Rong Du (SJD 2017)
Space Policy
October 2017
Introduction: The concept “space sustainability” came to the landscape of international
space community in response to the increasing concerns over
the safety and security of outer space in recent years, especially the risk
posed by long-lived space debris. By far, there is no agreed definition on
space sustainability. It often appears in association with space safety
and space security or encompasses the meaning of safety and security in
outer space, with an emphasis on the long-term impact of current space
activities and due considerations deserved by future generations.1 The
threats to space assets may come from the collision risk posed by orbital
debris and asteroid or interferences from hazardous space weather.2
Space debris is the most serious issue. States have been dealing with
space debris from two perspectives, debris mitigation and removal, and
monitoring space debris through space situational awareness (SSA)
capability.
China started to develop the space industry since the 1950s and has
carried out various space programs. After efforts of several decades, it
has become autonomous in the construction and launch of satellite. By
far, it possesses almost 150 satellites in orbit. It also has made remarkable
progress in the exploratory and scientific missions, such as
human space flight and lunar exploration. It will continue to give a high
priority to the space sector for the purpose of boosting economic growth
and safeguarding national security. Yet, due to the lack of national
space policy, there have always been concerns on how China will carry
out space activities in a responsible and sustainable way. The previous
researches discussed China's performance in tackling space debris from
the legal perspective. But they overlooked the policy aspect and did not
address the implications of the civil-military relationship for the space
sector. Among the external observers, there are different understandings
toward China's strategy in outer space. The 2007 anti-satellite
(ASAT) test is often cited as an evidence of China's ignorance to the
sustainability of outer space environment. Yet the underlying causes
should be carefully studied, other than widely speculated. Meanwhile,
China has become more proactive in the multilateral efforts aiming to
create new norms for space sustainability. Its participation carries
substantial weight in the conclusion of the agreements. These instruments,
once adopted, will contribute to shape China's behaviors in outer
space.
This paper examines the parameters that are affecting China's approach
to space sustainability and suggests how China could make
systematic efforts toward space sustainability, with a major focus on the
civil-military interaction. Part 2 reviews the space governance structure
and the progress made by China by far. Part 3 examines the 2007 ASAT
test from the perspectives of the civil-military gap, the US's responses,
and the military sector's narratives on space strategy. Part 4 further
discusses to what extent the newly created Central National Security
Commission (CNSC) and the military reform will fill the civil-military
gap and facilitate the deliberation of space policy. Part 5 draws the
correlation between ASAT capability and the Treaty on Prevention of
the Placement of Weapons in Outer Space and of the Threat or Use of
Force against Outer Space Objects (PPWT) and discusses the political
factors pertaining to the prospect of the PPWT. It also discusses how far
China is from the International Code of Conduct for Outer Space
Activities (ICoC), taking into account the interactions between the
PPWT and the ICoC.
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