space Dialogue. And while the bilateral event yielded certain positives—such as the launch of FulbrightPhilSA space science scholarships—the two countries should follow through on key areas recognized as potential avenues for expanded cooperation. This includes the Philippines joining the Artemis Accords, partnering with the Department of Transportation’s SeaVision program to heighten maritime domain awareness, and hosting a new U.S. Geological Survey Landsat ground station.

(From left to right) Dr. Giovanni Zanalda (Duke University) and Dr. Joel Joseph Marciano, Jr. (Philippines Space Agency), in conversation at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House. Photo by Oskar Dap.

STAR WARS: ANTI-SATELLITE THREATS IN 21ST CENTURY WARFIGHTING

In April 2024, Russia vetoed a UN Security Council resolution to reaffirm Article IV of the Outer Space Treaty—prohibiting nuclear weapons or other weapons of mass destruction from being placed in orbit. Rear Admiral Michael Hewitt (USN-Ret.)—CEO at IP3 International—expressed concern about this move, citing the potential security ramifications of the West backing a “desperate leader into a corner.” In addition, the U.S. government suspects Russia’s latest satellite to be a space weapon. The satellite has been placed in the same orbital plane as USA 314, a National Reconnaissance Office Satellite whose design and capabilities are classified.

Russia, however, has already militarized the space domain throughout its invasion of Ukraine, namely by leveraging electromagnetic warfare to target satellites. This includes attacks on GPS, affecting civilian airlines in the region, as well as SpaceX’s Starlink internet service. Starlink is used by the Ukrainian military to communicate, collect intelligence, and conduct drone strikes on Russian forces, and an uptick in Russian interventions in space has dealt significant blows to Ukraine’s defense of its territory.

TOP TAKEAWAYS

Hewitt drew on his experience in cyberspace leadership as part of the Joint Chiefs of Staff to assess the current state of space governance and national security. He assessed that the rules of engagement for cyber were nonexistent in the aughts, but defense stakeholders are not operating in a vacuum when it comes to space today.

He touted the Artemis Accords’ role in promoting norms that advance collective security in space, as well as the increased interagency collaboration between U.S. space stakeholders in government to address challenges.

NEXT STEPS

Anti-Satellite (ASAT) capacity, which Hewitt identified as being alarmingly unregulated, must explicitly be addressed in modern space governance frameworks. Even though anti-satellite missiles have yet to be deployed in warfare, the United States, Russia, China, and India have all shot down old satellites to test (and flex) their military capabilities. Hewitt went as far as warning that the armed forces of the United States and its allies should be prepared for situations in which the space environment becomes degraded or denied through ASAT attacks, which would lead to failures in critical tools like position navigation and timing, satellite communications, or missile warning.

In 2022, Vice President Harris announced America’s commitment to avoid destructive ASAT missile testing in an effort to promote responsible stewardship of the space domain. However, this is ineffectual when imposed unilaterally; all spacefaring nations must urgently commit to ASAT deterrence in order to advance collective security in space. Additionally, non-kinetic ASAT capabilities, like cyber-attacks and the aforementioned use of electromagnetic jamming, remain equally concerning and should be integrated into global standards of war.

“I SEE SPACE AS MORE OF A DATA DOMAIN THAN ANYTHING. . .WITHOUT THE PROPER PROCESSING, PROTECTION, AND DISSEMINATION OF DATA TO THE WARFIGHTER AND OTHERS, IT REALLY WILL BE SUBOPTIMIZED. AND I AM GRAVELY CONCERNED THAT OUR ADVERSARIES UNDERSTAND THAT QUITE WELL.”

- Rear Admiral Michael Hewitt (USN-Ret.), Chief Executive Officer, IP3 International

(From left to right) André Pienaar (C5 Capital) and Rear Admiral Michael Hewitt (USNRet., IP3 International) in conversation at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House. Photo by Oskar Dap.

SECURING SPACE THROUGH PUBLIC-PRIVATE PARTERNERSHIPS

Dr. John Plumb served as the first Assistant Secretary of Defense for Space Policy, a position established at the backend of the Trump Administration alongside the Space Force (USSF) and Space Command (SPACECOM) in recognition of the domain’s growing relevance to national security.

One of the primary achievements of Plumb’s tenure was publishing the Department’s first Commercial Space Integration Strategy in 2024. It comprises of four toplevel priorities: ensuring access to commercial solutions across the spectrum of conflict; achieving integration prior to crisis; establishing the security conditions to integrate commercial space solutions; and supporting the development of new commercial space solutions for use by the joint force. The framework also identifies thirteen mission areas for national security space and divides them into three categorizations: government primary mission areas, hybrid mission areas, and commercial primary mission areas. Whereas ownership over Command and Control or Missile Warning have been retained by the government, areas like Space Access, Mobility, and Logistics have been delegated to commercial entities. Finally, the strategy roots itself in the four foundational principles of balance, interoperability, resilience, and responsible conduct.

TOP TAKEAWAYS

Dr. Plumb singled out cyber-attacks as the highest-level threat facing space systems. They can be done from your basement and take down entire constellations of satellites, he remarked. The Commercial Space Integration Strategy reiterates this point, laying out that “commercial solutions leveraged by the Department must be resilient themselves, particularly against cyber threats.” The framework thus prioritizes threat information sharing with the commercial sector, which will be crucial in mitigating the effects of future cyber-attacks on privately operated systems.

In addition to the Commercial Space Integration Strategy, the Department’s reinvented approach to discussions about space was a victory spearheaded by Dr. Plumb’s team. He shared that bringing in space stakeholders across the United States government—a move away from the

“IN THE U.S., THE INNOVATION IN THE SPACE DOMAIN IS HAPPENING IN THE COMMERCIAL SECTOR [….] THAT IS WHERE THE DEPARTMENT NEEDS TO TAKE PART AND FIGURE OUT HOW TO HARNESS IT FOR NATIONAL SECURITY PURPOSES.”

– The Honorable John Plumb, Assistant Secretary of Defense for Space Policy, U.S. Department of Defense

Department’s historically insular culture—paid dividends by generating a more holistic dialogue on the subject. As conveyed by Secretary of Defense Lloyd Austin in the forward to the report, “leaders at all levels need to be aware of and work to eliminate the structural, procedural, and cultural barriers to overcoming legacy practices and preconceived notions of how the commercial sector can support national security.”

NEXT STEP

It is imperative to continue to grow and strengthen the national satellite communications infrastructure. From a defense perspective, the more satellites that the United States has in orbit, the more the nation can diversify risk and mitigate consequences to the crucial systems serving the American people.

Assistant Secretary of Defense for Space Policy John Plumb at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House.

Photo by Oskar Dap.

EXPANDING NASA'S SPACE STATION ALLIANCES

The International Space Station (ISS) is the posterchild for LEO’s transition from government ownership to commercial sector custody. Set to retire in 2030, NASA has delegated the next generation of space stations to the private sector in a move that will decrease costs and permit the agency to focus on deep space exploration. In 2020, Axiom Space won the opportunity to build one of these privately owned and operated space stations to replace the ISS, with its first module scheduled to rendezvous with the ISS in 2026. Blue Origin and Voyager are also building commercial space stations, but they are designed as “free flyers” (meaning they will never connect with the ISS). This is where Matt Ondler, President of Axiom Space, believes his company has a competitive edge. Whereas hardware, experiments, and other material currently aboard the ISS can simply be moved into Axiom’s modules prior to the ISS’ retirement, those payloads would have to be rebuilt and relaunched for Blue Origin or Voyager’s stations.

TOP TAKEAWAYS

In addition to NASA, Axiom works with an international set of established and emerging space agencies alike. For example, the company signed a Memorandum of Understanding with the Italian government in 2022, while it included astronauts from Saudi Arabia on its AX-2 mission and an astronaut from Turkey, among other nations, on its AX-3 mission. Axiom’s tiered operations provide countries with more flexibility and access in space than was provided by the ISS. Depending on the country’s spacefaring capacity, Axiom is available to fly their research, transport their astronauts, or even design national spacecraft. This shows how market forces in the commercial sector have helped democratize space and increased opportunities for emerging countries to ink deals with innovative companies.

Ondler rejected the notion that a commercialized LEO environment will lead to the loss of the “science for science” ethos that NASA is founded on. He indicated that Axiom intends to continue enabling the direct development of technologies for the benefit of humanity, such as its work with the University of California San Diego’s stem cell research program. Ondler forecasted that, through R&D partnerships, humans will soon be surrounded by objects that we could never fathom existing—all created in space.

Expect the commercial sector to eventually go beyond LEO too. “Humans go where the stuff is,” remarked Ondler. Governments throughout human history have funded pioneering explorers, who have in turn been followed by settlers. Albeit unlikely to occur anytime soon, Ondler did not rule out a private sector counterpart to the Artemis mission’s lunar settlement. However, ongoing budget woes hindering NASA’s Mars Sample Return Mission are already sparking conversations about how the private sector’s improved efficiency might save the day for deep space exploration.

NEXT STEPS

To ensure efficient and swift access to low-Earth orbit and beyond, governments around the world should further facilitate international cooperation and partnerships between the private and public sectors. Private companies like Axiom Space can support national governments in achieving their long-term strategic goals and effectively executing their national space programs, providing innovative solutions, advanced technologies, and additional resources and expertise to bolster national efforts in space exploration and development.

“THE INTERNATIONAL SPACE STATION IS A WONDERFUL EXAMPLE OF INTERNATIONAL COOPERATION. . .IT IS A REALLY REMARKABLE EXAMPLE OF HOW THE U.S. CAN LEVERAGE SOFT POWER TO INFLUENCE THE WORLD AND CREATE THAT COOPERATION. WE THINK OUR COMMERCIAL SPACE STATION HAS THAT SAME OPPORTUNITY.”

–Matt Ondler, President, Axiom

Space

(From left to right) Christina Ruffini moderates a conversation with Matt Ondler (Axiom Space) at the 2024 Meridian Space Diplomacy Forum. April 30, 2024. Meridian House. Photo by Oskar Dap.

CONCLUSION

This report summarizes key findings from Meridian’s 2024 Space Diplomacy Forum, providing analysis and recommendations through Meridian’s lens as a nonprofit, nonpartisan diplomacy center. Alongside the Forum, the report also launches Meridian’s broader involvement in space diplomacy.

In the coming months and years, Meridian will work to advance international norms for government and industry, democratize space for pre-emerging and emerging spacefaring nations, and accelerate the global space economy. This action will be guided by our mission to strengthen democratic alliances, increase U.S. competitiveness and build geopolitical resilience. We will:

• Apply our professional exchange expertise to organize comprehensive study tours for international space practitioners

• Focus our convening stature to build education and networking programs for both U.S. and foreign diplomats

• Tailor our diplomacy and geopolitical training programs for astronomers, astrophysicists and other scientists and technologists to provide them with the insights needed to bridge the gap between science and policymaking

• Leverage our network to advance track two diplomacy alongside the Artemis Accords

We look forward to working with U.S and international governments, established space industry firms and startups, as well as academic institutions, NGOs and philanthropic entities to make an enduring impact in this emerging diplomatic frontier.

THE NEW SPACE RACE: INTERNATIONAL PARTNERSHIPS [OP-ED]

By Ambassador Stuart Holliday and Major General Charles Bolden | Originally

President Joe Biden’s announcement in March 2024 that Japanese astronauts will join an upcoming Artemis mission marked a significant milestone. For the first time, a nonAmerican will set foot on the moon, marking a new era of international cooperation in space exploration. And just last week, a UN resolution was proposed by the U.S. and Japan to prevent the development of nuclear arms in outer space, calling on all nations to not deploy any weapons of mass destruction per a 1967 treaty. Russia vetoed the resolution – a reminder of the ongoing risk of space turning into a battleground. These recent developments underscore the critical role of diplomacy and strategic international partnerships in the evolving space age.

The space race of the 20th century, characterized by rivalry and high barriers to entry, has transformed. The playing field has widened and the absence of traditional gatekeepers in space opens unparalleled opportunities for collaboration. The United States now finds itself at the helm, steering an international coalition that includes traditional allies, emerging space nations, and innovative private entities, through the complex political terrain of outer space. This evolution from competition to collaboration represents a significant paradigm shift in how we approach the final frontier.

Over the past 50 years, space exploration has offered humanity a platform to confront some of our most pressing challenges. From climate change research and enhancing global communication networks to advancements in health care through zero-gravity research, space has proven indispensable to innovation and development. By expanding internet access to regions with limited telecommunications infrastructure, projects like SpaceX’s Starlink or the Arctic Satellite Broadband Mission are integrating remote communities into the global economy at an unprecedented scale. These breakthroughs are only possible through the partnership with the private sector.

As the International Space Station’s era draws to a close, the development of private space stations and the rise of commercial space activity signals a new phase of diplomatic activity in orbit with companies like Axiom Space spearheading the launch of its first module to the ISS in 2026 and the late2020s for station completion. This shift requires a significant increase in collaboration between governments and the private sector to ensure space remains secure and sustainable and can continue to provide critical benefits to all of society.

However, current space governance frameworks, including the 1967 United Nations Outer Space Treaty, are outdated and no longer reflect the realities of today’s space activities and technologies. The U.S. created the Artemis Accords in 2020, a non-binding set of principles and guidelines to promote a sustainable and cooperative future in space that has garnered 39 signatories thus far to begin addressing this gap. The Hague

Institute for Global Justice’s Washington Compact attempts to introduce private sector norms, recognizing the importance of corporate diplomacy to ensure the stability of a privatized LEO environment.

However, space is not a unipolar system, and rival coalitions and alternative norms are emerging across the Global South. The U.S. Department of State released its first Space Strategic Framework in 2023 and began their annual Space Diplomacy Week to expand the base of likeminded space faring nations and outlines how we can promote responsible behavior from all space actors. From a U.S. perspective, it is imperative to build relationships with emerging spacefaring nations and encourage them to adopt democratic practices.

The U.S. has prioritized the African continent’s space economy, with Rwanda, Nigeria, and Angola all joining the Artemis Accords. However, other African countries—those pursuing BRICS membership—have elected to engage in space partnerships with China instead. Chinese ambitions to become the leading force on the moon through its International Lunar Research Station have generated concerns about sovereign claims in space, which the Outer Space Treaty strictly prohibits.

Practical modern-day statecraft should follow the principle of open diplomacy—that governments alone cannot maintain relations with other nations. Global business executives, state and local leaders, scientists, and technologists must collaborate to shape international affairs.

This also applies to space missions. Although astronauts are critical and often serve as the face of the mission, an entire supply chain got them there in the first place. Think about the scientists and engineers at mission control. The private companies contracted to participate in the mission through public-private partnerships. The foreign countries jointly fund the mission. The mission’s success is contingent on the level of communication and trust between these actors, which diplomacy aims to facilitate.

The U.S. is responsible for ensuring equitable access to STEM education and diplomatic skills training across the country so that our space workforce is more representative of all Americans and equipped with the tools needed to represent our country in space.

In this era of immense possibilities in space exploration, it is imperative that we adopt a united, diplomatic approach towards securing our space frontier. By fostering collaboration among nations, industries, and innovators, we not only safeguard the future of space, but also pave the way for a more interconnected and prosperous world and an unprecedented era of cooperation