Space Governance

Trend Analysis

🔺 Rising:

• Multilateral frameworks gaining momentum: The Artemis Accords reached 56 signatories with renewed commitment at the IAC 2025 in Sydney, demonstrating growing international consensus on space exploration principles
• Regional space governance initiatives: The EU Space Act proposal (June 2025) represents Europe’s push for harmonized regulations across member states, addressing fragmentation in national space laws
• Commercial space regulation streamlining: The U.S. executive order on commercial space competition (August 2025) signals accelerated deregulation and faster licensing processes to boost competitiveness
• Cybersecurity integration: Space cybersecurity requirements are being embedded across international frameworks, from the EU Space Act to U.S. federal acquisition regulations
• Active debris removal regulations: New national laws in France, Brazil, Japan, and New Zealand specifically address in-orbit servicing and debris removal activities

🔻 Declining:

• Unilateral action without coordination: Growing recognition that space traffic management requires international cooperation rather than fragmented national approaches
• 25-year deorbiting standard: Both U.S. FCC and ESA have moved to stricter 5-year post-mission disposal requirements for LEO satellites
• Treaty-only governance models: Non-binding instruments like the Artemis Accords and technical standards are increasingly complementing traditional UN treaties
• Legacy system exemptions: Pressure mounting to retroactively apply cybersecurity requirements even to aging space systems despite technical challenges

👀 Watch List:

• EU Space Law implementation timeline: Expected late 2024/early 2025 release will establish binding requirements for EU and non-EU operators providing services in the European market
• U.S. government shutdown impacts: Ongoing appropriations challenges affecting NASA funding and space program continuity through FY2026
• Space traffic management standardization: Multiple nations developing STM frameworks with calls for international harmonization to prevent “flags of convenience” problem
• Global South participation: Growing voices from developing nations seeking more equitable representation in space governance structures beyond traditional spacefaring powers
• In-space servicing regulations: ISAM activities expanding rapidly but lacking comprehensive international legal frameworks, creating liability and jurisdiction uncertainties

🧑‍💻 Expert’s View

The space governance landscape is undergoing a fundamental transformation from Cold War-era multilateral treaties to a hybrid model combining binding regulations, voluntary frameworks, and technical standards. The Artemis Accords’ expansion to 56 nations represents a pragmatic middle path—principles-based agreements that can adapt more quickly than formal treaties while building consensus on critical issues like safety zones, transparency, and resource utilization. However, this multipolar approach creates friction, particularly with China and Russia pursuing alternative governance architectures through the International Lunar Research Station.

The EU’s ambitious Space Act marks a significant regulatory moment, potentially establishing Brussels as a standard-setter for global space activities through market access requirements. Similar to GDPR’s extraterritorial impact, non-EU operators serving European markets will need to comply with comprehensive cybersecurity, debris mitigation, and traffic management obligations. This regulatory model may prove more effective than traditional international lawmaking for addressing urgent challenges like orbital debris and cyber vulnerabilities.

Meanwhile, the tension between commercial space growth and regulatory oversight remains acute. The U.S. executive order prioritizing streamlined licensing reflects industry pressure, but inadequate regulation risks creating a “tragedy of the commons” in valuable orbital regimes. The challenge for policymakers is fostering innovation while ensuring long-term sustainability—a balance that will require unprecedented international coordination as space becomes increasingly congested and contested.

🔮 Industry Outlook

Over the next two months, expect continued momentum on regulatory harmonization efforts, particularly around space traffic management and debris mitigation. The UN Conference on Space Law and Policy (November 19-20, 2025) will likely produce recommendations on implementing existing treaties and addressing emerging challenges like ISAM activities. The outcome could influence whether nations move toward binding STM regulations or continue relying on voluntary guidelines.

The U.S. government funding situation will significantly impact space governance priorities. If appropriations remain stalled, expect delays in regulatory reform initiatives and reduced U.S. engagement in international forums. Conversely, resolution could accelerate implementation of the commercial space executive order’s provisions, potentially setting new precedents for rapid licensing and novel space activity authorizations.

The cybersecurity landscape will see increased activity as various nations and organizations implement space-specific security requirements. Watch for tensions between proprietary technology protection and information-sharing mandates, particularly regarding space situational awareness data. The EU Space Act’s finalization will be particularly consequential—if adopted as proposed, it will create the first comprehensive space regulatory framework requiring compliance from global operators, potentially triggering similar initiatives in other jurisdictions seeking to assert regulatory sovereignty over space activities affecting their territories.

📰 Selected News Sources

Artemis Accords Principals Meeting at IAC 2025 ↗

Representatives from 56 Artemis Accords signatory nations convened at the 76th International Astronautical Congress in Sydney on September 29, 2025, marking the coalition’s fifth anniversary. Acting NASA Administrator Sean Duffy emphasized that the Accords represent American values leading space exploration, ensuring peaceful and sustainable activities. Discussions focused on implementing core principles including non-interference guidelines, transparency requirements, orbital debris mitigation, systems interoperability, and scientific data release protocols. Australia’s Space Agency head highlighted the importance of supporting new Indo-Pacific signatories. Recent signatories in 2025 include Finland, Bangladesh, Norway, and Senegal, with Senegal becoming the second nation to participate in both the Artemis Accords and China-Russia International Lunar Research Station.

EU Space Act Proposal Introduces Comprehensive Regulatory Framework ↗

The European Commission launched the EU Space Act on June 25, 2025, proposing harmonized regulations across the European Union’s fragmented space sector. The initiative addresses 13 different national regulatory approaches that currently increase operational complexity and costs for businesses. The Act establishes three core pillars: safety (space object tracking, debris mitigation), resilience (cybersecurity requirements, business continuity), and sustainability (environmental protection, competitiveness). A public consultation remains open through November 24, 2025. The framework aims to create a single market for space activities, particularly benefiting startups and SMEs by enabling easier cross-border operations and reducing compliance burdens.

Space Law Update: October 2025 Developments ↗

Multiple significant space governance developments occurred in early October 2025. Representative French Hill introduced the Taiwan and American Space Assistance Act (H.R. 5626) expanding NASA and NOAA cooperation with Taiwan. The U.S. government shutdown beginning October 1 affected space agencies, with NASA’s Artemis program maintaining operations as essential work. Italy faces a pivotal decision between accelerating its own LEO constellation development or relying on SpaceX’s Starlink as an interim solution while awaiting the EU’s IRIS² program rollout. A government report acknowledged Italy’s limited industrial representation in IRIS² and recognized Starlink’s operational advantages, though reaffirmed commitment to European strategic autonomy. The House Appropriations Committee preserved NASA’s FY2026 budget at $24.8 billion, rejecting a proposed 24.3% cut.

International Governance Framework for ISAM Activities ↗

In-orbit servicing, assembly, and manufacturing (ISAM) activities represent an $14.82 billion market opportunity by 2031, yet lack specific provisions under international space law. While the Outer Space Treaty provides basic governance covering state responsibility and liability, several countries have adopted national ISAM regulations. Brazil’s Law 14,946 (July 2024) includes satellite life extension and debris removal services. France amended its regulations (June 2024) to define orbital servicing with debris collection and collision prevention requirements. Japan issued 2021 Guidelines for spacecraft performing on-orbit servicing. New Zealand adopted a 2023 policy for active debris removal. However, national laws are developing heterogeneously with diverging interpretations, creating uncertainty around liability apportionment, fault establishment, and control transfer—critical issues for effective ISAM operations requiring international interoperability.

ESA Space Environment Report 2025: Debris Crisis Escalates ↗

The European Space Agency’s 2025 Space Environment Report reveals approximately 40,000 tracked objects in Earth orbit, with only 11,000 being active payloads. The actual number of debris objects larger than 1 cm—capable of causing catastrophic damage—is estimated significantly higher. Despite improving adherence to debris mitigation standards, particularly in the commercial sector, compliance remains insufficient to prevent debris population growth. Even without additional launches, fragmentation events add debris faster than natural atmospheric reentry, creating the Kessler syndrome cascade effect. About 90% of rocket bodies now comply with 25-year reentry standards, with over half reentering in controlled manner. Approximately 80% meet ESA’s stricter 2023 standard requiring orbit vacation within 5 years. Active debris removal is now deemed necessary to prevent certain orbits from becoming unusable.

EU Space Traffic Management Stakeholder Mechanism Advances ↗

The European Commission adopted an implementing decision on June 19, 2025, outlining procedures for additional EU Member States to join the EU Space Situational Awareness Partnership, critical for preventing in-orbit collisions amid increasing space activities. On September 17, 2025, DG DEFIS held a workshop with Katholieke Universiteit Leuven on designing voluntary STM measures. The EU STM approach establishes a comprehensive stakeholder mechanism mirroring four strategic avenues with one main group and four subgroups meeting regularly. STM Subgroup 1, focusing on civilian and military requirements, convened for its fourth meeting with EU/Norwegian civilian space operators and the European Defence Agency aggregating military input. Their requirements are already shaping EU policymaking and engagement. Preparations continue for establishing an international STM consultation forum, with DG DEFIS attending UNOOSA conferences and co-organizing UN Space Sustainability Days 2025.

Trump Executive Order Enables Commercial Space Competition ↗

President Trump signed an executive order on August 13, 2025, aimed at enhancing American space leadership by streamlining commercial regulations. The order directs the Secretary of Transportation to eliminate or expedite environmental reviews for launch and reentry licenses using authorities under 51 U.S.C. 50905(b)(2)(C), including establishing NEPA categorical exclusions. The Secretary of Commerce must propose a novel space activity authorization process within 150 days for activities covered by Outer Space Treaty Article VI but not governed by existing frameworks, containing definitive timelines for approvals/denials. The order requires evaluation of states’ Coastal Zone Management Act compliance affecting spaceport development, with potential revocation of approvals hindering infrastructure. A new senior position in the Transportation Department will advise on fostering innovation and deregulation in commercial space transportation.

FAA Reports Record Commercial Space Operations ↗

The Federal Aviation Administration recorded 148 licensed commercial space operations in FY2024, a 30% increase over the previous year, with forecasts suggesting potential doubling by FY2028. The agency is launching an Aerospace Rulemaking Committee to update the Part 450 launch and reentry licensing rule, developed to streamline regulations, reduce licensing frequency requirements, and decrease waiver processing. The committee, comprising industry members and academics, will address nine topics including flight safety analyses, system safety, and means of compliance, submitting recommendations by late summer 2025. FAA staffing reached historic highs of 165, up from 118 in FY2022. In FY2024, the office made 49 licensing actions, conducted 23 environmental reviews, and performed 810 inspections, meeting the 180-day licensing deadline 98% of the time.

Space Systems Cybersecurity: Industry Perspectives Report ↗

The White House Office of the National Cyber Director released a January 2025 report synthesizing space industry feedback on cybersecurity challenges following the March 2023 Space System Cybersecurity Executive Forum. Industry participants emphasized that many companies spend more resources on compliance and translating requirements than actively implementing cybersecurity best practices. Critical gaps include: lack of cybersecurity operations technologies suitable for resource-constrained space systems; inconsistent government requirements across agencies regarding code quality and feature sets; difficulties retroactively applying security to legacy systems operating beyond design life; and frameworks primarily designed for terrestrial IT rather than operational technology systems. The industry called for regulation with enforcement mechanisms, clearer prioritization of cybersecurity in mission planning, DevSecOps principles from mission start, and physical co-location of aerospace and computer engineers to enhance mutual understanding.

EU Space Act Imposes Cybersecurity Obligations ↗

The European Commission’s June 25, 2025 Space Act proposal includes comprehensive cyber-resilience obligations for EU and non-EU space operators, with extraterritorial application to third-country entities providing services to EU space operators unless their home country has “equivalent” regulatory regime recognition. Requirements mirror NIS 2 and DORA obligations: all-hazards risk management processes; cybersecurity risk assessments across all infrastructure segments; asset management and access controls; encryption implementation; testing programs including threat-led penetration testing; security incident detection and reporting to senior management, boards, and regulators; and third-party vendor risk management frameworks. Management bodies face personal liability for compliance. The Space Act will override NIS 2’s cybersecurity obligations for the space sector upon entry into force. Organizations must assess scope applicability even without EU establishment.

Trump Cybersecurity Executive Order Addresses Space Systems ↗

President Trump’s June 6, 2025 cybersecurity executive order includes specific provisions for space systems while updating prior Obama and Biden administration directives. Section 3 directs agencies to continually verify Federal space systems possess requisite cybersecurity capabilities through continuous assessments, testing, exercises, and modeling/simulation. USGS, NOAA, and NASA must review civil space contract requirements in the Federal Acquisition Regulations and recommend updates to cybersecurity requirements and contract language by January 11, 2026. The National Cyber Director must inventory civil agency space ground systems, identify those considered major information systems, and recommend cyber defense improvements. The order continues emphasis on NIST guidance for secure software development, requiring NIST to update Publication 800-218 (Secure Software Development Framework) by March 2026.

FCC Implements 5-Year Deorbiting Rule for LEO Satellites ↗

The Federal Communications Commission finalized rules in August 2024 (effective date announced in Federal Register) shortening the post-mission disposal benchmark for LEO space stations from 25 years to 5 years. The Commission determined it is no longer sustainable to leave satellites in LEO to deorbit over decades given increasing congestion. The regulations aim to incrementally slow orbital debris growth, particularly in LEO with its expanding satellite populations. While rules may impose additional costs including fuel for faster decommissioning and opportunity costs from altered mission plans, the FCC finds benefits outweigh costs through reduced collision probabilities, fewer service outages, and decreased collision avoidance maneuver frequency. OMB approved the new information collection requirements for three years following the Orbital Debris Report and Order, Second Report and Order, and Reconsideration Order implementation.

Global South Perspective on Space Governance Equity ↗

A July 2025 academic analysis argues that outer space as a global commons faces unprecedented pressure from increasing military, commercial, and scientific activities. The Artemis Accords and India’s 2023 Space Policy facilitate commercialization potentially compromising global commons principles. The paper emphasizes that voices from the Global South (Latin America, Africa, Asia, Oceania) must transform governance mechanisms toward more representative and inclusive structures, as these regions increasingly rely on space technologies for telecommunications, climate monitoring, and disaster control. The UN COPUOS consensus-based system produces non-binding recommendations with limited enforcement, affecting Global South status. While the Artemis Accords have 55 signatories (as of May 2025), exclusion of Russia and China creates parallel governance systems fragmenting global initiatives. The study advocates applying environmental governance principles recognizing differential capacities while ensuring global engagement.

UN Conference on Space Law and Policy Scheduled November 2025 ↗

The United Nations Office for Outer Space Affairs will hold a Conference on Space Law and Policy November 19-20, 2025 in Vienna, Austria, with approximately 200 participants including policymakers, private sector representatives, and academics from developing and developed nations. The conference aims to promote adherence to the five UN space treaties and assist states in implementing them, while examining challenges from growing space actors within existing legal frameworks. Core themes include: translating space sustainability into national legal/regulatory frameworks; operationalizing the Rescue and Return Agreement through practical implementation examples; and addressing legal aspects of emerging operations including on-orbit servicing, active debris removal, and satellite transfer. The event focuses on space debris across its full lifecycle with sessions on mitigation standards, treaty implementation, and novel space activities.

Latvia Accedes to Outer Space Treaty ↗

Latvia officially acceded to the Treaty on Principles Governing the Activities of States in the Exploration and Use of Outer Space, Including the Moon and Other Celestial Bodies on May 23, 2025, with the treaty entering into force for Latvia the same day. The accession was recorded by the U.S. Department of State Depositary Notification Reference No. 2025-015. This brings the total number of parties to the foundational 1967 Outer Space Treaty to 117 countries as of May 2025, with another 22 having signed but not completed ratification. The treaty remains the cornerstone of international space law, establishing principles including prohibition of nuclear weapons in space, limitation of celestial bodies to peaceful purposes, freedom of exploration and use by all nations, and prevention of sovereignty claims over outer space or celestial bodies.

Space Debris Mitigation: Communications Engineering Analysis ↗

A May 2025 academic analysis in Communications Engineering recommends comprehensive measures across the satellite lifecycle to promote space sustainability amid crowding orbital space, particularly in LEO. The paper notes the EU plans to introduce its Space Law in 2025, likely requiring compliance from all companies providing services within EU markets, including non-EU actors. Requirements will span launch through collision avoidance, information sharing, and deorbiting. The ESA Space Debris Office’s annual Space Environment Reports since 2016 increasingly focus on sustainability, with debris mitigation requirements aiming for net-zero pollution in space by 2030. ESA suggested extending protected regions beyond LEO and geostationary orbits to medium Earth orbits used by Global Navigation Satellite Systems. The study emphasizes needs for stronger regulations, fiscal and market-based interventions, multilateral institutions, and active debris removal to address escalating risks from satellite miniaturization, falling launch costs, and megaconstellation deployment.