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Launcher policy in Europe: from symbol to the market?

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Launcher policy will be one of the major issues discussed at the upcoming ESA Council at Ministerial Level. Europe is at the crossroads, as it needs to find the adequate balance between political necessities (ensuring an autonomous access to space) and economic realities (reducing costs).

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Launchers constitute one of the most tangible elements of a nation’s space activities. This is particularly the case in Europe, where Ariane 5 is a strong symbol of panEuropean identification. For more than thirty years, the successes of the Ariane launcher family epitomised European achievements in space. At the same time, they are the result of technological and scientific integration processes at the European level.

Launchers are strategic enablers: more than a goal in itself, the establishment of launch capabilities is the indispensable precondition for any comprehensive space policy. Thus, access to space has a dual dimension: it is a strategic necessity, as it enables independent decision-making based on space data, but it is also a service of general interest, as it allows the deployment of space applications providing wide socio-economic benefits.

Launcher policies mirror all the major features of the European Space Policy (ESP), as they deal with political, industrial, strategic, symbolic, governance and economic issues. In addition, the launch sector is closely associated with the concept of autonomy, often presented as the main driver behind the ESP. Two conflicting positions lie at the heart of the debate. The political standpoint argues that an autonomous access to space is a strategic necessity for Europe, and that this political objective should dominate any other consideration. A second perspective rather focuses on the economics of the launch sector, putting emphasis on cost-effectiveness and on commercial logics. The major challenge for Europe is to reconcile these two positions into a coherent launcher policy.

Most of the paradoxes of Europe’s launcher policy stem from these seemingly contradictory positions. Arianespace is the leader on the commercial launch market for several years now, but it recently faced financial difficulties. Similarly, Europe is the only major spacefaring entity without a development programme for a next generation launcher as of yet. Finally, it is the only space power without a clear preference policy ordering to launch institutional payloads aboard European rockets.

In the wake of the ESA Council at Ministerial Level, which will take place in Italy next fall, launchers came back on the top of the European space policy agenda. It will be one of the major issues discussed at the Council, and the outcome of the negotiations will have an enduring effect on the future of the ESP. Indeed, Europe’s position on launchers seems to be increasingly fragile. Confronted with a growing global competition in a rapidly evolving commercial market, Europe’s political support is gradually fading away in a context of financial and economic crisis.

The European launcher strategy is burdened by structural political constraints. Due to a complex interplay between a rising EU and competing national interests, there is no consensus on a European definition of autonomous access to space (1). In addition, current discussions and future decisions on the issue are overshadowed by the crisis. This lead to a real paradigm shift in the definition of the future launcher: the focus is now put on the demand, rather than on the supply side (2). Finally, first elements of a future European launcher policy will be sketched (Conclusion).

 

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978-2-36567-031-9

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Launcher policy in Europe: from symbol to the market?

Decoration
Author(s)
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Ifri Building, Logo, Paris

Christophe VENET

Intitulé du poste

Former Research Fellow

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Russian spaceship in orbit of planet Earth, View from the ISS station
Space Program
Accroche centre

Space has become a crucial theme in the main international think tanks’ research activities as it entails important strategic, economic, and technological issues.

Since 2001, Ifri has integrated space in its research, notably by ensuring that the political dimension of scientific and human exploration programs is emphasized, and by supporting reflections on the Code of Conduct for Outter Space Activities.

Today, as part of its research agenda, Ifri mobilizes several of its centers and programs to transversally tackle the theme of space, through three main inputs:

  • the competition of powers, driven by the Sino-American rivalry;
  • critical points related to mastery of space, such as the issue of autonomous access to space or the mega-constellations necessary for the digital revolution;
  • these developments’ challenges for Europe and its status as a space power.

Since the Summer 2020, Ifri has been coordinating a tripartite European Space Governance Initiative, together with two other renowned European think tanks: the Deutsche Gesellschaft für Auswärtige Politik (DGAP) in Germany and the Istituto Affari Internazionali (IAI) in Italy.

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The European Space Model: Renewing Ambition in a Changing Strategic Landscape

Date de publication
17 March 2025
Accroche

The European space model, based on science, cooperation and trade, is now being undermined by changes in international relations and the economic upheavals brought about by New Space. In light of the war in Ukraine and American disengagement, Europe needs to rethink its strategy by adding a fourth pillar dedicated to defense, in order to strengthen its sovereignty and deter possible aggression against the continent.

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Sat-to-Cell: Towards Universal Connectivity?

Date de publication
25 September 2024
Accroche

Sat-to-Cell is a new type of service that connects smartphones directly to satellites. It has recently enabled innovative applications such as emergency text messaging via satellite. The technology is developing rapidly, and many questions are now being raised about its potential impact.

Paul WOHRER Eric BOTTLAENDER
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NATO's New Ambitions for Space

Date de publication
04 April 2024
Accroche

Ahead of Russia's invasion of Ukraine, a devastating cyber attack targets Ukrainian army communications, exposing Western dependence and vulnerability to space technologies, and calling NATO's defensive posture into question.

Béatrice HAINAUT
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China in International Space Cooperation: Heading South

Date de publication
19 January 2024
Accroche

In only three decades, China has become one of the world’s top space powers. At the turn of the 2020s, almost suddenly, China became the main challenger to the US, although with a significant remaining gap to bridge.

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Launcher policy in Europe: from symbol to the market?