Space Law in the European Context

Foreword
Table of Contents
Acknowledgment xxxiii
Introduction xxxvii

Part I The CNES Act from 1961 to Today 1
The Earliest Steps of the French National Space Policy and CNES 3
1 Statute and Mission 7
1.1 Overall Original Mission under the 1961 Constitutive Act 7
1.2 Expanded Mission Between 1961 and 2008 (FSOA) 9
1.2.1 Responsibility in Launcher Systems’ Development 11
1.2.2 Building a Competitive Space Industry: CNES’ Industrial Policy 13
1.2.2.1 Creation of a National Space Industry in the 1960s 14
1.2.2.2 Structural Adjustment Under New Framework of European and International Cooperation from the 1970s 15
1.2.2.3 Adaptation to the Operational and Commercial Use of Space by the End of 1970s and Privatization Process from 1990s to Nowadays 16
1.2.2.4 Abstract on CNES’ Industrial Policy 20
1.2.3 Development and Management of Ground Facilities for Satellite and Launch Operations (Toulouse Space and Guiana Space Centres) 21
1.2.4 Shareholdings and Subsidiaries to Develop, Produce, and Market New Space Services 23
1.2.5 Public Interest Joint Organizations to Support Space-Related Research (GIP) 27
1.2.6 Participation, Along with the French Government, in the European Space Policy and Programs Governance (ESA and EU) 28
1.2.7 Responsibility in Defence’ Space Segment Programs 29
1.2.8 Recurrent Space Operations 30
1.2.9 CNES as a Service Provider 30
1.3 Synthesis of Chapter 1 on CNES’ Statute and Mission before the Advent of FSOA 30
2 Governance and Management 33
2.1 CNES’ Administrative Authorities of Supervision – Space Policy Overall Organization and Functioning 33
2.1.1 CNES’ Supervisory or Line Ministers (ministères de tutelle) 35
2.1.1.1 Overall Organization of the Government Supervision on Scientific and Technical Research and Space Policies 35
2.1.1.2 Supervision on Space Policy and CNES 37
2.1.2 Interministerial Committees on Space Policy 42
2.1.2.1 The Space Research Committee and the Space Council (1959-1976) 42
2.1.2.2 Committee on Space Applications (1976-1979) 42
2.1.2.3 The Space Committee (1989-1992) 43
2.1.2.4 The CoSpace (from 2013) 44
2.2 CNES’ Board of Directors and Executive Governance 44
2.2.1 Board of Directors’ Competences 45
2.2.2 Committees Associated with the Board of Directors 46
2.2.2.1 The Board of Directors’ Audit Committee 46
2.2.2.2 The Committee for Scientific Program (CPS) 46
2.2.2.3 Other Former Programs Committees 47
2.2.3 CNES’ Chairman, Chief Executive Officer, Director-General and Deputy Director-General 48
2.2.3.1 Distribution of Powers Between the President and the Director-General since 1962 48
2.2.3.2 The Current Powers of CNES’ President, as Chief Executive Officer (CEO) 50
2.2.4 State Economic, Budgetary, and Financial Control: The General Controller 51
2.2.5 Public and Private Accountancy Rules: the Accounting Officer – the Statutory Auditors 53
2.2.6 Procurement Regulations: The Internal Procurement Commission 54
2.2.7 CNES’ Staff Status 55
2.2.8 Synthesis on the Evolution of CNES’ Governance Supervision 56
3 Resources and Associated Supervision and Audit 59
3.1 CNES’ Budget Appropriation 59
3.2 Auditing Bodies (ex-post control) 60
3.2.1 The National Court of Auditors (Cour des Comptes) 60
3.2.2 The High Council for the Evaluation of the Research and the Higher Education (HCERES) 60
3.2.3 Other Specific High Level Assessment Missions or Appraisal Reports 61
4 Mission’s Conditions of Implementation: Space Research and Development Programs 63
4.1 French National Program and International Cooperation 64
4.1.1 National Requirements 64
4.1.1.1 General Regime for CNES’ Program Authorization 65
4.1.1.2 Specific Regime of Authorization on Space Operations and Space-Based Data (FSOA) 65
4.1.1.3 Other Prior Authorizations: National Security, Frequency Spectrum, Network and Services and Competition Law Compliance 66
4.1.2 CNES’ International Cooperation Mechanisms 69
4.1.2.1 Traditional Building Blocks of CNES’ International Space Cooperation 71
4.1.2.2 Other Forms of Arrangement 72
4.1.2.3 Common Features on International Cooperation Instruments 73
4.1.3 Implementation with Industry and Other Space Stakeholders 75
4.1.3.1 CNES as Public Procurement Actor 76
4.1.3.2 CNES’ Partnership Policy 80
4.1.3.3 CNES’ Subsidiaries and Holdings 81
4.2 CNES’ Contribution to European Programs 82
4.3 Interactions Issues between CNES’ Missions 86
4.3.1 The Issue of Potential Conflicts of Interests as Raised During FSOA’s Law-Making Up Process 86
4.3.2 Focus on Mission Entrusted to the CNES and Its President 88
4.3.3 Impact on CNES’ Staff Regime Regarding FSOA Officers 89
4.3.3.1 FSOA Basic Controllers (FSOA Art. 28) 90
4.3.3.2 Commissioned Officers (FSOA Art. 7) 90
4.3.3.3 Sworn Officers (FSOA Art. 10) 91
4.3.4 CNES’ Traditional Activities as Technical Center and Space Operator Dealings with FSOA Delegated Activities 91
4.3.4.1 CNES Activities as Space Program Agency 91
4.3.4.2 CNES’ Service Providing 92
4.3.5 CNES’ Stock Participations and Partnerships with Private Companies 93
4.3.6 Conclusion 93

Part II The French Space Operations Act 95
5 Rational for Space Law-Making in France 99
5.1 The 1990s Telecommunication Liberalization Momentum Expanded to Satellites Information Services 101
5.1.1 Privatization of Telecommunication Satellites Services 101
5.1.2 Privatization of Earth Observation Satellites Services 103
5.2 Privatization of Launch Base and Launcher Services 110
5.2.1 Agreements Between USA and Former USSR Countries Opening the Launch Services Market 111
5.2.2 Agreements between the United States and China on the Commercialization of Launch Services 112
5.2.3 CommonFeatures of Bilateral Agreements on Launch Services Negotiated by the United States with China, Ukraine, and Russia 113
5.2.4 Rules of the Road Discussions between the United States and Europe 114
5.2.5 Cooperation between Europe and Russia for the Commercializationof Soyuz Launch Services 118
6 The Development Stages of Legislation on Space Operations, from the First Studies in 1999 to its Entry into Force in December 2010 123
6.1 Study Report ‘The Legal Framework for Space Activities’ from the Department of the Ministry in Charge of Space between 1999 and 2003 123
6.2 Referral to the Council of State by the Prime Minister in July 2004 126
6.3 The Study ‘For a Legal Policy for Space Activities’ Conducted by the Council of State between 2004 and 2006 126
6.4 Development of the Bill by the Ministries between February and April 2007 128
6.4.1 Addition of a Declaratory Regime for Operators of Space-Based Data 128
6.4.2 Explicit Exclusion of CNES from the Scope of the Law 129
6.4.3 Definition of the Regime of Investigation, Criminal Sanctions, and the Ascertainment of Offences 130
6.4.4 New Special Prerogatives for the State and CNES to Manage Emergencies 130
6.5 Legislative Scrutiny of the Law between July 2007 and May 2008 130
6.5.1 First Reading at the Senate on 16 January 2008 130
6.5.1.1 Implementation of a Licensing System Constituting Approval of Procedures and Systems 131
6.5.1.2 Consultation with the Operator for Emergency Measures 131
6.5.1.3 Restatement of the Powers of the President of CNES for Emergency Measures 131
6.5.1.4 Referral to a Single Article on CNES Competences under FSOA 131
6.5.1.5 Suppression of the Referral to an Overall Implementing Decree for the Law 132
6.5.1.6 Recognition of the “Temporary Presence Exception” with Regard to Patent Infringement Seizure Actions 132
6.5.2 First Reading at the National Assembly on 9 April 2008 132
6.5.2.1 Introduction of an Orbital Control Phase for Space Objects 133
6.5.2.2 Redrafting of the Definition of End of the Launch Phase 133
6.5.2.3 Simplification of the Authorization Procedure for Operations 133
6.5.2.4 Relaxing of Insurance Obligations 134 6.5.2.5 Consolidation of the Liability Regime for Damage Caused to Third Parties 134
6.5.2.6 Limitation on Recourse Action by the State (in Art. 14) 135
6.5.2.7 Creation of a ‘License Constituting Authorization’ 136
6.5.2.8 Strengthening CNES’ Technical Compliance Mission as a Legal Entity 136
6.5.3 Final Reading at the Senate on 22 May 2008 and Promulgation 136
6.5.4 Finalization of Legislation on the State Guarantee in the Finance Act, following Validation by the European Union 137
6.5.4.1 The State Guarantee under the European Commission’s prior Opinion of 23 October 2007 137
6.5.4.1.1 Singularity of the State Guarantee System for Space Damage 138
6.5.4.1.2 Analysis of Compatibility 139
6.5.4.2 The State Guarantee under Article 119 of the Finance Act of 30 December 2008 141
6.5.5 Other Legislative Supplements Relating to the SOA: Amendment of the Insurance Code in 2011 144
6.6 Development of the Regulatory Mechanism: Implementing Decrees between 2008 and June 2009 144
6.6.1 The Authorisation Decree of 2009 (D-A) 145
6.6.1.1 Administrative and Financial Authorization Criteria 146
6.6.1.2 The Concept of Technical Event 146
6.6.1.3 A New Procedure for Pre-Certification of Procedures and Systems 147
6.6.1.4 Various Clarifications Brought on some FSOA’s Items 148
6.6.1.5 Adjustments to the Obligation for the Operator to Take Out a Financial Guarantee or Insurance under Article
6 of the SOA 148
6.6.1.6 Determination of the Date of Entry into Force of the Act 149
6.6.2 The CNES’ Decree of 2009 (CNES-D) 149
6.6.2.1 Powers of the President of CNES at CSG 149
6.6.2.2 Emergency Measures 153
6.6.2.3 Maintenance of the Space Objects Register by CNES: CNES Decree and the August 2011 Registration Order 154
6.6.3 The Space-Based Data Decree of 2009 (SBD-D) and Following Texts 155
6.6.4 Development of Technical Regulations for Systems and Procedures (RT) and Operating Regulations for Installations at CSG (REI) – between 2008 and 2011 155
6.6.4.1 The Order of 9 December 2010 Regulating the Operation of Installations at the Guiana Space Centre (REICSG) 156
6.6.4.2 The Order on Technical Regulations of 31 March 2011 (TR or RT) 158
6.6.4.3 Best Practice Guide (GBP) 161
6.6.4.4 Common Features Between RT and REI-CSG 162
6.7 Extension of Application of the SOA to ESA Activities, on a Negotiated Basis between 2009 and March 2013 163
7 The French Space Operations Act’s Regimes 167
7.1 Authorization and Control Regime for Space Operations 168
7.1.1 Architecture 168
7.1.2 Definition of Activities and Operators 171
7.1.2.1 Scope of the French Space Operation Act 171
7.1.2.2 Registration of Space Objects 177
7.1.2.3 FSOA’s Exclusions or Exemptions 181
7.1.3 Authorization or License Application – Actors Concerned 196
7.1.3.1 Authorizations for a French Launch Operator or for any Person Providing a Launch Service in the French Territory 197
7.1.3.2 Authorizations for a French Satellite Operator 198
7.1.3.3 Disposals and Transfer of the Command of a Satellite in Orbit by or for a French Operator 199
7.1.4 Administrative and Technical Criteria 200
7.1.4.1 The Administrative Review 200
7.1.4.2 The Technical Review on Systems and Procedures Implemented in Space Operation 201
7.1.4.3 The Best Practice Guide 208
7.1.5 Licenses to Simplify the Authorization Processes 209
7.1.5.1 The ‘Administrative’ License Noting the Applicant’s Moral, Financial, and Professional Guarantees 209
7.1.5.2 Operator License Noting the Technical Compliance of its Systems and Procedures 210
7.1.5.3 License Constituting Authorization 210
7.1.6 Procedure for Preliminary Certification to Accompany the Development of New Systems 210
7.1.7 Controlling the Preparation and the Implementation of a Space Operation after Its Authorization 211
7.1.7.1 Obligations of the Authorization Holder 211
7.1.7.2 Persons Empowered to Control Granted Authorizations 212
7.1.8 Emergency Measures 212
7.1.9 Penalties 213
7.1.9.1 Withdrawal and Suspension of the Authorization (Administrative Sanctions) 213
7.1.9.2 Fines (Criminal Sanction) 213
7.2 Operators Liability, Insurance, and State Guarantee for Damage Caused to Third Parties 214
7.2.1 The Scope of Liability for Damage to Third Parties and Associated Insurance 214
7.2.2 Governmental Guarantees (FSOA Art. 16 and 17) 215
7.3 Legal Relationships between Private Stakeholders Participating in a Space Operation 217
7.4 Specific Rules for High-Resolution Space-based Data (FSOA Art. 23-25) 219
7.4.1 Data concerned: High-Resolution Space-Based Data (SBD) 220
7.4.2 The Entity Concerned: ‘Primary Operator of Space-Based Data’ (EPDOS) 221
7.4.3 The Supervisory Authority: the SGDSN and the Interministerial Committee on Space-Based Data 222
7.4.4 Restrictions on the Purchase and Dissemination of Data 222
7.4.5 Regime for CNES’ Earth-observation Activities 223
7.4.6 Other Restrictions on SBD Dissemination 223
7.5 Other Procedures and Legislations to be Respected in France in order to Operate a Space Object or its Payload Services 224
7.5.1 Authorization to Use the Frequency Spectrum 225
7.5.2 Authorization for Satellite Telecommunication Network or Services Open to the Public 225
7.5.3 Open Data Legislation 226
7.5.4 Export Control Procedures 229
7.5.4.1 For Dual-use Goods 229
7.5.4.2 For Specifically Military Goods and Technologies 229
7.5.4.3 Re-export of Imported Sensitive Goods 230
7.5.5 Other Optional Procedures 231
8 Conclusion: Assessment and Perspectives for the French Space Operation Act 233
8.1 Feedback from the Triennial Inventories of 2013 and 2017 233
8.2 The ‘Collective for Space Care’ as an Ethical Spin-off of the FSOA 234
8.3 Challenges with the New Space Economy at the Beginning of the Twenty-First Century 235
8.4 Next Legal Challenges and Consequences on the FSOA 239

ANNEXES I - Original législation – French version 243
Annexe 1.1 – Loi relative au CNES codifiée au code de la recherche (Loi CNES) 245
Annexe 1.2 – Loi n°2008-518 du 3 juin 2008 relative aux opérations spatiales (LOS) 249
Annexe 1.3 – Décret n° 2009-643 du 9 juin 2009 relatif aux authorisations délivrées en application de la loi n° 2008-518 du 3 juin 2008 relative aux opérations spatiales (DA) 267
Annexe 1.4 – Décret n° 2009-644 du 9 juin 2009 modifiant le décret n° 84-510 du 28 juin 1984 relatif au Centre national d’études spatiales (D-CNES) 277
Annexe 1.4 (bis) – Arrêté du 12 août 2011 fixant la liste des informations nécessaires à l’identification d’un objet spatial en application du titre III du décret n° 84-510 du 28 juin 1984 relatif au Centre national d’études spatiales (AI) 283
Annexe 1.5 – Décret n° 2009-640 du 9 juin 2009 portant application des dispositions prévues au titre VII de la loi n° 2008-518 du 3 juin 2008 relative aux opérations spatiales (D-DOS) 285
Annexe 1.5 (bis) – Décret n° 2013-653 du 19 juillet 2013 modifiant le décret n° 2009-640 du 9 juin 2009 portant application des dispositions prévues au titre VII de la loi n° 2008-518 du 3 juin 2008 relative aux opérations spatiales (D-DOS) 289
Annexe 1.5 (ter) – Décret n° 2013-654 du 19 juillet 2013 relatif à la surveillance de l’activité des exploitants primaires de données d’origine spatiale (DDOSS) 293
Annexe 1.5 (quater) – Arrêté du 4 septembre 2013 relatif à la declaration préalable d’activité effectuée par les exploitants primaires de données d’origine spatiale (A-DOS-D) 297
Annexe 1.6 – Arrêté du 31 mars 2011 relatif à la réglementation technique en application du décret n° 2009-643 du 9 juin 2009 relatif aux authorisations délivrées en application de la loi n° 2008-518 du 3 juin 2008 relative aux opérations spatiales (RT) 301
Annexe 1.6 (bis) – Arrêté du 11 juillet 2017 modifiant l’arrêté du 31 mars 2011 relatif à la réglementation technique (RT) 329
Annexe 1.7 – Arrêté du 9 décembre 2010 portant sur réglementation de l’exploitation des installations du centre spatial guyanais (REI-CSG) 337

ANNEXES II – “Original Legislation” English Version (non-official translation) 397
Annex 2.1 –CNES’ constituent Act of 1961 as consolidated in the French Code of Research (CNES’ Act) 399
Annex 2.2 – Space Operation Act of 3rd June, 2008 (FSOA 2008) 403
Annex 2.3 – Decree 2009-643 of 9th June, 2009 on authorization issued in accordance with SOA 2008 (Authorization Decree) 419
Annex 2.4 – Decree 2009-644 of 9th June, amending the 1984 CNES’ Decree (CNES Decree) 429
Annex 2.5 – Decree 2009-640 of 9th June, 2009 on Space-Based Data (SBD Decree) 435
Annex 2.6 – Order of 31st March, 2011 on Technical Regulation (RT) 439
Annex 2.7 – Order of 9th December, 2010 regulating the operations on CSG facilities (REI) 467

ANNEX III – Comparison List of Usual Definitions 521
Comparison list of usual definitions and associated acronyms between RTFSOA and IADC, UNGA and ISO Space Debris Mitigation Instruments 523

ANNEX IV – Concordance Table 533

ANNEXE V – Line Ministry for the Centre National d’Études Spatiales 579

Bibliography 587
About the Author 595