Administrative reform of Japanese Space Policy Structures in 2012

In Japan, there are several government ministries and agencies with important roles in the development and use of space. In 2012, Japan restructured its administrative organs related to the development and use of space through legal amendments to the original acts that established these organs. Although this was an important administrative reform that took four years of planning and discussion to accomplish, this restructuring has not been communicated well outside of Japan. This study provides the first comprehensive overview of the recent legal changes in Japanese space policy. In contrast to some reports, the Ministry of Education, Culture, Sports, Science and Technology (MEXT) still has primary responsibility for the finances and personnel of the Japan Aerospace Exploration Agency (JAXA). This continues to be true even after the Cabinet Office begins its new role as the focal point for formulating Japanese space policy. It remains to be seen how the policy direction of the Cabinet Office will interact with the operational, financial, and personnel responsibilities of MEXT. I argue that knowledge of the roles of MEXT and the Cabinet Office in space policy, and the tension between the two organizations, is key to understanding Japan's future space policy decision-making process. By tracing the history of Japanese space policy since 2001, I also suggest that if bureaucrats had thought more deeply before making major reforms to space policy and its administration, there would have been less confusion over the development of national space policy this past decade. This paper concludes by identifying some key elements to monitor in the coming years of Japan's space policy.     

Exploring a structured decision approach as a means of fostering participatory space policy making at NASA

In 1996, the National Research Council's Committee on Risk Characterization argued convincingly for the implementation of more participatory approaches to improve policy making by incorporating a wide range of stakeholder values and concerns in policy decisions. Guidance about how to best carry out such an approach in an agency like NASA is less clear. To address this gap, this paper discusses how the use of a structured approach to involve expert and non-expert stakeholders in policy making can improve the quality of stakeholder involvement and resulting decisions for space policy making at NASA. Supporting this discussion are results from two recent experiments. One compared the quality and type of participants’ input in a conventional stakeholder workshop with that of a more structured participatory process. The results from this experiment showed that a structured decision approach leads to more thoughtful and better-informed decisions. A second experiment showed that structured, participatory decision processes can help to legitimize space policy decisions after they have been implemented, leading to future benefits for the space agency.     

United States space policy and international partnership

Has the current US space policy improved the USA's overall strategic position? Does it affect favorably international partnerships? These questions are examined in terms of security, political economy, and influence. In today's context, where there are more space players, more options, more potential for unintended consequences, and higher stakes, unilateral action is more limited in its effectiveness than in earlier times. Surveying current US space policy, it is not clear that data-driven, analytically based decisions are being made to affect positively national independence, innovation, market creation, and international perceptions of the USA as a trustworthy partner. More promising are the steps taken to bolster a predictable space operational environment and economic competitiveness. Ultimately, in order to achieve American excellence and leadership, a ‘closed loop’ on the policy system is needed, to gauge regularly and systematically whether the US is achieving the desired national outcomes.     

Reorganization of the space development structure in Japan

At the end of 2002 a new law was passed to create a single space agency for Japan out of the merger of NASDA and NAL with ISAS. The new agency will be an independent administrative institution with day-to-day autonomy from the government. The authors provide the background to the decision to restructure Japan's space development and describe the goals, organization and scope of activities of the agency. Steps have been taken to counter concerns that consolidating the three existing organizations could hamper the conduct of basic research.     

Space policy responsiveness: The relationship between public opinion and NASA funding

Is the government responsive to public opinion of space policy? In 1995, Stimson et al. demonstrated that changes in domestic public policy were in response to changes in public opinion. Ten years later, Jacobs and Page demonstrated that foreign policy was not responsive to public opinion, and instead responds to the opinion of business leaders. This research builds off these seminal works to explore who influences space policy. Findings suggest that the public supports the idea of space exploration, while also feeling that spending on space exploration is “too high.” Therefore, the government appears to be giving the people exactly what they want in regards to NASA’s budget – more money each year – but at the same time a smaller percentage of the federal budget.     

A forward looking space policy for the USA

The 1958 Space Act created separate but related military and civilian space exploration and exploitation efforts for the USA. This Viewpoint reexamines the assumptions of the act, and questions how they might be modified to fit with technical and political developments since 1958. Should separate civilian and military programmes continue? How should launch vehicles be developed and operated? What should be the major goals of the space exploration programmes? A well defined and forward looking space policy is proposed, including a lunar base programme, which will take the initiative away from the USSR.     

Future Italian space policy

Italy initiated space activities in the late 1950s; however, it was only in the 1980s that these activities grew to the point where Italy became a major spacefaring nation. In 1988, the Italian Space Agency was created with the goal of coordinating all Italian space activities, but severe administrative and organizational difficulties hampered its operation. This viewpoint proposes a new space policy-making process, in view of the increased effectiveness that space activities can bring to various departments of the Italian government and to allow it to better exploit investments in space activities.     

Game theory and the law and policy of outer space

Cooperation is a major theme of international space law but the law and history also recognize the existence of competition and conflict. What are the trend lines in terms of promoting collective goods, commercialization and new military uses of space? An overview of selected major laws and policies, as they relate to cooperation, competition and conflict, combined with a theoretical examination of game theory (zero-sum and non-zero sum games), will enable us to obtain an overall understanding of the space age and the choices that space lawyers and policy makers face in the future.     

“We can lick gravity,but…”: What trajectory for space in Australia?

In 2008 the Australian Senate Economics Committee held an inquiry into the state of Australia's space science and industry sector. One of the most important problems identified by the committee was that Australia lacked both a space agency and a national space policy in order to formulate a whole-of-government approach to space issues. This article briefly discusses Australia's historical political lacuna in relation to space before considering how space issues fit within broader contemporary policy frameworks at both the domestic and international levels. Using some of the findings from the inquiry, the author then addresses some core issues that the Australian government should consider when constructing a national space policy.     

A normal space power? Understanding ‘security’ in Japan's space policy discourse

With the enactment of its ‘Basic Space Law’ in 2008, a significant shift occurred in Japan's space policy away from a narrowly circumscribed interpretation of the concept of space for ‘peaceful purposes’ to a broad understanding of space for ‘security’. Viewed in a global context, Japanese space policy appears symptomatic of a broadened and more malleable understanding of space for security purposes, as already advocated by several other leading spacefaring powers, and proponents of this understanding of space for security argue that this is consistent with international standards and the expectations of a ‘normal’ space power. By attempting to redefine understandings of ‘peace’ and ‘security’, however, the Basic Space Law and subsequent direction of Japanese space policy raise complex and ongoing issues over the interpretation of Japan's ‘Peace Constitution’. This article reviews policy and academic discussions of the recent evolution of Japanese space policy in this respect, arguing that greater emphasis on ‘security’ – understood in a deliberately broad sense in policy terms – has been key to articulating and justifying the reformulation and redirection of Japanese space policy, but that this also brings with it room for ambiguity over the exact nature of Japan's space ambitions at both national and regional levels.     

Transforming Japan's space policy-making

Since its beginning the objective of Japanese space policy has been to ‘catch up’ with advanced spacefaring countries. However, this catching-up strategy is now facing several difficulties, because of the downturn in the economy and changing political and technological circumstances. In such circumstances the Japanese space community has realized the need to change its national space strategy. In 2005 a group of powerful Japanese politicians issued a report on constructing a national space strategy, which recommended that the government establish a new decision-making structure by creating a new Basic Law of Space Activities. These efforts underline the need for Japanese space to shift the focus of its policy from technological development to applications.     

Leading change at NASA: The case of Dan Goldin

Daniel Goldin set the record for longevity as administrator of NASA, serving from 1992 to 2001. Active and controversial, he was unusually visible as a self-proclaimed ‘agent of change’. Coping with a turbulent political environment, Goldin directed NASA from the end of the Cold War to the early 21st century. He effected change in the multitude of programs under his aegis, especially the Space Station and robotic Mars program. He was hailed at one point as a miracle worker and poster boy of government reinvention for his ‘faster, better, cheaper’ strategy of ‘doing more with less’. But Goldin left the agency under fire for cost overruns and reforms that reached too far. Using a policy innovation process approach, this paper traces Goldin's eventful years at NASA, his policy ends and administrative and technological means. It analyzes the record of success and failure of one of the most, influential administrators in NASA history. That record provides useful lessons for how an administrator gains, uses, and loses power in the US space policy system.     

The USSR's prudent space policy

Soviet space policy has long been viewed in the West as militaristic and aimed at achieving superiority, a situation which is abetted by the secrecy in which Soviet space activities are shrouded. This article argues, however, that Soviet space policy is essentially prudent and conservative, and based on exploiting existing technology to the maximum. Whilst it has provided the USSR with an impressive space potential, it does not mean that the USSR is ahead of the USA in space. Nevertheless, in the future the USSR is likely to undertake more international cooperation and offer commercial launch services.     

Canada's early space policy development 1958–1974

In the absence of a mature body of literature on the origins and evolution of the Canadian space program, recent official publications have arbitrarily chosen 1974, the year that Canada's civilian space policy was ratified in the House of Commons, as the popular date of origin. However, this start date ignores several significant policy documents that influenced Canada's space program development prior to that year. This article examines policy that shaped Canada's space program during the ‘golden age’ of space exploration (1958–1974), and will demonstrate that the true origins of the Canadian space program date back much earlier that the current perception.     

Europe needs a space policy

This article argues that growing space activities are essential to maintain European high-technology ambitions. The approval of ESA's future programme at the ministers' meeting in late 1991 is regarded as an absolute minimum and the adoption of a collective European space policy setting European autonomy, international cooperation, competitiveness and equitable market conditions is urgently required. The article further argues that a power structure to define, adopt and update such a policy and monitor its implementation must be established. It should be based on ESA, with other organizations concerned with space playing advisory roles.     

US space policy assessed

Recognizing that, in the wake of major geopolitical changes, technological developments and global recession, the US space programme needed to change, then Vice President Dan Quayle commissioned a review of the USA's space policy which was completed at the very end of 1992. Its findings — in summary form — and recommendations are reprinted here.     

The need for a United Nations space policy

The international community is entering an era of shared global utilities from space and is increasingly reliant on space systems and activities that support a myriad of applications and utilities on Earth. A growing number of states are seeking to develop or extend their space capabilities. At the same time, a variety of non-state actors are also extending their involvement in space activities. The United Nations is the principal inter-governmental forum to deal with various space issues of global importance. Moreover, the United Nations system itself has become increasingly reliant on space systems for its day-to-day operations. In order for the United Nations to play its necessary role in the space arena, it will need to be supported by a space policy. A United Nations space policy would provide over-arching guidance on space activities for UN stakeholders in the space arena; it would inform UN participation in space activities and would promote improved coordination and cooperative governance of outer space activities. A world without a common UN space policy will not be able to respond to the challenges of the rapidly evolving space arena in the 21st century.     

Space policy challenges facing the Barack Obama administration

President Barack Obama faces space policy challenges in security, commercial and civil areas in an era in which the use of space assets for these ends is irreversible. The very future of space is linked to addressing the challenges within the first term of the Obama administration. This paper draws on, but does not attempt to summarize, discussions at the National Space Forum 2008 organized by the Eisenhower Center for Space and Defense Studies at the United States Air Force Academy and the Center for Strategic and International Studies (CSIS) in Washington, DC. The goal of the forum was to examine the key decisions that will need to be made in regard to space policy by facilitating debate among the security, commercial and civil space sectors, and the broader national policy community. The paper focuses on choices which, for budgetary or other reasons, cannot be delayed. A brief discussion of the issues surrounding each choice is presented, followed by the implications of pursuing different choices. One key assumption underlies everything: resources available for activities in space will not grow significantly in real terms over the course of the Obama administration.     

UK space policy

With an eye on the imminent ESA ministerial meeting, the rationale behind the UK government's often criticized assessment of the utility of space activities is explained. The structure of the country's space policy is described and details given of the UK's involvement in ESA programmes.