The Legal Framework for Space Debris Remediation as a Tool for Sustainability in Outer Space

Legal Avenues to Facilitate SDR

One legal avenue to incorporate SDR mechanisms in the existing legal framework could be through national legislation. The example of space debris mitigation instruments being included in the national authorization requirements for space operators could serve as a model also for SDR. Some states, such as Argentina, Chile, the Netherlands, Poland, Spain and Switzerland have confirmed their adherence to the UNCOPUOS Guidelines. There are also states, such as Australia, Germany and Japan which have not enacted national legislation, but have elaborated state policies or standards for space debris mitigation for their national space agencies ^[25].

Furthermore, SDR and OOS measures could be implemented nationally as part of authorization or licensing requirements. This has already been the case with the national adherence to space debris mitigation guidelines. Thus, certain conditions can be prescribed to operators in space legislation: the legal basis for prescribing such conditions is Art VI of the OST which gives a “mandate” to states to authorize activities while, according to Art. IX of the OST, taking into account the activities of other states in outer space as per Art. IX.

Furthermore, the internal regulations of space agencies and intergovernmental organizations (IGOs) such as ESA can contribute to the development and implementation of SDR. Similarly, the 2014 ESA Space Debris Mitigation Policy for Agency Projects ^[67] is applicable to the procurement of all ESA space systems and all operations under the responsibility of ESA. The 2004 European Code of Conduct for Space Activities ^[20] is applicable to projects of European space agencies, projects conducted in Europe as well as by European entities outside Europe, and to all space systems and launch vehicles orbiting or intended for orbiting the Earth.

Thus, this practice of applying mitigation guidelines for ESA projects can serve as an example of how to ensure accordance also to SDR and OOS mechanisms for European projects, even if they have not acquired a binding character.

Further Issues to Be Addressed by the Law

Apart from the challenges in the legal dimension of SDR, other aspects will also be defining the practicability of remediation. They include a solution to overcome the financial hurdle for SDR as well as finding an effective approach to consider the strategic, security and military aspects of on-orbit servicing and active debris removal. Thus, a suitable form of international cooperation and organizational framework will be required.

The findings of the International Congress on Space Debris Remediation included following practical conditions as necessary ^[44]:

· a “cost effective” technique;

· a proper legal and policy framework to protect the parties involved and to deal with “alternative use” concerns;

· available and willing targets for removal or customer for servicing;

· funding: for the time being, for establishing, testing and developing technologies and SDR techniques; in the future--for carrying out such operations;

· accurate tracking and necessary assistance during operations;

· capability to locate, approach, connect deorbit/servicing device, control orientation and to move the target object to desired destination;

· safety of the public on the ground, at sea, travelling by air and in space.

As far as the prospects for developing economic incentives for debris removal are concerned, a solution of creating a global fund in which all operators should contribute on an equitable basis has been proposed. This approach has become a standard in other activities taking place in global commons--e.g., in the telecommunications sector using fibre optics in the high seas. The main benefit of such an approach is the distribution of financial load between multiple entities. The justification for such an approach is that outer space activities are, ex definitone, ultra-hazardous, and very costly so that a distribution of risk is more practicable and effective than imposing costs only on single entities.

Also, these challenges, although they might not be directly originating from the law, could be facilitated through adequate regulation.

Conclusions

Space debris is an urgent matter and an issue of global importance for space activities. While the conflict between the use and the protection of outer space which results in the current trends of exponential and non-reversible growth of space debris is a pressing problem, the legal response hitherto has not been not effective so as to offer binding rules for space debris mitigation and remediation. It is true that a solution to such a complex problem cannot evolve only on a regulatory basis and requires technical, financial and political approaches, which, if implemented together with an adequate legal framework, can resonate the dimensions of orbital space debris pollution. The urgency of the problem cannot be overestimated and the need for action is vital for the use of near-Earth space.

Experience with space debris mitigation shows that even though the law is often far behind technological development, non-binding policies and efforts can play a substantial role and, furthermore, serve as a basis for the creation of binding rules. This pattern is valid also for space debris remediation which has to be included in the legal framework for outer space activities. The challenges for remediation seem to be at least as numerous as for mitigation, but as time is pressing for ensuring that the sustainable use of outer space will not be irreversibly impeded, the development of adequate SDR mechanisms at an international and national level should not be postponed as they will be defining the future of the outer space environment and the viability of space activities.

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