CSIS-国际太空治理的关键问题（英文）-2020.9-42页_1mb

Summary of Key Governance Issues in Space

Core Content

This document, authored by Kaitlyn Johnson and published by the Center for Strategic and International Studies (CSIS), examines the evolving governance challenges in the space domain. It focuses on three critical areas: space sustainability and debris mitigation, rendezvous and proximity operations, and insurance requirements for space missions. The analysis highlights the need for international cooperation, standardization, and legal frameworks to address these issues as the space sector becomes increasingly crowded and commercialized.

Main Issues and Topics

1. Space Sustainability and Debris Mitigation

• Overview: Space debris is a growing concern due to the increasing number of satellites and launches. It poses a significant threat to the long-term usability of space.
• International Mechanisms:
  • The United Nations Committee on the Peaceful Uses of Outer Space (COPUOS) has developed 21 guidelines for space sustainability, adopted in 2019, which promote SSA and STM coordination.
  • These guidelines are non-binding, but they encourage states to adopt national regulatory frameworks that support sustainable space operations.
• National Policies:
  • Several countries have implemented or are considering policies that align with these international guidelines.
  • The ISO (International Organization for Standardization) provides technical standards, including the 25-year deorbit norm for LEO satellites, which has been widely accepted.
• Multinational Activities:
  • The Inter-Agency Space Debris Coordination Committee (IADC), a forum of 13 space agencies, contributes to technical recommendations for debris mitigation.
  • The COPUOS guidelines emphasize the importance of pre-conjunction assessments and debris removal technologies.
• Industry Efforts:
  • Companies are developing on-orbit servicing (OOS) and active debris removal (ADR) technologies.
  • The Satellite Industry Association (SIA) promotes sustainable practices through industry standards.
• Pressing Concerns:
  • The Kessler syndrome—a potential chain reaction of collisions in space—could threaten the space environment if not addressed.
  • Current international standards are outdated and insufficient to manage the increasing number of commercial satellites.

2. Rendezvous and Proximity Operations

• Overview: These are intentional satellite maneuvers that bring satellites close to one another, which are becoming more common due to advancements in OOS and ADR.
• Lack of Standards:
  • There are no agreed-upon definitions for what constitutes a safe interaction between satellites.
  • Unlike debris mitigation, there is little to no international consensus or regulation on this issue.
• Industry and Technical Standards:
  • The International Academy of Astronautics (IAA) defines STM as promoting safe access, operations, and return from space without harmful interference.
  • The Secure World Foundation provides a more descriptive definition of SSA, emphasizing the need for a global network of sensors and data sharing.
• International Engagement:
  • Discussions on this topic are in early stages, with no formal international agreement yet.
  • The COPUOS and IADC have started to address this, but progress is slow.

3. Insurance Requirements for Space Missions

• Overview: Space insurance is essential for mitigating financial risks associated with satellite operations, but current policies are expensive and limited.
• Fundamentals of Space Insurance:
  • Insurance covers both launch and on-orbit risks, with costs potentially reaching one-third of the satellite's total cost.
  • The Outer Space Treaty (OST) and Liability Convention provide some legal basis for insurance, but they are not comprehensive.
• National Perspectives:
  • Many countries do not require insurance for satellites once they are out of Earth's atmosphere, as they are not considered a threat to Earth.
• Industry Challenges:
  • The crowded space domain increases the risk of collisions, leading to higher insurance premiums.
  • Insurers may drop out of the market or reframe coverage to exclude certain orbits, impacting commercial operations.
• Need for Action:
  • There is a growing need to assess the stability and sustainability of the space insurance market.

Key Findings and Recommendations

• International Definitions: A lack of agreed-upon definitions for key terms like SSA, STM, and space debris mitigation hinders effective governance.
• Normative Rules: Developing normative rules of the road for satellite behavior, especially in rendezvous and proximity operations, is crucial.
• Insurance Stability: Assessing the long-term sustainability of satellite insurance and how the crowded space domain affects lifetime risk is necessary.
• Opportunities for Consensus: The COPUOS and ISO guidelines represent opportunities for international cooperation.
• Emerging Nations: There is concern that emerging spacefaring nations may not be adequately represented in global discussions, risking their interests in the future space governance framework.

Conclusion

The document concludes that while progress has been made in space sustainability and debris mitigation, significant gaps remain in the governance of rendezvous and proximity operations and space insurance. International cooperation, standardization, and the development of binding legal frameworks are essential to ensure the long-term sustainability and security of the space domain. The increasing commercialization and accessibility of space demand a more unified and proactive approach to space governance.