convert

Steven J. Dick

Roger D. Launius

Editors

NASA

SP-2007-4801

ince the dawn of spaceflight, advocates of a
robust space effort have argued that human

activity beyond earth makes a significant
difference in everyday life. assertions abound
about the “impact” of spaceflight on society
and its relationship to the larger contours of
human existence.

fifty years after the Space age began, it is
time to examine the effects of spaceflight on
society  in  a  historically  rigorous  way.  has
the Space age indeed had a significant effect
on society? if so, what are those influences?
What do we mean by an “impact” on society?
and what parts of society? conversely, has
society had any effect on spaceflight? What
would be different had there been no Space
age?  the  purpose  of  this  volume  is  to
examine these and related questions through
scholarly research, making use especially of
the  tools  of  the  historian  and  the  broader
social  sciences  and  humanities.  herein  a
stellar  array  of  scholars  does  just  that,  and
arrives at sometimes surprising conclusions.

once contemplated, the subject is broad, rich
and stimulating. Spaceflight has commercial
and economic dimensions, as well as social,
cultural,  and  ideological  ramifications.  it
touches  on  enduring  american  values  of
pioneering, progress, enterprise, and rugged
individualism.  Worldwide  it  encompasses
international cooperation and competition,
and affects foreign policies, national security,
and  questions  of  the  global  environment.
Viewing  earth  from  space,  and  space
from  the  vicinity  of  earth,  alters  world
views,  conceptions  of  self  and  others,  and
understandings of our place and purpose in
the universe.

On the cover:

Top:

This view of the rising Earth greeted the Apollo 8

astronauts as they came from behind the Moon after the

lunar orbit insertion burn in December, 1968. Although the

photo is commonly viewed as situated here, with Earth

about five degrees off the horizon, the astronauts saw it as

they rounded the moon with Earth to the left.

Bottom:

Many humans thrill to the spectacle and the

promise of spaceflight.

Steven J. Dick

is the chief historian for

NaSa. he worked as an astronomer and
historian of science at the U.S. Naval
observatory in Washington, Dc, for 24 years
before coming to NaSa headquarters in 2003.
among his most recent books are

Critical Issues

in the History of Spaceflight

(2006, edited with

Roger launius),

Risk and Exploration: Earth, Sea

and the Stars

(2005, edited with Keith cowing),

The Living Universe: NASA and the Development
of Astrobiology

(2004),

and

Sky and ocean Joined:

The U.S. Naval observatory, 1830–2000

(2003).

he is the recipient of the Navy meritorious
civilian Service medal and the NaSa group
achievement award, and he is a member of the
international academy of astronautics and the
international astronomical Union.

Roger D. Launius

is a member of the Division

of Space history at the Smithsonian institution’s
National air and Space museum in Washington,
Dc. Between 1990 and 2002, he served as
chief historian of NaSa. he has written or
edited more than 20 books on aerospace history,
including

Space: A Journey to our Future

(2004),

Space Stations: Base Camps to the Stars

(2003),

and

Flight: A Celebration of 100 Years in Art and

Literature

(2003). his research interests encompass

all areas of U.S. and space history and policy
history, especially cultural aspects of the subject
and the role of executive decision-makers and
their efforts to define space exploration.

On the back cover:

Eagle Nebula—

The picture was taken on April 1, 1995 with

the Hubble Space Telescope Wide Field and Planetary Camera

2. The color image is constructed from three separate images

taken in the light of emission from different types of atoms.

Red shows emission from singly-ionized sulfur atoms. Green

shows emission from hydrogen. Blue shows light emitted by

doubly-ionized oxygen atoms.

National Aeronautics and Space Administration

NASA History Division

Office of External Relations

Washington, DC

2007

Steven J. Dick

Roger D. Launius

Editors

ONtENtS

NtRODUctION

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

EctION

Societal Impact of Spaceflight in Context

HaptER

Has Spaceflight Had an Impact on Society? an Interpretative

Framework

—Howard E. mccurdy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

EctION

Turning Point Impacts

HaptER

What are turning points in History, and What Were they for

the Space age? —

Roger D. Launius . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

HaptER

In Search of a Red cosmos: Space Exploration, public

culture, and Soviet Society

—James t. andrews . . . . . . . . . . . . . . . . . . . . . . . 41

HaptER

Live from the moon: the Societal Impact of apollo

—andrew chaikin . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

HaptER

Framing the meanings of Spaceflight in the Shuttle Era

—

Valerie Neal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67

HaptER

—

John m. Logsdon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89

Space in the post-cold War Environment

HaptER

the

Taikonaut

as Icon: the cultural and political Significance

of Yang Liwei, china’s First Space traveler—

James R. Hansen . . . . . . . . . . . .103

EctION

III

Commercial and Economic Impact

HaptER

commercial and Economic Impact of Spaceflight: an

Overview —

philip Scranton . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .121

HaptER

the political Economy of Spaceflight—

Stephen B. Johnson . . . .141

HaptER

10:

the Role of Space Development in Globalization

—

James a. Vedda . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .193

HaptER

11:

NaSa as an Instrument of U.S. Foreign policy

—

John Krige . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .207

HaptER

12:

“From Farm to Fork”: How Space Food Standards

Impacted the Food Industry and changed Food Safety Standards
—

Jennifer Ross-Nazzal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .219

HaptER

13:

the Social and Economic Impact of Earth Observing

Satellites —

Henry R. Hertzfeld and Ray a. Williamson . . . . . . . . . . . . . . . . . . .237

EctION

Applications Satellites, the Environment,

and National Security

HaptER

14:

Satellites and Security: Space in Service to Humanity

—

Erik conway . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .267

HaptER

15:

For all mankind: Societal Impacts of applications Satellites

—

David J. Whalen . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .289

HaptER

16:

NaSa and the Environment: Science in a political context

—

W. Henry Lambright . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .313

HaptER

17:

NaVStaR, the Global positioning System: a Sampling

of its military, civil, and commercial Impact —

Rick W. Sturdevant . . . . . . . .331

HaptER

18:

Dual-Use as Unintended policy Driver: the american

Bubble —

Roger Handberg . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .353

HaptER

19:

Reconnaissance Satellites, Intelligence, and National

Security —

Glenn Hastedt . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .369

EctION

Social Impact

HaptER

20:

Space History from the Bottom Up: Using Social History

to Interpret the Societal Impact of Spaceflight —

Glen asner . . . . . . . . . . . . .387

HaptER

21:

Space Science Education in the United States: the Good,

the Bad, and the Ugly —

andrew Fraknoi . . . . . . . . . . . . . . . . . . . . . . . . . . . .407

HaptER

22:

“Racism, Sexism, and Space Ventures”: civil Rights at

NaSa in the Nixon Era and Beyond —

Kim mcQuaid . . . . . . . . . . . . . . . . .421

HaptER

23:

NaSa Launches Houston into Orbit: the political,

Economic, and Social Impact of the Space agency on the Southeast
texas, 1961–1969 —

Kevin m. Brady . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .451

HaptER

24:

the Jet propulsion Lab (JpL) and Southern california

—

peter J. Westwick . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .467

EctION

Spaceflight, Culture and Ideology

HaptER

25:

Overview: Ideology, advocacy, and Spaceflight: Evolution

of a cultural Narrative —

Linda Billings . . . . . . . . . . . . . . . . . . . . . . . . . . . . .483

HaptER

26:

Spaceflight and popular culture —

Ron miller . . . . . . . . . . . .501

HaptER

27:

making Spaceflight modern: a cultural History of the

World’s First Space advocacy Group —

asif a. Siddiqi . . . . . . . . . . . . . . . . . .513

Societal Impact of Spaceflight

HaptER

28:

c/SEtI as Fiction: On James Gunn’s

The Listeners

—

De Witt Douglas Kilgore . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .539

HaptER

29:

Reclaiming the Future: Space advocacy and the Idea of

progress —

taylor E. Dark III . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .555

HaptER

30:

Space activism as an Epiphanic Belief System

—

Wendell mendell . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .573

HaptER

31:

Flights of Fancy: Outer Space and the European Imagination,

1923–1969 —

alexander Geppert . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .585

EctION

VII

Afterword

HaptER

32:

are We a Spacefaring Species? acknowledging Our

physical Fragility as a First Step to transcending It —

m. G. Lord . . . . . . . . .603

HaptER

33:

production and culture together: Or, Space History and

the problem of periodization in the postwar Era —

martin J. collins . . . . . . .615

BOUt tHE

UtHORS

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .631

NaSa

IStORY

ERIES

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

649

NDEx

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

659

Societal Impact of Spaceflight

vii

Introduction

ifty years after humanity first broke the gravitational bonds of Earth,
the societal impact of spaceflight is a compelling subject whose time has

come. It was recognized early in the Space age that spaceflight would affect
society. NaSa’s founding document, the National aeronautics and Space act
of 1958, specifically charged the new agency with eight objectives, including
“the establishment of long-range studies of the potential benefits to be gained
from, the opportunities for, and the problems involved in the utilization of
aeronautical and space activities for peaceful and scientific purposes.” although
the Space act has been often amended, this provision has never changed, and
still remains one of the main objectives of NaSa.

Despite a few early studies,

the mandate to study societal impact went unfulfilled as NaSa concentrated on
the many opportunities and technical problems of spaceflight itself.

It is time to take up the challenge once again. multidecade programs to

explore the planets, build and operate large space telescopes and space stations,
or take humans to the moon and mars, require that the public have a vested
interest. the same is true of the space activities now spread around the world.
But whether or not the ambitious space visions of the United States and other
countries are fulfilled, the question of societal impact over the past 50 years
remains urgent and may in fact help fulfill current visions or at least raise the
level of debate.

the subject of the societal impact of spaceflight, however, is not as simple

as it may seem. Questions abound. Has the Space age in fact had an impact
on society? If so, what are those influences? What do we mean by “impact,”
“society,” and “spaceflight”? and, realizing that society is not monolithic, what
parts of society might have been affected? conversely, has society had an effect on
spaceflight? to put it another way, in the currently popular mode of counterfactual
history, What would be different had there been no Space age?

It is with such questions in mind that the NaSa History Division and the

National air and Space museum’s Division of Space History jointly organized
a  conference  on  the  subject  in  Washington,  Dc  from  September  19–21,
2006.  Because  the  scope  of  the  societal  impact  of  spaceflight  is  enormous,
the  planners  had  their  work  cut  out  for  them  in  trying  to  establish  some
thematic  coherence  rather  than  merely  presenting  a  hodgepodge  of  papers.

1. the National aeronautics and Space act and its complete legislative history may be found at

http://

www.hq.nasa.gov/office/pao/History/spaceact-legishistory.pdf

.the passage quoted here is on page 6.

2. In the prologue to his book

The Spaceflight Revolution

(NaSa History Series Sp-4308,Washington,

Dc,1995),James Hansen (one of the authors in this volume) discusses at some length the importance
and uses of counterfactual “what if ” history in the context of spaceflight.

Societal Impact of Spaceflight

the themes that emerged, all infused with the underlying questions above,
form the sections contained in this book.

First, it would seem obvious that certain turning points in the history

of  spaceflight  must  have  had  an  impact:  Sputnik,  the  moon  landing,  and
the  Space  Shuttle  disasters  are  etched  in  memory  for  better  or  worse.  But
unpacking the nature and extent of that impact is no simple task. Secondly, a
commercial and economic component to spaceflight is undeniable. It ranges
from  a  far-reaching  aerospace  industry  at  one  end  of  the  spectrum  to  the
famous (and sometimes literally legendary) “spinoffs” at the other end; it is
a part of national and international political economy; and it has sometimes
measurable but often elusive effects on daily life and commerce. Economic
impact is closely related to a third area: applications satellites, which are in turn
often inseparable from environmental issues and national security. Imaging the
Earth from space and global space surveillance have played an arguably central
role in the increasingly heated debate over climate change, and changed the
manner in which national security issues are understood and interpreted. Just
how  central  is  a  matter  that  only  historical  analysis  can  reveal.  In  a  fourth
domain,  that  of  social  impact,  space  activities  have  affected  science,  math,
and  engineering  education;  embodied  questions  of  status,  civil  rights,  and
gender among other social issues; and led to the creation of “space states” such
as california, Florida, and texas. Finally, spaceflight has affected culture in
multiple ways, ranging from worldviews altered or completely transformed by
the images of Earth from space and the spectacular views of space from Earth-
orbiting spacecraft, to our place in the universe made possible by studies of
cosmic evolution and the search for extraterrestrial life and the embodiment
of  these  and  other  themes  in  literature  and  the  arts.  Several  essays  in  this
volume also address issues of spaceflight, ideology, and culture, in particular
the space movement and its links to ideas of progress and utopia.

these overarching themes in turn raise further questions. What is the

difference between social impact and cultural impact? What is the interplay
between  spaceflight  and  those  enduring  american  values  of  pioneering,
progress,  enterprise,  and  rugged  individualism?  How  does  this  interplay
differ from experiences in the Soviet/Russian, European, or chinese milieu?
How  has  spaceflight  affected  conceptions  of  self  and  others,  as  well  as  our
understanding of purpose in the universe? In the end, all the themes in this
volume form overlapping domains, and the attentive reader will find a synergy
between the thematic sections in the book.

although we believe we have captured many of the overarching themes,

gaps  undoubtedly  remain,  and  at  a  lower  level  there  is  certainly  no  claim
to  be  comprehensive,  only  an  offer  of  representative  exemplars  from  the
major  themes.  In  the  area  of  commercial  impact,  for  example,  aside  from
applications  satellites  only  one  paper  (Jennifer  Ross-Nazzal)  explicitly

NtRODUctION

addresses a commercial spinoff of the space program—the area most people
think of immediately when and if they think at all about spaceflight and
society. History, rather than public affairs, has an important role to play here
in analyzing commercial impacts. an entire volume could be devoted to this
subject alone, and further volumes in the NaSa History Series will do so.

the themes of this volume also tie into deeper threads of contemporary

intellectual argument. One has to do with the meaning of culture. more than
50 years ago two anthropologists collapsed 164 distinct definitions of culture
into one: “[c]ulture is a product; is historical; includes ideas, pattern, and
values; is selective; is learned; is based upon symbols; and is an abstraction
from behavior and the products of behavior.”

more recently clifford Geertz

defined culture as “an historically transmitted pattern of meanings embedded
in symbolic forms by means of which men [people] communicate, perpetuate
and develop their knowledge about and attitudes toward life.”

according to

Harvard biologist E. O. Wilson—famed for his work on sociobiology—each
society creates culture and is created by it.

In short, culture and society are

moving targets, evolving with time and in space (perhaps literally in outer
space); not only does chinese culture differ from Western culture, both were
different 50 years ago than they are now.

another broadly related intellectual theme is postmodernism, the

construction of our worldview. In the context of this volume one might
well ask about the societal and cultural impact

spaceflight rather than

spaceflight. Glen asner points out in his paper that little attention is given
to  the  possibility  of  reverse  effect  in  this  volume,  despite  explicit  requests
in the call for papers (John Logsdon, with his examination of the impact of
the  post-cold  War  environment,  is  one  exception).  as  asner  puts  it  “the
concept of societal impact is problematic to the extent that it is based on an
assumption  that  the  influence  of  spaceflight  on  society  is  more  worthy  of
analysis than other conceptualizations of the relationship, such as the influence
of society on spaceflight or the mutual shaping of spaceflight and society.”

He suggests possibilities for examining the history of spaceflight by focusing
on status, race, and gender in the context of work, the local community, and

3. alfred L. Kroeber and clyde K. m. Kluckhohn,

Culture:A Critical Review of Concepts and Definitions

papers of the peabody museum, Harvard University, v. 47, no. 12, pp. 643-4, 656 (cambridge ma:
the peabody museum, 1952).

4. clifford Geertz,

The Interpretation of Cultures

(NewYork:Basic Books,1973),p.289.For more on the debate

over the nature and meaning of culture see adam Kuper,

Culture:The Anthropologists’ Account

(Harvard

University press: cambridge, ma, 1999). For debated differences between the concepts of culture and
society a good starting point is Nigel Rapport and Joanna Overing,

Social and Cultural Anthropology:

The Key Concepts

(Routledge: London and NewYork, 2000), entries on “culture” and “society”.

5. E. O.Wilson,

Consilience: The Unity of Knowledge

(Knopf: New York, 1998)

6. Glen asner, this volume.

xii

Societal Impact of Spaceflight

education. this means recognizing as viable subjects for historical analysis all
individuals and social groups involved in space endeavors, regardless of their
social standing. martin collins makes a similar point in the final paper in this
volume, where he notes that Sputnik, and by extension other events in the
history of spaceflight, was “a manifestation and symbol of deeper structures
of economic and cultural order.” We would do well to ponder his call for
“clarifying explanatory aims and tools—of placing spaceflight

history.”

Despite the importance of the subject, very few systematic studies of the

societal impact of space exploration have been undertaken over the last 50 years.
One exception that stands out from four decades ago is

The Railroad and the

Space Program: An Exploration of Historical Analogy

. Funded by NaSa through

the american academy of arts and Sciences,

The Railroad and the Space Program

focused on the uses of historical analogy to illuminate the problem of societal
impact. confident in the use of historical analogy as suggestive, but not predictive,
of the future, the authors of the volume elaborated on two technological events
whose beginnings were separated in time by 150 years. the railroad was, they
said, an engine of social revolution that had its greatest impact only 50 years
after the start of the railways in america. as a transportation system, the railway
had to be competitive with canals and turnpikes and, 20 years after the start
of railways in america, more miles of canals were being built than railroads.
It was not at all clear that railroads could be economically feasible. However,
though many technological, economic and managerial hurdles needed to be
overcome, railroads are still with us. In the course of the nineteenth century
they represented human conquest of natural obstacles, with consequences for
humans’ view of nature and our place in it. moreover, secondary consequences
often turned out to have greater societal impact than the supposed primary
purposes for which they were built.

the space program has had, and still has, it technological challenges, and

the economic benefits may be even longer-term than those of the railroad.
But by conquering the third dimension of space, as aviation did to a very
small extent in the thin skin of Earth’s atmosphere and as the railroad did in
two geographical dimensions, in the long run the space program may have
an impact that exceeds that of the railroad. although originally suspicious of
parallels with the past, present, and future, the authors in the end saw “the
possibility of moving up onto a level of abstraction where the terrain of the
past is suggestive of the topography of the present and its future projection.”

they cautioned that in taking such an approach, as much empirical detail

7. martin collins, this volume.

8. Bruce mazlish (ed).

The Railroad and the Space Program: An Exploration in Historical Analogy

(cambridge, ma: mIt press, 1965).

xiii

NtRODUctION

should be used as possible and analogies drawn from vague generalities should
be avoided. Four decades later,

The Railroad and the Space Program

still makes

for relevant reading.

In addition to that early study, there have been sporadic forays. On the

occasion of the 60th anniversary of the British Interplanetary Society, NaSa
was heavily involved in a special issue of its journal devoted to “the impact
of space on culture.”

there NaSa scientists charles Elachi (now Director

of the Jet propulsion Laboratory) and W. I. mcLaughlin, as well as historian
Sylvia Kraemer, among others, discussed the impact of space endeavors on
space science, politics, the fine arts, and education. In 1994 the mission from
planet Earth program in the Office of Space Science at NaSa sponsored a
symposium entitled “What is the Value of Space Exploration?” a variety of
speakers ranging from carl Sagan to Stephen Jay Gould discussed the scientific,
economic, cultural, and educational impact of space exploration.

more recently, in 2005 the International academy of astronautics

(Iaa), which has a commission devoted to space and society, sponsored the
first international conference on space and society in Budapest, Hungary.

the Iaa and the European Space agency (ESa) jointly sponsored a study
published as

The Impact of Space Activities upon Society

in which well-known

players on the world scene briefly discussed their ideas of societal impact,
ranging from the practical to the inspirational.

In addition to these activities, the authors of more general studies of

spaceflight have on occasion tackled the subject of societal impact. In her
book

Rocket Dreams: How the Space Age Shaped our Vision of a World Beyond

marina Benjamin argues that space exploration has shaped our worldviews in
more ways than one. “the impact of seeing the Earth from space focused our
energies on the home planet in unprecedented ways, dramatically affecting
our relationship to the natural world and our appreciation of the greater
community of mankind, and prompting a revolution in our understanding of
the Earth as a living system,” she wrote. Benjamin thinks it no coincidence
that the first Earth Day on 20 april 1970 occurred in the midst of the apollo
program; or that one of the astronauts developed a new school of spiritualism
while others have also been profoundly affected spiritually; or that people

9. British Interplanetary Society,“the Impact of Space on culture,”

Journal of the British Interplanetary

Society

, 1993; 46(11).

10. NaSa. What is the value of space exploration? July 18–19, 1994, NaSa History Reference

collection.

11. Iaa, 2005. meeting agenda at

http://www.iaaweb.org/iaa/Publications/budapest2005fp.pdf

12. European Space agency,

The Impact of Space Activities upon Society

, ESa BR-237, 2005.

xiv

Societal Impact of Spaceflight

“should be drawn to an innovative model for the domestic economy sprung
free from the american space program by NaSa administrator James Webb.”
Space exploration shapes world views and changes cultures in unexpected
ways; by corollary, so does lack of exploration.

Others have demonstrated the complex relation of space goals to social,

racial, and political themes (see Kim mcQuaid in this volume). One such study
is De Witt Kilgore’s

Astrofuturism: Science, Race and Visions of Utopia in Space

where the author examines the work of Wernher von Braun, Willy Ley, Robert
Heinlein, arthur c. clarke, Gentry Lee, Gerard O’Neill, and Ben Bova, among
others, in what he calls the tradition of american astrofuturism.

Finally, we fully recognize that this volume is centered on Western

culture and especially the United States. and although Western space
programs may have had worldwide effects by their very scope and nature, we
consider this analysis only a beginning and hope it will generate more robust
discussion and comparison with the impact of space programs in other parts
of the world. It also needs to be said that this conference and this volume were
decidedly not designed as commercials for NaSa or spaceflight in general.
as scholars, our goal is not propaganda, but to use rigorous scholarly methods
to examine societal impact. Only then can we begin to hope to measure the
real impact of spaceflight.

In closing, we wish to thank our organizing committee, which included

the  staff  of  the  NaSa  History  Division  (Glen  asner,  Nadine  andreassen,
colin  Fries,  Stephen  Garber,  John  Hargenrader,  and  Jane  Odom),  Roger
Launius  and  his  staff  at  the  Smithsonian  National  air  and  Space  museum
(NaSm), Linda Billings, Giny cheong, John cloud (National Oceanic and
atmospheric administration [NOaa]) and a variety of others from whom
we  sought  advice.  We  thank  Scott  pace,  NaSa  associate  administrator
for  program  analysis  and  Evaluation;  Donald  Lopez,  NaSm  Deputy
Director; and ted maxwell, NaSm associate Director for collections and
Research,  all  of  whom  gave  opening  remarks  at  the  meeting.  Our  thanks
also to our session chairs: William Becker (George Washington University),

13. marina Benjamin,

Rocket Dreams: How the Space Age Shaped our Vision of a World Beyond

(Free press:

New York, 2003).

14. De Witt Douglas Kilgore,

Astrofuturism: Science, Race and Visions of Utopia in Space

(University of

pennsylvania press: philadelphia, 2003).

hapter

Has Spaceflight Had an Impact on Society?

an Interpretative Framework

howard e. mccurdy

s a person who works with political scientists, i must confess that the effort to

assess the societal impact of spaceflight reminds me a bit of the story about the

mayor who reduced crime.You may recall that rudolph giuliani, the get-tough
on-crime U.S. attorney for southern new York State, narrowly defeated incumbent
David Dinkins for the new York city mayoralty post in 1993. at the time, crime
in new York city seemed to be out of control. giuliani embraced the “broken
window” theory of crime prevention, drawn from a 1982 article by James Q.Wilson
and george l. Kelling and promoted by William J. Bratton, giuliani’s head of
police. in essence, the theory suggests that tolerance of low-level vandalism (broken
windows) encourages additional petty crime and eventually more serious offenses.
giuliani and Bratton adopted a “zero-tolerance” policy toward petty crimes such
as graffiti marking, subway turnstile jumping, and “squeegee men” who demanded
payment for cleaning the windshields of automobile drivers stuck in traffic. Upon
implementation of the policy—a turning point in the history of new York city—
crimes rates dropped suddenly and dramatically and continued to fall thereafter.

the story set off a frenzy of methodological investigation among social scientists

interested in the societal impact of rudolph giuliani’s policy toward crime. from the
scientific point of view, giuliani had proposed a theory.as good social scientists, analysts
used the tools of statistical analysis and econometrics to compare the explanatory power
of giuliani’s theory relative to other theories of crime.the findings become elaborate at
this point, but in general were not kind to the idea that giuliani’s zero-tolerance policy
affected crime. for example, economist Steven D. levitt with co-author Stephen J.
Dubner suggest that the drop in crime could more easily be explained by demographic
factors such as a decline in the number of angry young males.

1. James Q.Wilson and george l. Kelling,“Broken Windows,”

Atlantic Monthly

(march 1982), pp. 29–38.

2. Steven D. leavitt and Stephen J. Dubner,

Freakonomics: A Rogue Economist Explores the Hidden Side

of Everything

(new York:William morrow, 2005); see also george l. Kelling and catherine coles,

Fixing Broken Windows: Restoring Order and Reducing Crime in Our Communities

(new York: martin

Kessler, 1996).

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i was reminded of the giuliani story while scanning back issues of naSa’s

Spinoff

publication. for the past 30 years, naSa’s commercial technology program

has produced a book-sized publication that annually lists 0 to 50 space technologies
adopted by the commercial sector. the effects imputed to the apollo flights to the
moon alone are impressive.according to the publication, project apollo contributed to
the development of computed axial tomography (cat) scan machines, kidney dialysis,
cordless power tools, athletic shoe designs, freeze-dried foods, and the cool suits worn
by national association for Stock car auto racing (naScar) race drivers. in total,
naSa officials have identified 1,00 space technologies that have “benefited U.S.
industry, improved the quality of life and created jobs for americans.” i must admit that
i approach such claims of societal impact with the same degree of skepticism that social
scientists direct at giuliani’s theory of crime prevention.perhaps the naSa Space flight
program gave us freeze-dried foods and other such benefits; perhaps it did not.Without
extensive investigation of a scientific sort, it is difficult to tell.

in some ways, claims of societal impact tell us more about ourselves than they

do about the societal changes we think we observe. giuliani’s theory, embraced
by the few republicans remaining in a hugely Democratic city, might say more
about the social preference of upper-middle-class americans for neatness and order
than the prevention of crime. giuliani’s zero-tolerance policy may or may not
have affected a drop in crime, but it did make new York city a friendlier place
for middle- and upper-middle-class families. in a similar way, images of the space
program reveal much about the fabric of american society. the images tell us a
great deal about who we think we are and where we believe we might like to go.

in preparing

Space and the American Imagination

, i concentrated on the latter.

i tried to place visions about space travel, which are plentiful, into the broader context
of the social movements upon which they draw.thus, efforts to view space as the “final
frontier”could be viewed as an attempt to revitalize the values thought to flow from the
experience of westward migration in northamerica.the fact that so many advocates of
spaceflight emphasize the frontier analogy says something about the impact they would
like to have upon american society.the next step, obviously, requires an examination of
the impact that the experience actually produces relative to the expectations proffered.

Both subjects—the study of impacts and the examination of expectations—

present  methodological  challenges. in  this  chapter, i  will  comment  upon  those
challenges  and  the  manner  in  which  they  affect  our  effort  to  understand  the
societal impact of spaceflight.the chapter deals with the methodological challenges
presented  by  efforts  to  understand  the  material  consequences  of  spaceflight, its
cultural effects, and its unanticipated consequences.

3. naSa Scientific and technical information (Sti), “apollo’s contributions to america,” 21

october 2005,

http://www.sti.nasa.gov/tto/apollo.htm

(accessed 27 august 2006).

. howard e. mccurdy,

Space and the American Imagination

(Washington: Smithsonian institution press,

1997).

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Assessing Impacts

among the 1,00 spinoffs ascribed to the U.S. civil space program, one of the

most interesting involves the relationship between spaceflight and the computing
industry. the  relationship  illustrates  the  difficulties  of  assessing  impact.  naSa
scientists and engineers installed integrated circuits (ics) in their lunar and planetary
spacecraft prior to the widespread use of these devices. the people designing the
apollo  flight  computer, for  example, incorporated  ics—an  achievement  driven
by  their  realization  that  clunky, universal  automatic  computer  (UniVac)-type
computing machines would be too large for a spacecraft with severe mass constraints.
the consequent utilization of ics for a wide range of earthly applications has been
called “one of the most significant occurrences in the history of mankind.”

it is

tempting to see a relationship between spaceflight and the ic/personal computer
(pc) revolution, and one can find occasional references to pcs as a spinoff of the
space program, along with teflon

and Velcro

straps.

as might be anticipated, the actual relationship between spaceflight and

computing is more complex. no simple cause-and-effect relationship can be shown.
as the author of one naSa history office publication concludes:

Since naSa is well known as an extensive user of computers—
mainly because spaceflight would not be possible without them—
there is a common sense that at least part of the reason for the rapid
growth and innovation in the computer industry is that naSa
has served as a main driver due to its requirements. actually, the
situation is not so straightforward. in most cases, because of the
need for reliability and safety, naSa deliberately sought to use
proven equipment and techniques . . . [g]eneralizations cannot
be made, other than that there was no conscious attempt on the
part of naSa in its flight programs to improve the technology
of computing.

Social scientists view statements about impacts arising from historical events with

a great deal of suspicion.methodologically,such statements take the form of interrupted
time-series analysis. this is one of the weakest forms of policy analysis and one that
social scientists often urge investigators to avoid.When done in a retrospective fashion,
the technique can be quite misleading. Knowing that a change in society followed a

5. Wikipedia, “integrated circuits,”

http://en.wikipedia.org/wiki/Integrated_circuit

, 25 august 2006

(accessed 27 august 2006).

6. See John Savard,“microcomputers as a Space Spinoff,”

http://www.gatago.com/sci/space/policy/21491345.

html

,27 June 2006;and eleanor a.o’rangers,“naSa Spin-offs:Bringing Space Down to earth,”http://

www.space.com/adastra/adastra_spinoffs_050127.html, 26 January 2005 (both accessed 27 august 2006).

7. James e.tomayko,

Computers in Spaceflight:The NASA Experience

, naSa history office, contractor

report 182505, march 1988, p. 2.

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turning point in no way verifies that the event caused the change.the change could be
due to other factors or it could have occurred in the absence of the intervening event.
absent statistical controls or experimental methods, it is quite impossible to know.

policy analysts utilize a number of techniques that compensate for the limitations

of interrupted time-series analysis. they engage in comparative studies; insist that
statements about cause and effect be grounded in theory; and require analysts to
derive predictions from the hypotheses proposed.

comparative analysis helps to remove many of the shortcomings associated with

the study of societal impacts. conclusions drawn from a single set of events in a single
society are the equivalent of hypotheses tested using a sample of one. Such tests have
a wide margin of error. the incorporation of information from other settings can
broaden the analysis and enhance its reliability. What may appear to be anomalies
in one setting may seem common when viewed comparatively. the unexpected
difficulties of producing a large, cheap, reliable space shuttle in the United States were
repeated with the Soviet Buran spacecraft, which turned out to be so expensive that
Soviet officials abandoned the program. conversely, what appears to be common
may turn out to be unique. one of the universal benefits of human spaceflight,
for example, is thought to be national prestige.this has both external (impressing
other nations) and internal (building national confidence) dimensions.

assessing

whether such activity actually produces such effects can be enhanced by examining
the process in many nations, including the reactions of those that do not engage in
human space travel. What seems to be generally believed (that spaceflight confers
prestige) can be tested for its effects. comparative work of this sort is underway by
asif Siddiqi, James t. andrews, James hansen, and margaret Weitekamp, and much
of it appears in this publication.

grounding statements in theory and making predictions based on those

theories also helps. the history of spaceflight suffers from no lack of predictions;
notoriety often flows to those persons whose predictions turn out to be true. one
of the most notable is arthur c. clarke’s anticipation of communication satellites,
famously presented in a 195 edition of

Wireless World

. in that publication, clarke

pointed out that a communication station placed in geostationary orbit “could act as
a repeater to relay transmissions between any two points on the hemisphere beneath”
and that three such stations would provide “complete coverage of the globe.” clarke
did not actually predict the use of such stations—“[S]uch an undertaking may seem

8. See John m. logsdon,

The Decision to Go to the Moon: Project Apollo and the National Interest

(chicago:

University of chicago press, 1976) and roger D. launius,“compelling rationales for Spaceflight:
history and the Search for relevance,” in

Critical Issues in the History of Spaceflight

, Steven J. Dick

and roger D. launius, ed. (Washington, Dc: naSa Sp-2006-702, 2006), pp. 37–70.

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fantastic,” he said—but, rather, pointed out its feasibility and advantages relative to
ground-based transmitters. nonetheless, the article is generally credited as having
anticipated the use of communication satellites and is often presented as part of
narratives assessing the impact of such.

regrettably, such statements are not very helpful in assessing societal impact—

even when the statements are true. a correct prediction offered in the absence
of a supporting theory is as unreliable as an ex post facto statement about cause
and effect. Such a prediction is subject to a number of methodological pitfalls,
the most striking being what is known as the “Jeane Dixon effect.” Dixon was a
psychic who famously predicted the election and assassination of president John f.
Kennedy. John allen paulos, a temple University professor and commentator on the
general public’s misunderstanding of mathematic principles, noted how the science
of probabilities ensures that someone like Dixon will make a fair number of correct
predictions if that person makes a sufficiently large number of forecasts. adding to
the accumulated tally of her errors, Dixon predicted that World War iii would begin
in 1958; that labor leader Walter reuther would run for president in 196; and
that the Soviet Union would win the race to the moon.

the Dixon effect refers

to the tendency of observers viewing events with the advantage of hindsight to
overlook false forecasts while applauding the ones that did come true.

By grounding a prediction in theory, the suggestion of cause and effect can be

assessed twice.the effect can be checked on the basis of whether or not it occurred
and the theory can be checked for its underlying logic.a correct prediction, such as
those that Dixon did make, cannot be judged to reveal an effect if the underlying
theory is  flawed. Dixon  derived  her  predictions  from  the  practice  of  astrology, a
clearly misdirected theory. clarke offered his speculations regarding communication
satellites without regard to any theory at all. like numerous other pieces anticipating
some development in spaceflight,clarke’s article speculates neither on the likelihood
that  his  proposal  might  be  adopted  nor  on  the  possible  impact  of  worldwide
communication.  he  merely  comments  on  the  technical  feasibility  of  orbiting
communication stations and predicts that the coverage they would provide would
be cost-effective relative to the ground-based systems the stations would replace. it
should be noted, in this respect, that clarke also predicted that his communication
platforms would take the form of space stations with people on-board and that their
development would be expedited by the use of nuclear-powered rockets by 1965.

9.arthur c.clarke,“extra terrestrial relays:can rocket Stations give World Wide radio coverage?”

Wireless World

(october 195), p. 306. See also irving fang,

A History of Mass Communication: Six

Information Revolutions

(Boston: focal press, 1997), p. 210, and Donald h. martin,

Communication

Satellites

, th ed. (el Segundo, ca:aerospace press, 2000).

10. John allen paulos,

Beyond Numeracy: Ruminations of a Numbers Man

(new York: alfred a. Knopf,

1991), p. 0.

11. clarke,“extra terrestrial relays,” pp. 306, 308.

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a sound assessment of societal impact is enhanced to the degree that the

analysis is rooted in sound theory, derives testable predictions from the theory, and
utilizes more than one case as a basis for testing the statements proffered. Such
standards are hard to apply to the material effects of spaceflight, such as commercial
products or applications in the realm of national defense.assessing cultural impacts
is even more challenging.

Cultural Effects

events in spaceflight have social, cultural, and ideological effects. in many ways,

these are more interesting than the material spinoffs from the space program, since
they involve both imagination and effect. in an odd sort of way, the effects of
spaceflight influence their causes. put more simply, what people imagine might
happen in space serves as a basis for making it occur. the anticipation of cultural
impacts thus provides the motivation to undertake the activities necessary to produce
the change. many chapters in this book are concerned with the social, cultural, and
ideological effects of events in space.

the cultural effects of spaceflight (a term meant to also include social and

ideological effects) bounce between the relativism inherent in postmodern analysis
and the reality of space physics. postmodern analysis postulates the notion that
people ultimately determine the types of worlds in which they live through the
thoughts they have; physics presents principles that are hard to violate. one is
relative, the other deterministic.

By imagining space or, more specifically, anticipating the events that will occur

there, people may shape their future.the direction of that shaping can be conservative
or radical. i would like to suggest that the dominant forms of spaceflight anticipation,
especially in the United States, are conservative. in america, expectations about space
have been offered as a means of reinforcing the dominant values in society, including
many that existed before space travel began.this may help to explain why modern
conservatives are more supportive of space exploration than are american liberals.

expectations regarding the cultural effects of spaceflight are often expressed

metaphorically. metaphors are figures of speech that contain an implied comparison,
easing the challenge of explaining strange and often unfathomable phenomena to
an often inattentive public.the comparison of spaceflight to terrestrial expeditions
of  discovery, for  example, casts  the  complexity  of  interplanetary  travel  in  terms
the general public can more readily understand. in the United States, spaceflight
has  been  described  using  metaphors  that  characterize  the  most  salient  features
of american life. the metaphors are many. the exploration of space, we are told,
will  be  like  frontier  life—resurrecting  the  experience  of  westward  migration  in
an extraterrestrial realm.the exploration of space will provide sources of business
opportunity in the same way that industrial and postindustrial developments gave
the United States the most prosperous economy in the history of the world. Space

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will be the new military “high ground,” similar to the roman roadways and the
aviation  hardware  that  conferred  national  power  upon  the  nations  that  pursued
the supporting technologies. Spaceflight—or at least the investigative part of it—
will help to maintain the scientific revolution that made empiricism the primary
means  for  studying  natural  phenomena. Spaceflight  will  continue  to  serve  as  a
demonstration of national prowess, in the same manner that expositions and world
fairs have provided national demonstrations of technology. Spaceflight will allow
a “revenge  of  the  nerds,” elevating  the  status  of  people  who  did  not  have  much
social standing during their adolescent years.these metaphors confer expectations
regarding the impact of spaceflight, especially in america.

although the use of metaphors eases the task of explaining prospective impacts

of  spaceflight, it  also  gives  those  expectations  a  distinctly  conservative  flavor. if
spaceflight continues over many centuries,it might produce transformations as radical
as those that the renaissance imposed on the medieval world. Spaceflight might
lead to fundamental alterations in the human species, or to scary new discoveries
that  result  in  a  total  reorganization  of  society. it  might  be  like  nothing  we  have
ever experienced before. Science fiction writers such as h. g.Wells, isaac asimov,
and arthur  c. clarke  have  explored  some  of  these  possibilities.

the dominant

metaphors (at least those presented in the United States) do not anticipate radical
change. instead, the american vision of spaceflight promises to conserve the values
associated with the continental frontier, our business civilization, the scientific
revolution, national security, overall progress based on technology, and the tendency
to elevate scientists, engineers, and other experts to positions of power in society.
collectively, these are distinctly american values.

the rhetoric of spaceflight demonstrates the presence of these expectations, at

least in the United States. america is thought to be a frontier nation, with many of
its characteristics shaped by the presence of open land and the absence of established
institutions such as those found in feudal europe.the innovative spirit,the preference for
democracy, and the absence of social barriers that would otherwise impede cooperation
and perpetuate inequality are all thought to flow from the american frontier. at least,
that is how it has appeared to many of the people whose european ancestors arrived
in america after 1600.

Space travel is commonly presented as a means of extending

12. See the concepts of evolutionary biology in h. g. Wells,

The Time Machine and War of the Worlds

frank D. mcconnell, ed. (new York: oxford University press, 1977); global transformation in
arthur c. clarke,

Childhood’s End

(new York: harcourt Brace & World, 1953); and psychohistory

in isaac asimov,

Foundation

(new York: gnome press, 1951). for an analogous view, also see ray

Kurzweil,

The Singularity Is Near:When Humans Transcend Biology

(new York:Viking, 2005).

13. frederick Jackson turner, “the Significance of the frontier in american history,” in John m.

farager,

Rereading Frederick Jackson Turner

(new York: henry holt, 199).

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these traditions.“Without a frontier from which to breathe new life,” robert Zubrin
argues,“the spirit that gave rise to the progressive humanistic culture that america has
represented for the past two centuries is fading.” Zubrin advocates the settlement of
mars as a means of perpetuating the values associated with the american frontier.

according to political scientist Dwight Waldo,america is a distinctly business-

oriented civilization. this is a central feature of american life. Wealth and power
flow from the strength of business enterprise and the corporations around which the
economy is structured. not surprisingly,americans advocate corporate methods as
the best means for organizing the global economy and the government bureaucracies
that regulate it. americans also anticipate the extension of business activities into
space. in 2001, journalist lou Dobbs announced that space will provide the next
great business frontier; it will create “entirely new forms of technology, new forms of
manufacturing,new forms of recreation,and even new materials,”he said.according
to this prophesy, space commerce will provide business opportunities as large as
those emerging from the internet revolution, and will cease to be the province of
government agencies interested primarily in science and exploration. in this sense,
spaceflight serves to extend the values associated with corporate capitalism.

america’s status as a world superpower is largely based on a military apparatus

that relies upon technology to project force and reduce risk. in this context, the
cosmos is consistently represented as the new military “high ground.” Senate majority
leader and later president lyndon B. Johnson embraced this point of view when he
helped launch america’s entry into space by declaring that “control of space means
control of the world.”advocates of both robotic and human spaceflight continue to
use national security arguments as a justification for U.S. supremacy in this realm.

americans are quintessential progressives, generally accepting the promethean

notion  that  progress  as  a  whole  is  good  for  humankind  and  that  such  progress
typically  occurs  through  advances  in  science  and  technology.  historically,  not
all  cultures  have  embraced  the  doctrine  of  progress  through  technology. Some
groups elevate the attainment of spirituality through religious faith and salvation, a
perspective that exhibits mosques and cathedrals rather than rocket ships as symbols
of perfection. in the eighteenth century, the doctrines of natural rights and reason
formed the basis for the concept of human perfection. Space travel and its various

1. robert Zubrin,

The Case for Mars:The Plan to Settle the Red Planet and Why We Must

(new York: free

press, 1996), p. 297. See also national commission on Space (thomas o. paine, chair),

Pioneering the

Space Frontier

(new York: Bantam Books, 1986).

15. Dwight Waldo,

The Administrative State:A Study of the Political Theory of American Public Administration

(new York: ronald press, 198), p. 5; lou Dobbs with h. p. newquist,

Space: The Next Business

Frontier

(new York: pocket Books, 2001), p. 2.

16. Statement of Democratic leader lyndon B. Johnson to the meeting of the Democratic conference

on 7 January 1958, Statements of lBJ collection, Box 23, lyndon Baines Johnson library, austin,
texas; see also office of Science and technology policy, executive office of the president, the
White house,“U.S. national Space policy,” 31 august 2006.

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spinoffs emphasize a view of progress rooted in the age of enlightenment and the
scientific revolution that accompanied it.these are cultural choices, unattached to
any absolute requirement that human civilizations advance in one particular way.

the cultural manifestations of spaceflight also help to answer the classic social

question:Who should rule? throughout history, this question has been answered in
different ways. in some societies, priests rule; in others, hereditary monarchs. plato
favored guardians,who ruled on the basis of their innate understanding of the good.
the doctrine of technological progress favors rule by experts, in which scientists,
engineers, and other experts employ objective methods to discover the “one best
way” of organizing social affairs, typically accompanied by an emphasis on the need
for efficiency in a machine-based civilization.the concept that experts should build
and operate the machinery of a technological society seems intuitively obvious, but
it is not a choice that has been pursued by all civilizations at all times.

two concepts help frame the use of metaphors as a means of explaining

both past and anticipated impacts of spaceflight. one is the doctrine of american
exceptionalism; the other is the vocabulary of postmodern analysis. the doctrine of
american exceptionalism, rooted in works such as those by alexis de tocqueville,
frederick Jackson turner, louis hartz, and aaron Wildavsky, traces the power of the
american experience to relatively unique material and social conditions.these include
the absence of feudal institutions and the existence of an open frontier—conditions
thought to encourage equality, cooperation, creativity, democracy, and a liberal tradition
as the term is used in its classical,lockean sense.

Spaceflight,in this regard,is presumed

to provide an analogous force, encouraging the perpetuation of traditions thought to
have made america unique.Without such a continuing force, advocates of the doctrine
suggest,america will become more like the rest of the world.the doctrine of american
exceptionalism is speculative and controversial, but serves as a larger framework through
which the presumed impact of spaceflight can be examined.

postmodern analysis provides a number of concepts useful for examining the

manner in which imagination shapes future events. proponents of this perspective
emphasize the roles that the broadcast media and similar technologies play in
decentralizing power and framing ideas within the public at large. Under these
conditions, ideas are thought to take shape in the minds of the beholders and lack an

17. See Sylvia D. fries,

NASA Engineers and the Age of Apollo

(Washington: naSa Sp-10, 1992);

homer h. hickam,

Rocket Boys:A Memoir

(new York: Delacorte press, 1998); Jeff Kanew,

Revenge

of the Nerds

[film] (20th century fox, 198), and Waldo,

The Administrative State

18. alexis de tocqueville,

Democracy in America

(new York: Vintage Books, 195); turner, “the

Significance of the frontier in american history”; louis hartz,

The Liberal Tradition in America:An

Interpretation of American Political Thought Since the Revolution

(new York: harcourt, Brace & World,

1955); aaron Wildavsky,

The Rise of Radical Egalitarianism

(Washington: american University press,

1991). See also Seymour martin lipset,

American Exceptionalism:A Double-Edged Sword

(new York:

W.W. norton, 1996).

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objective reality.this is not a totally new concept and may be associated with periods
other than the postmodern one. in separate works, Joseph corn and roderick nash
demonstrate the manner in which mental images have shaped the development of
aviation and the american environmental conservation movement.nash,in particular,
shows how modern conservation required for its birth and sustenance a reformulation
of the popular conception of wilderness. By reframing “wilderness” from a condition
of savage peril to a citadel of spiritual renewal,writers and artists made new government
policies possible. a similar process guided the history of aviation. people imagined
effects from aviation that far exceeded the material benefits of this new technology
and which, in turn, helped to elicit government support.

expectations regarding spaceflight are expressed through a number of forms

familiar to people engaged in postmodern analysis. one is hyperreality, or the
reappropriation of familiar cultural symbols through the mass media. thus, gene
roddenberry presented the original Star trek television series not so much as a
work of science fiction but as a reinterpretation of the hollywood Western in an
extraterrestrial setting. as his director’s notes reveal, this was a deliberate decision.
the hollywood Western was a proven product; resetting it in space helped to ensure
an audience for what might have otherwise been a quickly forgotten series.

the concept of simulacrum also guides postmodern analysis. this concept

characterizes the process of making imperfect copies of original forms, as a paint-
by-numbers kit might reproduce a work of art by Vincent Van gogh. Visions of
spaceflight abound with simulacrum, from winged spaceships that resemble jet
fighters to robots that often resemble human beings.

postmodern analysis provides a framework through which visions of

spaceflight may be examined in a context that is larger than the subject itself.
the postmodern concept of cultural relativism rejects the traditional notion that
societies progress in predictable ways, as from agrarian to industrial, in favor of the
more existential belief that people become what they choose to be. this directly
contradicts the dominant interpretation in which spaceflight is seen as moving
along a forward line of progress that nature provides.

the postmodern framework

accepts aspirations for space travel as social creations that vary according to the
predispositions of the beings that create them.these contrasting points of view add
conceptual depth to what might otherwise remain a relatively narrow assessment
of impacts in a single field.

19. Joseph J. corn,

The Winged Gospel:America’s Romance with Aviation, 1900–1950

(new York: oxford

University press, 1983); roderick f. nash,

Wilderness and the American Mind

, th ed. (new haven:

Yale University press, 2001).

20. See arthur c. clarke,

2001:A Space Odyssey

(new York: new american library, 1968).

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rameWorK

implemented visions of spaceflight eventually confront physical conditions;the

laws of physics provide the ultimate methodological check on anticipated effects.
Some of the more interesting checks occur in the social realm.take, for example,
the widespread belief that space represents some sort of “final frontier.” this line
of reasoning draws heavily on the american mythology of frontier life.Yet many
other societies have confronted physical frontiers – and not always with the same
results. an obscure but interesting article in the J

ournal of the British Interplanetary

Society

, using a comparative perspective, suggests that the conditions present in

extraterrestrial colonies may lead to social and political effects quite different than
those remembered from the american frontier. in america, frontiers are thought to
have promoted equality, cooperation, and rural independence. conditions in space,
however, may lead to the creation of societies that are autocratic, corporate, and
feudal in nature.this is certainly the history of civilizations, such as ancient egypt,
that employed hydraulic technologies to open barren lands. in this respect, any
extraterrestrial colonies that actually arise may less resemble the mythical conditions
thought to exist on the american frontier than the egyptian-like civilization
presented in roland emmerich’s classic science fiction film

Stargate

in presenting the ultimate justification for spaceflight, advocates such as carl

Sagan and robert goddard argued that it would be necessary for the survival of
humankind. carl Sagan insisted that no technological civilization could expect to
live long without moving onto other planets, whereas robert goddard observed
that humans would eventually need to disperse earthly life forms before the Sun
grew cold. asked to address the British interplanetary Society, philosopher and
science fiction writer olaf Stapledon posed a critical challenge in this regard. “if
one undertakes to discuss what man ought to do with the planets,” Stapledon said,
“one must first say what one thinks man ought to do with himself.”

put another way, exactly what aspects of human society do the advocates of

spaceflight propose to preserve? the answer, taken generally from the words of
spaceflight advocates, is that they plan to conserve the values associated with american
exceptionalism and capitalist democracy.these are the frames through which spaceflight
is most commonly viewed in america and they tend to create the principal expectations
regarding the societal impacts that spaceflight is presumed to have.

21. David Sivier,“the Development of politics in extraterrestrial colonies,”

Journal of the British Interplanetary

Society

(September/october 2000); see also Karl a. Wittfogel,

Oriental Despotism

(new haven: Yale

University press, 1957) and roland emmerich,

Stargate

[film] (metro-goldwyn-mayer, 199).

22. carl Sagan,

Pale Blue Dot: A Vision of the Human Future in Space

(new York: random house,

199); esther c. goddard and g. edward pendray, ed.,

The Papers of Robert H. Goddard

(new York:

mcgraw-hill, 1970) Vol. 3, p. 1612; olaf Stapledon,“interplanetary man?” in robert crossley,

Olaf Stapledon Reader

(Syracuse, nY: Syracuse University press, 1997), pp. 232–233.

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Unanticipated Consequences

finally, how does one deal with unanticipated impacts? Some effects appear

outside the cultural anticipation imposed on spaceflight and do not receive a decent
share of predictions in advance. commenting on the nature of the universe in
general, British geneticist, biometrician, and physiologist J. B. S. haldane suggested
that in some respects it “is not only queerer than we suppose, but queerer than we

can

suppose.”

for some of its ultimate effects, the impact of spaceflight may turn

out to be stranger than people are able to imagine in advance.

two recent developments help to illustrate this situation. the first is the so

far disappointing pursuit of extraterrestrial life. the widespread expectation that
spaceflight will result in the discovery of extraterrestrial life permeates the early
literature on spaceflight, from the contemplation of environmental conditions on
mars to the presentation of alien forms in science fiction.

in a fashion similar to

other metaphors imposed on space travel, the vision of a universe teeming with
life derives much of its force from the widespread expectation that expeditions in
the extraterrestrial realm will be similar to earlier ventures in the terrestrial one.
terrestrial explorers returned with tales of exotic species and strange cultures,
fueling expectations that extraterrestrial journeys would reveal the same.

throughout the first 50 years of spaceflight, at least, this expectation has

not been fulfilled. confounding widespread expectations, robotic spacecraft have
revealed the surface of mars to be essentially sterile, not the “abode of life” that
writers such as percival lowell and Willy ley portrayed. inspection of Venus, which
was often portrayed in pre-Space age writings as a paleozoic planet, has exposed a
hellish place much too warm to permit the development of complex life.

Just as the anticipation of observed impacts can be checked with reference to

their underlying theories, so the significance of unexpected effects can be gauged by
the emergence of new hypotheses. grand experiments, including those taking the
form of government policy, often produce results unanticipated by previous theory
or experience. Such results, where significant, commonly prompt the presentation
of new theories which, in turn, can be tested in conventional ways.the appearance
of a new theory serves as an important marker for the presence of a significant
unanticipated result or event.

23. J. B. S. haldane,

Possible Worlds and Other Papers

(new York: harper & row, 1927), p. 298.

2. See Steven J. Dick,

Life on Other Worlds: The 20th-Century Extraterrestrial Life Debate

(new York:

cambridge University press, 1998).

25. See percival lowell,

Mars as the Abode of Life

(new York: macmillan, 1908); isabel m. lewis,“life on

Venus and mars?”

Nature Magazine

(September 193), p. 13.

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During the early stages of space exploration, statements anticipating the

ubiquity of extraterrestrial life forms were common. Defending the search for
extraterrestrial life in a 1975 issue of

Scientific American

, carl Sagan and frank Drake

announced that “our best guess is that there are a million civilizations in our galaxy
at or beyond the earth’s present level of technological development.” By 1990, this
expectation had been sufficiently degraded to allow peterWard and Donald Brownlee
to issue a contrary hypothesis. life on earth, they suggested, might be a result of a
combination of events with a very low probability of occurrence. Simple life forms
might be widespread in the universe, they allowed, but “[c]

omplex

life—animals and

higher plants—is likely to be far more rare than is commonly assumed.”

the emergence of another new theory accompanied a different impact that

was largely unanticipated in early writings about spaceflight. prior to the Space age,
few people wrote extensively about the effect that viewing the whole earth from
a distance would have on human conceptions of their home planet, in spite of the
obvious analogy provided by the intellectual shift accompanying the movement
from the aristotelian to the copernican vision of the cosmos.With the advent of
spaceflight, new images of earth appeared. apollo astronauts provided the most
dramatic ones, from the 1968 photograph of earth rising over the moon to the
iconic 1972 whole earth image that decorates the earth Day flag.

these images coincided with the emergence of the gaia hypothesis—the

strange new suggestion that the whole earth and its biota might have the capacity
to regulate conditions in such a manner as to produce conditions favorable to the
maintenance of life. James lovelock formulated this hypothesis in the early 1960s
partly as a response to requests from naSa to develop instruments that could detect
signatures of life in planetary atmospheres.

the gaia hypothesis did not receive

much attention until images of the whole earth began to appear. imagining earth
as a single, self-regulating system is much easier when one sees the whole planet as
it appears from afar. in addition to sponsoring the research that spawned this theory,
spaceflight might have created a perspective that hastened its acceptance.again, this
particular effect had not been much anticipated.

26. carl Sagan and frank Drake,“the Search for extraterrestrial intelligence,”

Scientific American

(may

1975), pp. 80–89; peter D.Ward and Donald Brownlee,

Rare Earth:Why Complex Life Is Uncommon

in the Universe

(new York: copernicus, 2000), p. xiv.

27. See James lovelock, “gaia as Seen through the atmosphere,”

Journal of Atmospheric Environment

6 (1972), pp. 579–580; lynn margulis,

Symbiotic Planet:A New Look at Evolution

(newYork: Basic

Books, 1998).

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Summary

the assessment of societal impacts arising from the interjection of any new set

of events can be quite challenging, no matter where it is conducted.the temptation
to draw connections where none exist,or to ignore the implications of unanticipated
effects, is strong, outweighed (one hopes) by the desire of analysts to tell the story
as truthfully as possible.

this chapter offers a number of methods for deepening the study of societal

impacts insofar as they arise from the spaceflight venture and improving the reliability
of the conclusions drawn.the use of interrupted time-series analysis—commonly
characterized as turning points—contains weaknesses that can be partly overcome
through comparative analysis.the examination of predictions can be enhanced by
insisting that they be examined in the context of supporting theories. in a similar
manner, the significance of unanticipated societal impacts can be measured through
the acceptance rate of new theories suggested by the precipitating events. When
assessing the cultural effects of spaceflight,findings can be strengthened by observing
the material and ideological characteristics of the societies in which those effects are
presumed to occur. as noted in this chapter, many of the cultural effects ascribed
to spaceflight in the United States have the quality of conserving values thought by
americans to distinguish their nation. it would be interesting to know whether the
promotion of spaceflight in other nations has reinforced social values different than
those found in the United States.

hapter

What Are Turning Points in History, and

What Were They for the Space Age?

roger D. Launius

ebates over “turning points” in history have sometimes become quite difficult
and controversial among observers of the past. at sum they signify, represent,

and define lasting changes in the climate of the times. the definition of turning
points is exceptionally idiosyncratic, and their delineation also shifts over time as
perspectives change and events become more distant. For most people who look
back on the twentieth century, 1929 and 1941 demonstrated turning points as the
nation changed in fundamental ways in response to the beginning of the great
Depression and as the united States entered World War ii. on the other hand, 1963
and 1987 were probably not turning points despite the Kennedy assassination and
the stock market crash, respectively.therefore, to a very real extent turning points
reflect the sea change that follows an event rather than the event itself.additionally,
not all turning points need be marked by a dramatic event. For instance, no one
event marked the shift from the conformist 1950s to the radical 1960s and 1970s,
although many observers agree that these decades were indeed turning points.

in the context of spaceflight,what are the turning points? most would probably

agree that the launch of Sputnik in 1957 represented a turning point, although later
in this essay i will make a case in opposition to this belief. But what about the
Kennedy decision to go to the moon, the moon landings themselves, the first flight
of the Space Shuttle, the losses of

Challenger

and

Columbia

, and the rise of china as

a player in human spaceflight? this list might be expanded indefinitely.this essay
explores what constitutes a turning point in history and examines some turning
points in the history of the Space age.

1. the author thanks the following scholars for offering helpful suggestions about this essay:

David c. arnold,William e. Burrows, erik conway, Jonathan coopersmith, Deborah g. Douglas,
Donald c. elder, mark a. erickson, James rodger Fleming, amy Foster, anne collins goodyear,
adam L. gruen, richard p. hallion, peter L. hays, J. D. hunley, Stephen B. Johnson, Katy Kudela,
Laura Lovett, Dick myers, anna K. nelson, randy papadopolous, erik p. rau, philip Scranton,
James Spiller, James a.Vedda, and David Ward.

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Defining a Turning Point

in a recent search of amazon.com for the words “turning point” in the titles of

books, i found 1,134 relevant titles.these ranged from

The Turning Point: Jefferson’s

Battle for the Presidency

by Frank van der Linden to

The Higher Freedom: A New

Turning Point in Jewish History

by David polish, to

The Right Moment: Ronald Reagan’s

First Victory and the Decisive Turning Point in American Politics

by matthew Dallek.

and the term is hardly new. hoffman nickerson used it in 1928 to describe the
battle of Saratoga during the american revolution.

postmodern scholars such as

Fritjof capra have employed it as well.

it appears in historical work of all types

and varieties, schools and subjects, and grade levels and sophistication. indeed, the
concept of a turning point is ubiquitous in the literature of history. and not just
in the written word—professors, pundits, politicians, and plebeians all use it in all
manner of settings and circumstances. many course offerings at the nation’s colleges
and universities include “turning point(s)” in their titles.

at a core level, a turning point may be defined as an event or set of events

that, had it not happened as it did, would have prompted a different course in
history. Dictionaries define it as “a point at which a significant change occurs.”

the classic youngster’s encyclopedia,

World Book

, defines it as “a point at which a

notable or decisive change takes place; critical point; crisis:the Battle of gettysburg
was a turning point in the civil War.”

the use of the term comes up in the most

interesting places.

Encyclopædia Britannica

incorporates 560 entries in which the

term is used. not so unusual is the statement that the Battle of midway “marked
the turning point of the military struggle between” the united States and Japan in
1942, and “the year 1206 was a turning point in the history of the mongols and in
world history: the moment when the mongols were first ready to move out beyond
the steppe.”

more obtuse are such interpretations as the death of antiochus in 129

Bc marking “a turning point in the history of the eastern mediterranean: greco

2. Frank van der Linden,

The Turning Point: Jefferson’s Battle for the Presidency

(golden, co: Fulcrum

publishers, 2000); David polish,

The Higher Freedom:A New Turning Point in Jewish History

(chicago:

Quadrangle Books, 1965); matthew Dallek,

The Right Moment: Ronald Reagan’s First Victory and the

Decisive Turning Point in American Politics

(new York: Free press, 2000).

3. hoffman nickerson,t

he Turning Point of the Revolution; or, Burgoyne in America

(new York: houghton

mifflin, 1928).

4. Fritjof capra,

The Turning Point: Science, Society, and the Rising Culture

(new York: Simon and

Schuster, 1982).

5. “turning point,”merriam-Webster online Dictionary,

http://www.m-w.com/dictionary/turning%20point

(accessed 21 august 2006).

6. World Book encyclopedia and Learning Sources,

http://www.worldbook.com/wb/dict?lu=turning%20point

(accessed 21 august 2006).

7. “midway, Battle of,” encyclopædia Britannica online,

http://search.eb.com/eb/article-9052586?

query=turning%20point&ct=eb

(accessed 21 august 2006);“genghis Khan,” encyclopædia Britannica

online,

http://search.eb.com/eb/article-41207?query=turning%20point&ct=eb

(accessed 21 august 2006).

What are Turning Points in History, and

What Were They for the Space Age?

macedonian domination received a decisive blow; it would survive for only 46
more years.”

tying the demise of greek domination nearly two generations later to

the death of antiochus seems tenuous at best.

From a sociological perspective, a turning point represents a lasting shift in

the

zeitgeist

or “spirit of the age.” Several ingredients must be present. the shock

to the system of civilization is profound and it may be measured in several ways.
according to sociologist ted goertzel, one of the most reliable indicators is the
response of the financiers. “Financial markets are one of the quickest and most
sensitive indicators of a country’s mood,” he noted.“panic can move quickly after a
shock . . . and markets can spiral out of control.” public opinion polls may also take
the temperature of the society and its reaction to some major event,

but those will

work only for recent events where the data and structures that goertzel understands
are available. clearly, there is no manner in which the mongol invasions of genghis
Kahn, the death of antiochus, or even the Battle of midway can be assessed using
financial data and public opinion polls.

political scientists would employ analytical models such as Frank Baumgartner’s

and  Bryan  Jones’s  punctuated  equilibrium  analysis, which  suggests  that  the  policy
process  is  comprised  of  long  periods  of  stability  that  are  then  interrupted  by
predictable periods of instability which lead to major policy changes. Baumgartner
and Jones describe “a political system that displays considerable stability with regard to
the manner in which it processes issues, but the stability is punctuated with periods of
volatile change.” in times of stability the public is limited in its ability to effect change
to  the  overall  system, and  most  people  are  not  even  focused  on  making  changes
because they are relatively content with the current situation. only in times of unique
crisis and instability do enough members of society rise up to undertake fundamental
change, often from a perceived threat or dramatic event.

a turning point, therefore,

results from a punctuation in the equilibrium of everyday life.this theory—clinical
and sterile as it might actually be—has been applied to all manner of decisive events
in history and is consistently reaffirmed in the discipline of political science.

other social science disciplines approach the issue of marked change in

different ways and with differing analytic tools, but all, it seems, recognize a turning
point in the stream of time as little more than an artificial construct that facilitates
interpreting dramatic changes in society. indeed, it seems as subjective a term as
“scientific revolution” was for thomas Kuhn, who defined it as a “noncumulative
developmental episode in which an older paradigm is replaced in whole or in part

8. “iran,ancient,” encyclopædia Britannica online,

http://search.eb.com/eb/article-32135?query=turning

%20point&ct=eb

(accessed 21 august 2006).

9. ted goertzel, “September 11, 2001: a turning point for america’s Future?” undated paper in

possession of author.

10. Frank r. Baumgartner and Bryan D. Jones,

Agendas and Instability in American Politics

(chicago:

university of chicago press, 1993), pp. 3–24; Frank r. Baumgartner and Bryan D. Jones,“agenda
Dynamics and policy Subsystems,”the Journal of politics 53 (november 1991): pp. 1044–1074.

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by an incompatible new one.”

as with “scientific revolution,” assigning turning

point status to an event is very much up to the individuals analyzing it and its
effects. indeed, people at the time may well not recognize a turning point as such.
as historian erik rau remarked:

[h]istorians today think of the Battle of Saratoga as a turning point
in the history of the american revolution, but many at the time
would have had no reason to believe this.this makes the turning
point of Saratoga no less real to us in understanding Saratoga,
but it may not have influenced very many people’s behavior on
the ground at the time.You can’t see Saratoga as a turning point
until after the war is over and you take stock of what happened.a
turning point is ultimately a construct of historical reflection, and
a historical unit of analysis, rather than an event that reveals itself
to the people living through it at the time.

another analogous term that has gained credence in recent years is the

singularity-rooted balance of equations, which is now applied far beyond its original
application and is a statement of the power of nomenclature in modern society.
again, there is no firm definition acceptable to all.

of course, when considering turning points in history we are treading a path

well-worn by earlier historians, some of whom were illustrious in their own time and
still evoke hushed tones of reverence in seminars on historiography.at sum, the issue of
a turning point in history is really about assigning significance to historical events, and
many in this profession have pondered this problem.carl L.Becker,for one,explored this
in his seminal paper,“What are historical Facts?” first presented at the research club
of cornell university on 14 april 1926. using as an example Julius caesar’s crossing of
the rubicon in 49 Bce,Becker argues that we have chosen to single this out and assign
it significance, indeed marking it as a turning point in roman history. Why? many
others had crossed the rubicon at many other times, yet they are unremembered.Why
is caesar’s crossing in the year 49 Bce significant? only considered in the context of
what were the significant results of his entry into rome may we begin to explore this
event.and considered in relation to the web of interconnection, it is actually a symbol
standing for the historical record—a convenient shorthand—that allows us to explain
significance. Becker reasoned that any “historical fact is not the past event, but a symbol
which enables us to recreate it imaginatively.”

11. thomas h. Kuhn,

The Structure of Scientific Revolutions

(chicago: university of chicago press, 1962), p. 92.

12. erik p. rau e-mail to author,“turning points in history,” 17 august 2006, copy in possession of author.
13. a noncosmological use of this term may be found in ray Kurzweil,

The Singularity Is Near:When

Humans Transcend Biology

(new York:Viking, 2005).

14. carl L. Becker, “What are historical Facts?” in

Detachment and the Writing of History: Essays and

Letters of Carl L. Becker

, ed. phil L. Snyder (ithaca, nY: cornell university press, 1958), pp. 41–64;

quotes from pp. 45–46.

What are Turning Points in History, and

What Were They for the Space Age?

Becker traveled into similar territory in his presidential address before the

american historical association in 1931, where he declared “everyman his own
historian.” he asserted that history is an artificial extension of memory and “in
this sense is story, in aim always a true story; a story that employs all the devices of
literary art (statement and generalization, narration and description, comparison
and comment and analogy) to present the succession of events in the life of man,
and from the succession of events thus presented to derive a satisfactory meaning.”
he added that “in every age history is taken to be a story of actual events from
which a significant meaning may be derived.”

turning points in history are all

about assigning significance to events of the past, and they are exceptionally slippery
and idiosyncratic to the individuals assigning that significance. at the same time,
some historians handle this issue with style and grace and aplomb.

one example of the difficult task of assigning significance to events will suffice,

and the process will conjure an image of a turning point.at the five-year anniversary
of the 11 September 2001 attacks on the World trade center and the pentagon, most
people would probably consider this instance as a clear point of demarcation in which
the trajectory of the world as we understood it shifted appreciably. in the aftermath
of 9/11, feelings of insecurity at home and hysteria in Washington abounded. major
changes in governmental policies and partisan politics resulted.a sense that the nation
as a superpower might be at risk abounded and the response needed to be swift and
decisive. military action resulted, some of it taking a course unanticipated by those
planning it.there were hearings and finger-pointing, and floodgates of government
funding opened for all manner of presumed security-enhancing programs and
intelligence specialists. additionally, president george W. Bush was criticized for the
9/11 attacks and his failure to prepare for such an eventuality.

But is it appropriate to view 9/11 as a turning point?” at one level, perhaps,

but some have argued that this event was simply one chapter of a much longer story.
as cambridge university historian Brendan Simms recently commented:

Without the attacks on the World trade center and the pentagon,
we may say with a reasonable degree of confidence that airline
travel would have been easier. But beyond that, it becomes
difficult to speculate. Some sort of attempt to topple hussein
was brewing in any case. oil prices would still have risen given
the increase in global, particularly chinese and indian, demand.
the iranian nuclear issue would be equally acute.and needless
to say, the issue of palestine would still be with us.

15. carl L. Becker,“everyman his own historian,”

American Historical Review

, 37 (January 1932): pp.

221–236, quote from 231–232.

16. this includes everything from such polemics as gore Vidal, “the enemy Within,”

The Observer

(London), 27 october 2002, to more the reasoned analysis of the national commission on
terrorist attacks upon the united States,

The 9/11 Commission Report

(Washington, Dc: u.S.

government printing office, 22 July 2004).

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Simms agrees with former chinese premier Zhou en-lai’s quip about the

significance of the French revolution: it is too early to tell.

Likewise, rutgers university sociologist ted goertzel questions 9/11 as a

turning point in history. he cites polls suggesting that u.S. attitudes were mostly
unchanged by the attacks and that efforts to return to normalcy motivated many
people affected. he found that “the stock market recovered quickly from the shock
of 9/11” and that the “domestic political climate does not seem to have shifted.”
in only one major area did goertzel find a significant shift in national perspective,
noting that the “country’s foreign policy mood has shifted from introverted to
extroverted.” indeed, he found that the following major elements remained firm
both before and after 9/11:

american military hegemony is strong;

the stock market recovered from its initial shock;

america is firmly in an extroverted foreign policy mood; and

Western “sensate” popular culture seems irresistible.

For goertzel, 9/11 as a turning point is more nuanced and not nearly as
straightforward as many have suggested.

With the foregoing discussion,it appears that turning points in history resemble

so many other constructs in history, such as periodization, dialectic, causation, and
significance, in their lack of firm definition. undoubtedly, however, they are part of
the toolbox used by historians and they appear throughout the master narrative of
human history. Since turning points in history seem remarkably similar to beauty
(that is, they exist in the eye of the beholder, thereby demonstrating the need for
sagacious historians),do they still offer useful frames of reference for historical study?
i asked several friends, colleagues, fellow travelers, and critics to offer their thoughts
on turning points in space history, and what i received was a remarkable set of broad
observations. many of the ideas presented proved remarkably reflective and some
were profound.as Dick myers observed,“Like so many things in our existence, the
definition depends upon the context . . . i think that one defines it in the concrete,
not the abstract.” in considering the histories of the space age, historians working
in this arena have the power to define turning points however they wish.they will
“be unique to that topic . . . [and] are defined by the context in which they occur or
are said to occur—the context in which historians, etc. are explaining and analyzing
and trying to understand.”

17. Brendan Simms, “9/11: historic turning point, or Bump in the road?”

Los Angeles Times

, 10

September 2006.

18. adam clymer,“u.S.attitudes altered Little by Sept. 11, pollsters Say,”

New York Times

, 20 may 2002;

ted goertzel,“9/11 as a turning point in history,” undated powerpoint presentation in possession
of author.

19. Dick myers e-mail to author,“turning points in history,” 16 august 2006, copy in possession of author.

What are Turning Points in History, and

What Were They for the Space Age?

historian philip Scranton carried this line of thinking a bit further. he

suggested that there might be multiple framings of historical turning points:

[F]irst  from  the  perspective  of  contemporary  actors  (then
refracted through the longer term assessments of historians—
hence  Sputnik  was  a  major  break  for  those  working  in  the
world  of  1957–58, but  not  so  big  a  deal  fifty  years  on)  and
alternatively, the  turning  points  historians  construct  in  their
narratives  and  periodizations, years  or  events  which  may  not
have seemed such a big deal to the folks at the time. once in a
while (i’d try 1968) both actors and historians agree that there’s
a major shift that’s been launched.that frames a third, probably
pretty small, category.

art historian David Ward offered an additional thought on this subject. he

noted that the concept of turning points had value for political, diplomatic, military,
and economic history, but was much less useful in social and other types of history.
as Ward commented, it would be “rather hard to pin down the moment when
modernism [in art] arrived.”

Deborah g. Douglas criticized the concept of turning points in history and

suggested that they represent

[ . . . ] the spaces/places in time that the historical community
feels  it  has  some  fundamental  understanding  of  and  can
therefore use in analysis and, more importantly, in our narratives.
Depending  on  your  disciplinary  point  of  view, you  may  find
yourself  attracted  or  repelled  by  the  particular  term  turning
point but i suspect that has more to do with the time scale of
your study and your literary tastes.

She allowed that “the concept is popular but it is also formulaic and didactic—

too amateurish, really—for good writers and readers.”

turning points are also representative of the dominant culture in which

they are situated. For example, how would noted marxist historian howard Zinn
interpret the turning points usually associated with the twentieth century? his
warning is apropos in this context: “there is an underside to every age about
which history does not often speak, because history is written from records left
by the privileged.We learn . . . about the thinking of an age from its intellectual
elite.”

moreover, how would a Vietnamese scholar approach a history of the

20. philip Scranton e-mail to author,“turning points in history,” 17 august 2006, copy in possession

of author.

21. DavidWard e-mail to author,“turning points in history,” 21 august 2006, copy in possession of author.
22. Deborah g. Douglas e-mail to author, “turning points in history,” 16 august 2006, copy in

possession of author.

23. howard Zinn,

The Politics of History

(Boston: Beacon press, 1970), p. 102.

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1960s or, more to the point, a how would a chinese scholar focusing on aerospace
history? the reality is that turning points lack clear cohesion across a broad
spectrum. graphically demonstrating the lack of clear definition and meaning of
a turning point, Douglas suggested a game:

assemble on cards a large number of events that might be considered
turning points in space history. Shuffle the deck, pick 10 at random,
and spend 5 minutes making up a story.Do it again a couple of times
and compare your stories.are you fitting your ‘turning points’ into
your preconceived narrative or do you have vastly different stories?

this approach might yield really interesting results and is grist at least for a session
at one of the major historical conferences.

Despite the ease with which we might appropriately dispense with turning points

as a useful analytical tool in history, they are everywhere in the national discourse. in
twentieth-century america, events commonly assigned turning point status include
the following, ranked by opinion leaders in a poll conducted in 1999.

Top 25 News sTories of The TweNTieTh CeNTury

U.S. drops atomic bomb

1945

Men first walk on the Moon

1969

Japan bombs Pearl Harbor

1941

Wrights fly first airplane

1903

U.S. women win the right to vote

1920

JFK assassinated in Dallas

1963

Nazi Holocaust exposed

1945

World War I begins

1914

Court ends “separate but equal”

1954

U.S. stock market crashes

1929

Antibiotic penicillin discovered

1928

DNA’s structure discovered

1953

Soviet Union dissolves

1991

President Nixon resigns

1974

Germany invades Poland

1939

Communists take over Russia

1917

Ford creates assembly line

1913

Soviets launch first satellite

1957

Einstein conceives relativity

1905

Birth control pill OK’d by FDA

1960

New polio vaccine works

1953

Hitler named chancellor

1933

M. L. King, Jr., assassinated

1968

Allies invade France on D-Day

1944

Deadly AIDS disease identified

1981

24. Douglas e-mail to author,“turning points in history,” 16 august 2006.
25. “Stories of the century, 1900-2000,” newseum,

http://www.newseum.org/century/finalresults.htm

(accessed 13 September 2006).

What are Turning Points in History, and

What Were They for the Space Age?

For the period since 2000, almost certainly the 2001 terrorist attacks on the

World trade center and the pentagon and the 2003 invasion of iraq would be
assigned important status as turning points in history.

the reality is that accepting all of these events, as significant as many are,

as turning points demonstrates the less than useful nature of the term. certain
events are immediately considered turning points, such as pearl harbor and the
atomic bomb,whereas others are assigned this status only in retrospect,such as the
stock market crash and the oil embargo.turning points of national significance
probably  take  place  less  often  than  this  list  suggests, and  the  probability  that
any  individual  would  witness  more  than  a  handful  of  them  during  his  or  her
lifetime  is  small. instead, the  25  events  listed  here  are  within  the  memory  of
many people still alive, and even those of us a little younger can remember more
than dozen of them.

Constructing Turning Points

in Space History

rather than playing the game as outlined by Debbie Douglas, let me suggest

some turning points in the history of spaceflight. i will then analyze three of them,
“turning” the concept on its “pointed” head: 1) a recognized turning point which i
will argue might not be one after all; 2) an event not usually thought of as a turning
point but which i will assert is appropriately considered one; and 3) an event that
was immediately labeled a turning point at the time it took place but, as time passes,
appears much less so than previously thought.

Based on inputs from several close observers of the history of spaceflight, major

turning points in the field may include the following:

1.robert goddard’s first liquid-fueled rocket (1926).
2.Development of ballistic missiles (1944).
3.Launch of Sputnik (1957).
4.Flight of Yuri gagarin (1961).
5.JFK’s announcement of apollo landing decision (1961).
6.Launch of the first operational applications satellites (1962).
7.apollo 11 lunar landing (1969).
8.nixon’s Space Shuttle decision (1972).
9.First flight of the Space Shuttle (1981).

10.

Challenger

accident (1986).

11.Demise of the Soviet union as competitor in space (1991).
12.Decision to turn the Space Station into a multinational program involving

russia (1992).

13.

Columbia

accident (2003).

14.Bush’s announcement of the Vision for Space exploration (2004).
15.Flight of SpaceShipone (2004).

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What is most interesting about this list, compiled from inputs from many

sources, is the lack any mention of planetary exploration or earth science, and only
a passing reference to applications satellites. most are also political turning points, a
few are technological, and none is social or scientific in focus.What is included (and
especially what is excluded) in this list represents a fascinating avenue for further
exploration, but i must leave that for another time and place.

Sputnik

Virtually everyone would agree that the launch of Sputnik 1 on 4 october

1957, represented an undisputed turning point in space history. most observers
chart the beginning of the Space age from that date. indulge me while i argue an
alternative position—that it did not represent a turning point at all but, rather, a
continuation of the events that had been moving along the same path from at least
World War ii. in the summer of 1957, six months into Dwight D. eisenhower’s
second term and before the Sputnik turning point in history, the president asked
the national Security council (nSc) to review the u.S. space program to ensure
that the level of investment and progress being made was adequate. he intended to
field the first intercontinental ballistic missiles (icBms) and reconnaissance satellites
by the time he left office.these capabilities in the new high ground of space would

Figure 2.1— The launch of Sputnik 1 is usually viewed as the beginning of the space age and a critical turning point
in history. Is it conceivable that it was less pivotal than usually thought? (NASA photo no. GPN-2002-000166).

What are Turning Points in History, and

What Were They for the Space Age?

ensure that the united States could compete effectively with the Soviet union in
the cold war rivalry that gripped the world. eisenhower learned that between 1953 and
1957 the nation had spent $11.8 billion on military space activities, mostly on ballistic
missile and reconnaissance satellite development.“the cost of continuing these programs
from FY 1957 through FY 1963,” the ncS reported,“would amount to approximately
$36.1 billion, for a grand total of $47 billion.”

By any measure, this should be considered a significant investment on the part

of the eisenhower administration, and it suggests that eisenhower had developed a
strategy for ensuring u.S. technological comparability, and eventual superiority, in
the global game of one-upmanship and rivalry that was the cold war.When adjusted
for inflation, only presidents ronald reagan and Bill clinton, surprisingly, made
similar investments in space technology.

those assets also found use on both the

military and civilian sides of the space program during subsequent years.

in an

irony of proportions too great to ignore, in 1 october 1957, after the launch of
Sputnik 1, eisenhower found himself branded by the Democrats as an incompetent
for allowing the Soviet  union to beat the u.S. into orbit by launching the first
satellite. For example, eisenhower argued that “i am always a little bit amazed about
this  business  of  catching  up. What  you  want  is  enough, a  thing  that  is  adequate.
a  deterrent  has  no  added  power, once  it  has  become  completely  adequate, for
compelling the respect of any potential opponent for your deterrent and, therefore,
to make him act prudently.”

moreover, eisenhower had long followed a path toward the development of

launch vehicles for use in the icBm program;satellite technology for reconnaissance
and communications; infrastructure required to support these activities such as
tracking and launch facilities; and utilitarian science that either directly supported
those missions or was a natural byproduct of them.an example of such a byproduct
was when, early in the military rocket research program, scientists won the
opportunity to place on some of the test vehicles instruments that provided data
about the upper atmosphere, solar and stellar ultraviolet radiation, and the aurora.
this became a very successful scientific program that was carried out with limited

26. S. everett gleason,“Discussion at the 329th meeting of the national Security council,Wednesday,

July 3, 1957,” 5 July 1957, nSc records, Dwight D. eisenhower presidential papers, eisenhower
Library,abilene, KS, p. 2.

27. reagan spent $233.02 billion on space issues in his eight years in office. clinton spent $230.14

billion during his eight years in office. in contrast, eisenhower’s spending was $183.69 billion. all
of these are in inflation-adjusted dollars. calculated using data in appendix e-1a,“Space activities
of the u.S. government,”

Aeronautics and Space Report of the President, Fiscal Year 2003 Activities

(Washington, Dc: naSa np-2004-17-389-hQ, 2004), p. 140.

28. much has been made of dual-use technology over the years, and space access has been an especially

important part of this capability. on space access, see

To Reach the High Frontier:A History of U.S. Launch

Vehicles

, ed. roger D. Launius and Dennis r. Jenkins (Lexington: university press of Kentucky, 2002).

29. “the president’s news conference of 3 February 1960,”

Public Papers of the Presidents of the United States:

Dwight D. Eisenhower

, 1960 61 (Washington, Dc: u.S. government printing office, 1964), p. 24.

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fanfare and funding. as a result, scientists taking part in this program used all the
military’s captured V 2s, persuaded the Department of Defense (DoD) to develop
new sounding rockets to replace them, and continued to use the nation’s rocket
development program for scientific research throughout the 1950s.

eisenhower’s space program also placed considerable emphasis on satellite

technology.  During  the  mid-1950s,  the  president  was  preoccupied  with  the
need  to  conduct  surveillance  of  Soviet  union  activities  and  its  growing  nuclear
capability.this led to the development of both surveillance aircraft and satellites on
an aggressive basis in the 1950s. as the 1960 downing of the u-2 reconnaissance
airplane revealed, however, aircraft overflights had severe shortcomings.a spacecraft
was  much  less  vulnerable. eisenhower  authorized  the Vanguard  satellite  program
in part because he wanted to establish the principle of overflight (namely, that a
satellite  did  not  intrude  upon  a  nation’s  airspace  when  crossing  its  territory  and
was not subject to interception), and an internationally supported scientific satellite
served this purpose better than any military launch.

nothing summarizes this balanced, measured approach toward space activities

better than a statement eisenhower made in 1959 at a meeting with top advisors.
he outlined three major goals that had to be accomplished:

the first is that we must get what Defense really needs in space;
this is mandatory. the second is that we should make a real
advance in space so that the united States does not have to be
ashamed no matter what other countries do; this is where the
super booster is needed. the third is that we should have an
orderly, progressive scientific program, well balanced with other
scientific endeavors.

Within the context of this philosophy,eisenhower was willing to expend resources

sufficient to meet major objectives, but not to open the floodgates of government
expenditures for activities that he believed did not have a viable component.

30. the military created the V 2 upper atmosphere panel in 1946 to oversee this activity. in

1948 it became the upper atmosphere rocket research panel, and in 1957 the rocket and
Satellite research panel. See Lyman Spitser Jr., “astronomical advantages of an extra-terrestrial
observatory,”

The Astronomy Quarterly

7 (September 1946): pp. 19–20; James a.Van allen,

Origins

of Magnetospheric

physics (Washington, Dc: Smithsonian institution press, 1983); homer e. newell,

Beyond the Atmosphere: Early Years of Space Science

(Washington, Dc: naSa Sp 4211, 1980); george

K. megerian,“minutes of V-2 upper atmosphere research panel meeting,”V-2 report no. 13, 29
December 1947;george K.megerian,“minutes of meeting of upper atmosphere rocket research
panel,” panel report no. 35, 29 april 1953, both in naSa historical reference collection.

31. r. cargill hall,“the origins of u.S. Space policy: eisenhower, open Skies, and Freedom of Space,”

Colloquy

, 14, no. 3 (December 1993); r. cargill hall,“origins of u.S. Space policy: eisenhower, open

Skies, and Freedom of Space,” in

Exploring the Unknown: Selected Documents in the History of the U.S. Civil

Space Program

,Vol. i, gen. ed. John m. Logsdon (Washington, Dc: naSa Sp-4407, 1995), chapter 2.

32. Brig.gen.a.J.goodpaster,“memorandum of conference with the president,october 12,1959,”23

october 1959, records of the White house office of Science and technology, Box 12, eisenhower
Library,abilene, KS.

What are Turning Points in History, and

What Were They for the Space Age?

eisenhower was also not unreceptive to increases in funding for space activities

purely  to  further  scientific  understanding. the  experience  of  approval  of  the
international geophysical Year (igY) satellite effort is instructive on this score. as
early  as  1950, a  small  group  of  scientists  in  the  united  States  began  discussing
among  themselves  the  possibility  of  using  earth-circling  satellites  to  obtain
scientific information about the planet.

in 1952, urged on by these same american

scientists, the international council of Scientific unions (icSu) proposed the
igY, a cooperative scientific endeavor to study solar–terrestrial relations during a
period of maximum solar activity. Some 67 nations agreed to conduct cooperative
experiments to study solar–terrestrial relations during a period of maximum solar
activity in 1957–1958.

in october 1954, at the behest of essentially this same group of u.S. scientists,

the icSu challenged nations to use their missiles being developed for war to launch
scientific satellites to support the igY research program. in July 1955, largely the same
enclave of american scientists convinced eisenhower that the united States should
respond to the icSu call for participation in the igY by launching a scientific satellite.
eisenhower’s decision called for existing organizations within the DoD to develop and
launch a small scientific satellite,“under international auspices, such as the international
geophysicalYear,in order to emphasize its peaceful purposes[;] ...considerable prestige
and psychological benefits will accrue to the nation which first is successful in
launching a satellite . . . especially if the uSSr were to be the first to establish a
satellite.”the result was project Vanguard, carried out under the supervision of the
naval research Laboratory. eisenhower also approved a budget of $23.5 million,
modest but considered adequate for the effort by scientific and technical personnel
consulted by the administration.

although some have asserted that Sputnik represented the “shock of the

century,” there did not seem to be much shock immediately after the launch of
Sputnik 1. most recognized that it did not pose a threat to the united States and

33. this group included Lloyd Berkner, Joseph Kaplan, Fred Singer, James Van allen, and homer

newell.the fingerprints of these core leaders are all over every decision relative to the igY satellite
program and the u.S. decision by eisenhower to sponsor a satellite. See the discussion of this
effort in constance mcLaughlin green and milton Lomask,

Vanguard:A History

(Washington, Dc:

Smithsonian institution press, 1971), pp. 6–39; rip Bulkeley,

The Sputniks Crisis and Early United

States Space Policy: A Critique of the Historiography of Space

(Bloomington, in: indiana university

press, 1991), pp. 89–122; r. cargill hall, “origins and early Development of the Vanguard and
explorer Satellite programs,”

Airpower Historian

9 (october 1964): pp. 102–108.

34. national Security council, nSc 5520 “Draft Statement of policy on u.S. Scientific Satellite

program,” 20 may 1955; united States national committee for the international geophysical Year
1957-1958,“minutes of the First meeting,technical panel on earth Satellite program, 20 october
1955,” both in naSa historical reference collection; Don irwin to mr. rockefeller and general
parker,“pentagon Briefing on earth Satellite program,” 12 october 1955; richard hirsch to elmer
B. Staats,“pentagon meeting on earth Satellite program,” 13 october 1955, both in White house
office of Special assistant for national Security affairs, nSc, ocB central Files, Box 11,“ocB
000.9 (national & physical Sciences),” eisenhower Library.abilene, KS.

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thus no one took immediate action to respond to it. instead, congratulations ensued
and people were excited by the Soviet success. at the same time, eisenhower
acknowledged the need to “take all feasible measures to accelerate missile and
satellite programs.”

he also moved to assure the american public that all was well,

accepting the findings of representatives of the international affairs Seminars of
Washington who reported on 15–16 october 1957:

if  there  was  any  trauma  following  the  russian  sputnik  [sic],
it  occurred  in Washington  and  not  among  the  general  public.
Washington, for  its  part, took  its  cue  from  the  newspapers  and
other issue makers.the misevaluation by leadership of the extent
of public interest, as measured by the amount of news, coverage
and the words of the issue makers, led to words and actions which
further  confused  the  issue. this  situation  points  up  the  general
problem for a democracy of:who is the‘public’to which leadership
attends and who in fact do the issue makers represent?

as it turned out, failure to appreciate the ability of eisenhower’s political enemies to
use Sputnik as a wedge issue in the 1958 campaign hurt his administration.

in his first press conference after the launch of Sputnik 1,on october 9 eisenhower

calmed speculation and said it did not raise his apprehension“[ ...] one iota.i see nothing
at this moment, at this stage of development, that is significant in that development as
far as security is concerned.”

others in the administration did the same.

The NewYork

Times

disparaged the Soviet “attempt to persuade people, especially in asia and africa,

that moscow has taken over world leadership in science.”

Life

magazine was no less derogatory, warning that, at best, the “Sputniks give

this old communist swindle a new lease of plausibility.”

What concerns that the

public might have had about Sputnik 1 died down in the latter part of october
1957. For instance, there was little discussion of the satellite issue in the popular
press during the latter part of the month and it did not come up in the president’s
press conference of 30 october 1957.

While advocates of more aggressive space activities and political opponents of

the White house still criticized, public confidence in the nation’s leadership did not

35. Dwight D. eisenhower,

TheWhite HouseYears:Waging Peace

(garden city, nY: Doubleday, 1965), p. 211.

36. international affairs Seminars of Washington, “american reactions to crisis,” 15–16 october

1958, naSa historical reference collection.

37.

Facts on File

, XVii, no. 884, p. 330.

38. ibid., p. 331; richard m. nixon,

The Memoirs of Richard Nixon

(new York: grossett & Dunlap,

1978), p. 111.

39. “Soviet claiming Lead in Science,”

New York Times

, 5 october 1957: p.a2;“a proposal for a ‘giant

Leap,’”

Life

, 16 november 1957: p. 53.

40.

Public Papers of the Presidents of the United States: Dwight D. Eisenhower, 1957

(Washington, Dc: u.S.

government printing office, 1958), pp. 774–787; naSa clippings file, “october 1957,” naSa
historical reference collection.

What are Turning Points in History, and

What Were They for the Space Age?

seem to suffer appreciably until Sputnik 2 was launched on 3 november 1957. this
time the Soviet union counted coup on the united States with an impressive 1,121
pound spacecraft that included a dog named Laika. if anything, the turning point in
history came following the 6 December 1957 failure of theVanguard launch.after the
two successful Soviet Sputniks, and this rather spectacular failure on national television,
dramatic actions appeared necessary. accordingly, it seems that Sputnik may not have
been such a significant turning point in history as many have thought.it represented one
stage of a succession of activities in the history that we all understand, nothing more.

What would have been different had there not been a Sputnik? the u.S.

rocketry programs were well in hand in 1957 and there is every reason to believe
they would have continued on as they did.

the same is true of the satellite

reconnaissance effort.

Space science was being pursued expeditiously through a

variety of avenues; even with efforts to send probes to the moon, and except for
an acceleration of effort probably would have been continued along pretty much
the path that came with this turning point.

communications satellites were being

pursued by at&t and might have even achieved success earlier had there been less
government involvement.

in all, Sputnik has been assigned significance far beyond

what it truly deserves.

41. See eugene m. emme, ed.,

The History of Rocket Technology: Essays on Research, Development, and

Utility

(Detroit, mi: Wayne State university press, 1964); richard p. hallion, “the Development

of american Launch Vehicles Since 1945,” in

Space Science Comes of Age: Perspectives in the History

of the Space Sciences

, paul a. hanle and Von Del chamberlain, ed. (Washington, Dc: Smithsonian

institution press, 1981), pp. 115–134; roger D. Launius,“Between a rocket and a hard place:the
challenge of Space access,” in

Space Policy in the 21st Centur

y,W. henry Lambright, ed. (Baltimore,

mD: Johns hopkins university press, 2002), pp. 15–54.

42. three important books on the early satellite reconnaissance program have been published: Dwayne

a. Day, John m. Logsdon, and Brian Latell, ed.,

Eye in the Sky:The Story of the Corona Spy Satellite

(Washington, Dc: Smithsonian institution press, 1998); robert a. mcDonald,

Corona Between the

Sun and the Earth:The First NRO Reconnaissance Eye in Space

(Bethesda, mD: aSprS publications,

1997); curtis peebles,

The Corona Project:America’s First Spy Satellites

(annapolis, mD: naval institute

press, 1997). See also William e. Burrows,

Deep Black: Space Espionage and National Security

(new

York: random house, 1987); Jeffrey t. richelson,

America’s Secret Eyes in Space:The U.S. Keyhole Spy

Satellite Program

(new York: harper and row, 1990).

43. the early history of this effort is well told in homer e. newell,

High Altitude Rocket Research

(newYork:

academic press, 1953); r. cargill hall, “early u.S. Satellite proposals,”

Technology and Culture

4 (Fall

1961): pp. 410–434; r. cargill hall,“origins and Development of theVanguard and explorer Satellite
programs,”

Airpower Historian

11 (october 1964): pp. 101–112; r. cargill hall,

Lunar Impact:A History of

Project Ranger

(Washington,Dc:naSa Sp 4210,1977);David h.DeVorkin,

Science with aVengeance:How

the Military Created the US Space Sciences AfterWorldWar II

(newYork: Springer-Verlag, 1992).

44. this is the thesis of David J.Whalen,

The Origins of Satellite Communications,1945–1965

(Washington,

Dc: Smithsonian institution press, 2002).

45. one could make the case that considerable resources were spent on useful activities such as science and

technology, education, and retraining of workforces. even so, some scholars minimize its long-term
effect. See herbert Kliebard,

The Struggle for the American Curriculum

, 2nd ed. (new York: routledge,

1995); andrew Fraknoi, “Space Science education in the u.S.: the good, the Bad, and the ugly,”
contained in this collection;“the nationalization of u.S. Science,”

Fortune

(September 1976): p. 158.

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Kennedy’s role

What about an event that is not considered a turning point in space history, but

perhaps should be? the assassination of John F. Kennedy looms large in the history
of the united States during the middle part of the twentieth century, no doubt,
but what role did it play in the unfolding of the history of spaceflight? if Kennedy
had not been assassinated, would anything relative to apollo have changed? Few
refer to this event as something of significance in the history of apollo, but it may
well be that Kennedy’s death solidified support for the moon landings. Despite
public support for apollo, we know that Kennedy had expressed concerns about
the program and the funds that it sucked out of the treasury. in late may 1961, his
budget director had warned JFK of the large price tag of apollo and, when he met
nikita Khrushchev in Vienna the following month, Kennedy suggested that the
united States and the Soviet union explore the moon as a joint project.the Soviet
leader reportedly first said “no,” then replied, “Why not?” and then changed his
mind again, saying that disarmament was a prerequisite for u.S.–uSSr cooperation
in space.

in the fall of 1963, in what might be considered an american version

of glasnost more than 20 years before the term became famous, JFK aggressively
pursued a venture to turn the apollo program into a joint effort. he privately
met with naSa administrator James Webb on 18 September and told him to
prepare for a joint program. as Webb recalled, “he didn’t ask me if he should do
it; he told me he thought he should do it and wanted to do it and that he wanted
some assurance from me as to whether he would be undercut at naSa.” on 20
September 1963,Kennedy made a well-known speech before the united nations,in
which he again proposed a joint human mission to the moon. he closed by urging,
“Let us do the big things together.” publicly, the Soviet union was noncommittal.

Pravda

, for example, dismissed the 1963 proposal as premature. Some have suggested

that Khrushchev viewed the american offer as a ploy to open up Soviet society
and compromise Soviet technology.Whatever the case Kennedy was assassinated in
november, 1963 and Khrushchev was deposed the next year, and nothing came of
the offer.

thereafter Lyndon B. Johnson and naSa administrator James e.Webb

constantly defended the apollo program as the dying wish of this slain president.

46. Dodd L.harvey and Linda c.ciccoritti,

U.S.-Soviet Cooperation in Space

(miami,FL:university of miami

center for advanced international Studies, 1974), pp. 78–79.a State Department memo covering the
two leaders’ discussion inVienna does not mention Khrushchev’s fleeting acquiescence, instead focusing
on Khrushchev’s desire to have progress in disarmament before consenting to a joint lunar landing
program. See 6/4/61 memcon between JFK and Khrushchev, 6/4/61, Luncheon, Soviet embassy,
Vienna in the Kennedy presidential Library, Box 126, naSa historical reference collection.

47.

Public Papers of the Presidents of the United States, John F. Kennedy, 1963

, p. 695, cited in harvey and

ciccoritti,

U.S.-Soviet Cooperation in Space

, p. 123; “text of president Kennedy’s address on peace

issues a u.n. general assembly,”

New York Times

, 21 September 1963: c6;Yuri Karash,“the price

of rivalry in Space,”

Baltimore Sun

, 19 July 1994: p. 11a;Walter a. mcDougall, . . .

the Heavens and

the Earth:A Political History of the Space Age

(new York: Basic Books, 1985), p. 395.

What are Turning Points in History, and

What Were They for the Space Age?

that was a very powerful argument to be made in the political arena and they
achieved success in protecting the program, even as everything else at naSa began
to suffer budget cuts from the mid-1960s onward.

had Kennedy served two full terms, it is quite easy to envision a point in the

mid-1960s, probably near the time that project gemini was successfully underway,
in which he might have decided that the international situation that sparked
announcement of a lunar landing by the “end of the decade” had passed and he
could have safely turned off the landing clock. had he done so,apollo might have
stretched out for many more years, and perhaps have ultimately been successful;
but, just as likely, it could have become something akin to the current, open-ended
Space Station program without clear objectives and no time frame for completion.
JFK’s assassination, therefore, could be interpreted as a turning point in the history
of spaceflight although it is not usually accepted as such.

Figure 2.2—The decision of John F. Kennedy to land Americans on the Moon by the end of the decade is viewed
as a pivotal event in the history of the Space Age. But evidence suggests that he was reconsidering this decision
at the time of his assassination in November 1963. Had his death not occurred and he been allowed to serve a full
term or perhaps two terms in the White House, how might the Moon landing program have unfolded? Accordingly,
the Kennedy assassination may be an unrecognized turning point in the history of the space program. Here Kennedy
is depicted in a motorcade with Mercury astronaut John Glenn, the first American to orbit Earth in February 1962.
(NASA photo no. GPN-2002-000050).

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apollo

Finally, there are events that were hailed at the time as turning points in history

and accepted as such by virtually everyone,but which now invite reconsideration.the
most obvious that i would point to is the apollo 11 landing on the moon on 20 July
1969. immediately thereafter, president richard nixon told an assembled audience
that the dates encompassing the flight of apollo 11 represented the most significant
week in the history of earth since the creation.

perhaps he was caught up in the

moment, but at least at that time the president expressed the view that this was both
a path-breaking and permanent endeavor, a legacy of accomplishment that future
generations would reflect upon as they plied intergalactic space and colonized planets
throughout the galaxy. undoubtedly, he believed it a turning point in history. others
did as well.apollo suggested thatamerica had both the capability and the wherewithal
to accomplish truly astounding peaceful goals.all it needed was the will.

now, more than a generation removed from the last of the apollo missions

to visit the moon in December 1972, that turning point appears far less significant
than it did during the time of apollo.advocates of human exploration have tended
to view the astronauts who landed on the moon as people akin to fifteenth-century
voyagers of discovery such as christopher columbus—the vanguards of sustained
human exploration and migration. But as time progresses, those first space ventures
may well prove to be more like Leif erickson’s voyages from Scandinavia several
hundred years earlier—an exploratory dead end.

Maxims of Turning Points

in Space History

i would close this essay by offering 10 maxims for anyone considering the

place of turning points in the history of spaceflight.

1. turning points signify a critical juncture in the coalescence of a set of events

that signal a shift in the stream of history.

2. turning points most often represent attempts by observers to assign significance to

events,either at the time or thereafter.Depending on perspective,countervailing
issues, and subsequent developments, they may shift or become meaningless or
meaningful.they are also subject to “political spin” and the vicissitudes of the
“master narrative.”

48.

CBS Evening News Transcript, 10:56:20 PM EDT, 7/20/69

(new York: cBS news, 1969), p. 159.

49.

Congressional Quarterly

(25 July 1969):p.1311;

The Futurist

(october 1969):p.123.on the possibilities

raised by apollo, see roger D. Launius, “perfect Worlds, perfect Societies: the persistent goal of
utopia in human Spaceflight,”

Journal of the British Interplanetary Society

56 (September/october

2003): pp. 338–349.

50. the following is based on the comments of richard p. hallion, “turning points in aerospace

history: Some thoughts,” 16 august 2006, copy in possession of author.

What are Turning Points in History, and

What Were They for the Space Age?

Figure 2.3—Astronaut Buzz Aldrin, lunar module pilot of the first lunar landing mission, poses for a photograph
beside the deployed United States flag during an Apollo 11 extravehicular activity (EVA) on the lunar surface. The
first Moon landing is universally viewed as a pivotal event in history. With the passage of time, and the failure to
continue lunar exploration beyond the Apollo program, it seems less a turning point and more a “blip” in the flow of
history. How should it be interpreted in the future? (NASA photo no. GPN-2001-000012).

3. turning points provide a short-hand of analysis that may be used effectively, but

too often they mash hackneyed and amateurish analysis.they are like george W.
pierson’s characterization of the “Frontier thesis” of Frederick Jackson turner:
“too optimistic, too romantic, too provincial, and too nationalistic” to be of
great utility for the historian’s task.

4. turning points adhere to the standard of definition employed by Justice potter

Stewart when confronted with defining pornography:“i shall not today attempt
further to define the kinds of material . . . but i know it when i see it.”

they defy definition, and one person’s turning point might conceivably be
another person’s stasis. it might be appropriate to apply something like the
Saffir-Simpson hurricane Scale to identify importance and severity of turning
points on a 1 to 5 scale.

51. Quoted in richard hofstadter,

The Progressive Historians:Turner, Beard, Parrington

(new York:alfred

a. Knopf, 1969), p. 149.

52.

Jacobellis v. Ohio

, 378 u.S. 184 (1964).

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5. turning points are often vague and imprecise.their very elasticity offers a clue

to their attraction as well as a core reason for using them with care.they may
be invoked to argue for or against virtually anything, and accordingly they
represent a form of historical mirage and incoherence.

6. turning points of the most useful variety are those used in the most simple,

concrete situations.

7. turning points do not necessarily provide useful indicators of subsequent

success or failure for the actors involved in their story.

8. turning points most often signify a linear conception of history that rarely

represents the reality of a complex, parallel, multicausational evolution of history.

9. turning points are often psychological in focus, firing those experiencing them

to undertake a different approach to what had previously been the norm.these
are appropriately considered the fault lines in the stream of history. it might
goad them to action, or it might lull them to complacency. it never fosters the
status quo.

10. turning points too often lead those invoking them into accepting a

progressive interpretation of the past in which ideas of exceptionalism and
advancement reign.

this last maxim is especially significant.american history has been dominated

by a vision of progress, of moving from nothing to something—essentially the
opposite of the law of entropy in physics. as historian richard p. hallion recently
remarked, repeated acceptance of the turning point concept

[ . . . ] implies a teleological, linear, sequential ‘achievement of
events’ leading inexorably in a certain direction, usually defined
as  ‘progress.’  in  fact,  this  ignores  the  inherently  disordered
nature of the historical progress, which reflects chance, national
circumstance, individual  action  (and  we  must  remember  that,
at heart, all history is the working of people through time), and
which results in a typically simultaneous and parallel pattern of
development, one  in  which  exploitation  and  innovation  is  at
least equally as important is invention.

With the overburdening dominance of american exceptionalism as a guiding

principle of american historiography, it behooves historians to weigh carefully the
usefulness—versus the possible confusions—of the use of the term turning point
in historical explanation.this is especially the case for space historians as we enter
a season of significant anniversaries of major events in the history of the space age,
such as the 2007 50th-anniversary of the launch of Sputnik 1.

53. on american exceptionalism, see Kerwin Lee Klein,

Frontiers of Historical Imagination: Narrating

the European Conquest of Native America, 1890–1990

(Berkeley, ca: university of california press,

1997); richard t. hughes,

Myths America Lives By

(urbana, iL: university of illinois press, 2003).

54. hallion,“turning points in aerospace history: Some thoughts,” p. 4.

What are Turning Points in History, and

What Were They for the Space Age?

or perhaps i am obsessing over this issue; Debbie Douglas has suggested to me

that this might be the case. in a note, she suggested that we might consider several
questions when thinking about turning points as we travel along the river that we
call the history of the Space age. i close with these questions about the study of
space history, admitting that i have few answers and those that i do possess may be
satisfactory only to myself.When considering the Space age:

1. is space a “major river” (e.g., the mississippi, the Yangtze, or the amazon) or

something a little less (e.g., the columbia or the rhine)?

2. What are the things i need to “know before i go” and what are the “must sees”

once i arrive?

3. how will i see and understand the world differently because of this “experience?”

this last question stands at the center of the historical discipline. our answers

could have profound implications for those studying this subject.

55. Douglas e-mail to author,“turning points in history,” 16 august 2006.

hapter

In Search of a Red Cosmos: Space Exploration,

Public Culture, and Soviet Society

James t.andrews

n the Soviet 1920s, a proliferation of popular books, newspaper articles, and
pamphlets on air and spaceflight filled the popular press and Soviet readers

became part of a cosmopolitan readership throughout europe engaged in news
on exploration of the cosmos. indeed, as i have argued in my book

Science for the

Masses

, this only continued a pre-revolutionary fascination with the stars, heavens,

and the universe beyond. astronomy and amateur space societies proliferated in
Soviet russia until the Stalinist 1930s and genuinely were generated from below,
independently from the state.

however, to a certain degree, two catalytic time periods changed that public

response—both 1935, in Stalin’s times, and 1957, in Khrushchev’s. in 1935, Stalin
and  the  central  committee  sanctioned  Konstantin tsiolkovskii  to  give  a  taped
speech  on  may  Day  from  red  Square, which  would  be  broadcast  all  over  the
former Soviet union.tsiolkovskii’s speech would be used by the regime to boast
the preeminence of early Soviet rocket theorists over Western thinkers.along with
Stalin’s  Soviet  nationalist  cultural  campaigns, it  would  begin  a  contest  with  the
West  of  technological  superiority  that  wrenched  the  early  popular  enthusiasm
for  space  flight  into  a  politicized  and  ultimately  nationalized  context. By  1957,
with the launching of Sputnik 1, the Khrushchev regime and its successors would
continue  that  program, only  this  time  directing  memorial  celebrations  to  earlier
rocket theorists; launching popular campaigns from above in the press and journals;
mythologizing cosmonauts and physicists alike; and urging Soviet citizens to engage
in the contest with the West, while focusing on its “national” resonance.

this article will begin by analyzing in more detail how the early, more

cosmopolitan fascination with spaceflight in russia shifted to become directed
from above in the shaping of popular consciousness of spaceflight after both 1935

1. See James t. andrews,

Science for the Masses: The Bolshevik State, Public Science, and the Popular

Imagination in Soviet Russia, 1917–1934

(college Station,tX:texas a&m university press, russian

and east european Studies Series, 2003).

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and 1957. it will also attempt to theorize how one can deconstruct that campaign
in a censored state, and whether there still remained the genuine, popularly driven
response and enthusiasm to space exploration during the Stalin and Khrushchev eras.
indeed, some ordinary russians as well as well-known cultural critics criticized the
campaigns to place space exploration on the national cultural agenda. Furthermore,
this paper will explore how the popularization of space exploration in Soviet russia
may have also had a genuine inspirational effect on future physicists regardless of the
political context within which these texts and campaigns were created from above.
Yet, ultimately this was a dialogical tension between state and society, and although
the public attempted to respond in independent ways, the monumental shifts from
1935 through 1957 nevertheless served to constrain the Soviet public’s enthusiasm
while it directed it into “proper channels.”

Air- and Spaceflight, the Cosmos, and the Popular

Imagination from Tsarist to Stalin’s Soviet Times

on a cold, wintry day during Lenin’s regime in 1921, a long line of people

waited, freezing in the moscow snow to hear another lecture in a series on the
planet mars; it would be presented at the famed moscow polytechnic museum by
the astronomer a. a. mikhailov.

Soviet citizens in the 1920s had flocked to hear

talks on astronomy, air flight, and popular rocketry, and frequented museums in
both capital and provincial cities to expand their knowledge on these topics.these
densely populated lectures and long lines in the 1920s were not anomalous because,
since as far back as the late nineteenth century, russians had been fascinated by
popular scientific themes. in the late nineteenth and early twentieth centuries,
tsarist russia witnessed an explosion of scientific and amateur societies that helped
sponsor lectures and events on popular topics such as air flight, astronomy, and the
cosmos beyond.these societies proliferated before the onslaught of World War i and
the russian revolution, while their membership grew as well. By the 1920s, after
the Bolshevik revolution of 1917 and the russian civil War (1918–1920), a period
called the new economic policy (1921–1927) allowed for a mixed economy to
flourish and thus books, pamphlets, and even some newspapers could be published
independently of the state.

Within this economic and political context of the Soviet

1920s, air- and spaceflight, along with astronomy, became not only popular themes
in the mass media—they literally became crazes.

2. “otchet m.o.L.a.na pervoe polugodie 1921 goda,”gosudarstvennyi arkhiv rossiskoi Federatsii—

State archive of the russian Federation (hereafter cited as garF), f. 2307, op. 2, d. 371, l.69.

3. For a critical overview of the transitional qualities of the period of the new economic policy

(nep), see William g. rosenberg,“introduction: nep russia as a ‘transitional’ Society,” in

Russia

in the Era of NEP

Explorations in Soviet Society and Culture,

ed. Sheila Fitzpatrick et al. (Bloomington,

in: indiana university press, 1991), pp. 1–12.

In Search of a Red Cosmos: Space Exploration,

Public Culture, and Soviet Society

in Soviet russia during the 1920s, professors such as n.a. rynin in Leningrad

became almost full-time popularizers of spaceflight, in particular, while the public
eagerly consumed journal and newspaper articles devoted to this topic.

rynin, a

prolific writer on russian rocketry and astronautics,was also interested in organizing
public astronautical societies in the 1920s. in the late 1920s he began to write
and publish a multivolume encyclopedia on cosmonautics that placed him at the
forefront of the popularization of rocketry in russia.

this Soviet aeronautical craze was certainly part of a pan-european phenomenon,

as the reporting of aeronautical feats in europe were popular news items and were
anticipated well ahead of time. this fixation with air flight in both the european
and russian public media of the 1920s was similar to the way that u.S. and Soviet
rocket flights were both elaborately portrayed by television reporters and eagerly
anticipated by a viewing audience in the 1960s and 1970s. Western technological
developments were practically revered in the Soviet newspapers of the 1920s, and
thus readers were exposed to news on global developments in aeronautics and
rocketry. america itself was portrayed as a symbol and emblem of how technology
was transforming modern culture, and Soviet readers believed they were part of a
cosmopolitan readership that could synthesize european, american, and russian
developments in rocketry and aeronautics in general.

though interest in spaceflight had predated the 1917 russian revolution,

certain  groups  in  the  Soviet  1920s  (such  as  the  Biocosmists)  believed  in  the
importance of spreading ideas on interplanetary travel for public consumption.the
Biocosmists were interested in space travel as a means to achieve immortality, and
they included amongst their group the renowned geochemist and science popularizer
V. i.Vernadskii.this group also included, amongst their diverse members, the space
visionary  K. e tsiolkovskii, a  mathematics  teacher  from  Kaluga, russia. Besides
tsiokovskii, other  followers  of  this  group  included  influential  Bolsheviks  such  as
Leonid Krasin (the designer of the Lenin mausoleum) andValerian muraviev (editor
at  the  central  institute  of  Labor  in  moscow  and  a  devout  follower  of  Frederick
taylor). the Biocosmists could, to some extent, aptly be described as millenarians

4. n.a. rynin,

Mechty, legendy, i pervye fantasii

(Leningrad, 1930).

5. n. a. rynin,

Interplanetary Flight and Communication (A Multi-Volume Encyclopedia)

(israeli program

of Scientific translation, published for naSa, Jerusalem, 1970). For an overview of the life of n. a.
rynin, See Frank h.Winter,“nikolai alexeyevich rynin (1877–1942), Soviet astronautical pioneer:
an american appreciation,” in

Earth-Oriented Applied SpaceTechnology

, 2, no. 1 (1982): pp. 69–80.

6. For a look at how america was portrayed in the russian press and journals, see Jeffrey Brooks,“the press

and its message:images ofamerica in the 1920s and 1930s,”in

Russia in the Era of NEP,Explorations in Soviet

Society and Culture

,ed.Sheila Fitzpatrick et al.(Bloomington,in:indiana university press,1991);also hans

rogger,“america in the russian mind,”

Pacific Historical Review

47 (February 1979): pp. 27–51.

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and utopians, as they had a belief in the unbound ability of man to transform nature
as well as to explore and colonize the cosmos.

the Biocosmists were heavily influenced by the ideas and writings of the russian

pre-revolutionary philosopher nikolai Fedorov. Fedorov had worried that earth was
overcrowded and believed that humans could overcome this malthusian pressure by
exploring and colonizing space.Fedorov’s vague notions of space travel as a way to achieve
immortality for the human race was at the crux of his mystical utopian ideas and were very
popular among russian intellectuals.

one of Fedorov’s most avid disciples was the space

visionary Konstantin tsiolkovskii.according to the science journalistVictor Shkolovskii,
Fedorov had hoped tsiolkovskii would popularize notions of space flight and rocketry
amongst the russian reading public.

in the Soviet period,the Biocosmists became devout

followers of Fedorov, and they spread his (and Konstantin tsiolkovskii’s) ideas in the
popular media for an eager readership willingly consuming articles on space travel.

however, during the Soviet 1920s, professional science educators also served

as popularizers of space flight and rocketry.those russian intellectuals, such as the
Leningrad physics professor ia. i. perel’man, had more didactic purposes in mind.
perel’man, for instance, published many articles on rocket science and space travel
in the several widely distributed popular journals he edited, such as

In Nature’s

Workshop

.these articles had an educational focus, attempting to explain the basics

of gravitational forces and rudimentary rocketry to a popular audience.

perel’man

was particularly interested in spreading the ideas of the space visionary Konstantin
tsiolkovskii, and popularized tsiolkovskii’s theories on space flight in his widely
read book entitled

Mezhplanetnoe puteshestvie

(

Interplanetary Travel

). perel’man

adamantly defended the notion of space flight against skeptics, explaining to readers
how rockets could potentially overcome gravitational forces by projectiles traveling

7. For a good overview of the participants and focus of the Biocosmists and other utopian groups, see

richard Stites,

Revolutionary Dreams: Utopian Vision and Experimental Life in the Russian Revolution

(new York: oxford university press, 1989), pp. 168–170.

8. For an analysis of Fedorov and his school of mysticism, see peter Wiles,“on physical immortality,”

Survey

, nos. 56/57 (1965): pp. 132–134.

9. See Victor Shklovskii,“Kosmonavtika ot a do ia,” in

Literaturnaia gazeta

(7 april 1971): p. 13.

10. For an analysis of the philosophical roots of russian cosmism, see michael hagemeister,

“russian cosmism in the 1920s and today,” in

The Occult in Russian and Soviet Culture

, Bernice

glatzer rosenthal, ed. (ithaca, nY: cornell university press, 1997). hagemeister argues that the city
of Kaluga,russia,where tsiolkovskii lived most of his life,was a center for cosmism whose followers
professed a belief in the omnipotence of science and technology. according to some Biocosmists,
such as tsiolkovskii, by traveling to outer space the human race could lose its corporeality and gain
a type of immortality in infinite space and time. See a. L. chizhevskii,“Stranitsy vospominanii o K.
e.tsiolkovskom,”

Khimiia i zhizn’

, no. 1 (1977): pp. 23–32.

11. For an example of these types of articles, particularly those explaining the basis of rocketry

and overcoming the earth’s gravitational forces, see ia. i. perel’man, “Za predely atmosfery,” in

masterskoi prirody,

nos. 5-6 (1919): pp. 32–33.

In Search of a Red Cosmos: Space Exploration,

Public Culture, and Soviet Society

at high speeds with the use of liquid fuels (something tsiolkovskii had dreamed
of earlier).

perel’man was also editor of the popular-science journal

Priroda i liudi

(

Nature and People

), which also carried articles on science and the cosmos. During

the 1920s, perel’man had served in the Soviet commissariat of enlightenment
(ministry of education), where he worked on school curricula reform. there he
made great strides in introducing the basics of physics, mathematics, and astronomy
into secondary school curricula—a crucial building block for young students in
understanding rocketry and space discovery.

though perel’man fought hard to substantiate the importance of rocketry in

the public mind, on some level the fascination with air flight had already forged an
interested and impressionable public. State and privately commissioned (by each journal
or newspaper) reader surveys in the 1920s offer historians detailed responses to reader
interests. this survey data showed there was a genuine fascination with rocketry and
that air flight and space exploration were extremely popular topics amongst readers.
interestingly enough, the surveys pointedly show how readers were actively exposed to
news and information on air- and spaceflight from Western european and american
sources. however, during the Stalinist 1930s and 1940s, this would soon change.

By the mid-1930s,a cultural shift had occurred in russia under Stalin,dubbed by

the 1940s historian nicholas timasheff as “the great retreat.”timasheff, and some
current cultural historians, have argued that during high Stalinism russia embodied
a retreat away from socialist cultural norms back toward greater russian, more
nationalistic themes.

it is within this context that the Soviet aeronautical feats during

the 1930s were glorified and popularized through propagandistic means by the Soviet
press.

During the earlier 1920s, international aeronautical feats (especially those in

the West) were covered with the same frequency as equivalent russian achievements.
however, during the Stalinist 1930s and 1940s, prior to the Sputnik era, russians
began to witness a departure toward an increasingly nationalistic, triumphal manner.

12. See ia. i. perel’man,

Mezhplanetnoe puteshestvie

(Leningrad, 1923).

13. See editor’s biographical entry in

V masterskoi prirody,

nos. 5–6 (1919).

14. For an overview of these sociological reader surveys, particularly focusing on reader questionnaires,

see m. rappeport,“chto dala nasha anketa?”

Nauka i teknika

, 13 January 1926. For a look at the specific

reader surveys of one popular scientific journal in the 1920s, see “nasha anketa,”

Iskra,

no. 6 (June

1927): pp. 38–39.

15. See nicholas timasheff,

The Great Retreat: The Growth and Decline of Communism in Russia

(new York: e. p. Dutton & co., 1946). For a more current analysis of cultural practices during the
Stalinist 1930s, see Sheila Fitzpatrick,

Everyday Stalinism: Ordinary Life in Extraordinary Times, Soviet

Russia in the 1930s

(new York: oxford university press, 1999).

16. in the popular journals, the 1930s were characterized as years of “Stakhanovite Socialist

aviation.” in the summer of 1936, chkalov, Baidukov, and Beliakov made their historic, nonstop
flight in a Soviet ant-35. in 1936, Levanovskii and Levchenko flew from Los angeles to moscow,
and molokov flew along the arctic seaboard of the uSSr.See L.Khvat,

Besprimernyi perelet

(moscow,

1936).also see “po stalinskomu marshrutu,”

Chto chitat’,

no. 2 (1936): pp. 45–47.

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it is during this era that the visionary rocket and space theorist K.e.tsiolkovskii

was  asked  to  give  his  catalytic  speech  on  the  future  of  human  space  travel  on
may  Day, 1935, from  red  Square. though  catalytic  moments  are, individually,
critical  junctures  in  history, tsiolkovskii’s  speech  must  be  contextualized  within
the  greater  russian  cultural  nationalism  propagated  at  the  time  by  the  Stalinist
regime. nonetheless, this was no ordinary speech; its repercussion was extraordinary
amongst  the  public, politicians, and  physicists  alike.  his  taped  speech  was  also
broadcast  by  radio  throughout  the  former  Soviet  union, across  11  time  zones,
with an enormous social impact. Both Stalin, and later Khrushchev, would use the
figure of tsiolkovskii to focus on the superiority of Soviet technology over Western
capitalism and its scientific system. however, both during this speech and at times
prior  to  this  event, tsiolkovskii  used  these  Soviet  public  venues  to  promote  his
own ideas about the future possibility of space flight.this speech was given while
impressive Soviet airplanes flew above red Square, and tsiolkovskii described them
as “steel dragonflies” which were only a tip of a more profound iceberg.

though events like this were certainly propagandistic public spectacles (see

figure 3.1), scientists and future physicists alike were still very impressed with the
secondary, depoliticized vision (or meaning) that tsiolkovskii’s ideas embodied.
in his memoirs, the nuclear physicist and science advisor to gorbachev, roald Z.
Sagdeev, acknowledged the duality embedded in these Soviet public spectacles. on
one hand, he believed Stalin used tsiolkovskii’s 1935 broadcast from red Square to
further build the notion of the superiority of Soviet technology in the ensuing arms
and space race. on the other hand,tsiolkovskii’s work became better known in the
1930s and 1940s, and many future space scientists read his popular work voraciously.
Sagdeev argues that on 1 may 1935, enthusiastic Soviet citizens (including his
parents, educated scientific academics) were enthralled by the speech.

in a recollection related to Sagdeev’s above, Valentin glushko, designer of

energiya and many rocket engines that operated on tsiolkovskii’s dream of using
liquid propellants, to some extent corroborates Sagdeev’s perspective in his own
memoirs. glushko corresponded with tsiolkovskii as a teenager and was inspired
by his popular books in the 1920s and 1930s. glushko believed that, mixed in
with the Soviet propaganda and nationalist fervor propagated from above, was sheer
enthusiasm and pride on the part of future scientists (and young space enthusiasts)

17. K. e. tsiolkovskii, “osyshchestvliaetsia mechta chelovechestva, pervomaiskoe prevetstvie K.

e. tsiolkovskogo na plenke,” a speech taped in his office/laboratory Kaluga, russia in the last
week of april 1935. the speech is transcribed in

K. E.Tsiolkovskii, Sbornik posviashchennyi pamiati

znamenitogo deiatelia nauki

(Kaluga, 1935).

18. See roald Z. Sagdeev,

The Making of a Soviet Scientist: My Adventures in Nuclear Fusion and

Space from Stalin to Star Wars

(new York: John Wiley & Sons, inc., 1994), pp. 4–6, 181–182.

In Search of a Red Cosmos: Space Exploration,

Public Culture, and Soviet Society

from below.

this reflects somewhat on the popular surge of both interest in

spaceflight (which continued in Stalin’s time) and the symbiosis that coalesced this
public interest with the nationalist drive from above. many physicists as well as
ordinary citizens made pilgrimages to Kaluga, russia to see tsiokovskii before his
death in September of 1935.tsiolkovskii’s funeral in provincial russia was almost
a type of national, cathartic dirge and thus a reflection of the spontaneous interest
in local space heroes.

this genuinely popular adulation for space heroes continued into the

Khrushchev era as well.the eminent historian of russian science,Loren r.graham,
reported in his recent memoirs that he had a similar impression on 12 april 1961,
when he marched through red Square at the celebration for the cosmonaut Yuri
gagarin sponsored by the Soviet leadership. graham found this to be a mix of
propagandistic spectacle from above and sincere, heartfelt public outpouring of
support from below. as graham looked back at that day and canonization, he also
ruminated on the views of Soviet citizens and their pride in gagarin:

in later years when the Soviet union became [a] decrepit and
failing society, i often recall that day as the apogee in Soviet
citizens’ belief that they held the key to the future of civilization.
the celebrations on the street were genuine and heartfelt.Soviet
science was, they were sure, the best in the world, and Soviet
rockets succeeded where american ones failed.

Space Pervades the Soviet Consciousness: Sputnik, the

Khrushchev Era, and the Public Sphere

During the era of the Second World War, and during Soviet reconstruction in

the late 1940s and 1950s, Soviet aeronautical and cosmonautic feats were, to some
extent, relegated to the periphery of the public landscape while the country was
rehabilitated physically, politically and psychologically. But with the Khrushchev era
and the dawn of Sputnik in 1957, the country witnessed a return to the nationalistic
fervor of Soviet aeronautical and space development; again, as momentous as 1957
was, it built on the Stalin years but this time the regime orchestrated the public and
social response more elaborately.

With the launching of Sputnik 1 in 1957, as part of the myriad of celebratory

events, a host of journals filled pages with laudatory articles on Soviet rocketry, the
history of spaceflight, and the life of the new cosmonaut. they included eclectic

19. See Valentin glushko’s reminiscences in his grandiose history of the Soviet space program,

The Soviet Encyclopedia of the Cosmos

(moscow: nauka, 1974).

20. See Loren r.graham,

Moscow Stories

(Bloomington, in:indiana university press,2006),pp.18–19.

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journals such as

Ogonek

(

Little Flame

), literary journals such as

Literaturnaia gazeta

(

Literary Journal

),and more politicized,official ones such as

Kommunist

(

The Communist

)

and

Partiinaia zhizn’

(

Party Life

).While most writers (and journalists) glorified Soviet

achievements in space,there were the occasional letters to editors (which were actually
published in newspapers such as

Komsomol’skaia Pravda

) that questioned the public

support of the space effort, but they were generally anomalous to the norm.

all the same, public debate on the efficacy of the space program did exist in

the popular press under Khrushchev. Sometimes ordinary, concerned citizens wrote
letters to editors of newspapers, such as

Komsomol’skaia Pravda

, that questioned why so

much funding was shunted to the space program at a time when salaries for workers
in factories were woefully low and consumer items were so scarce.

other letters

were queries regarding whether automatons could accomplish similar feats conducted
by human cosmonauts in outer space. many of these types of letters, in general, also
questioned the safety of space travel in rockets for Soviet cosmonauts.

With the above exceptions aside, however, public discourse on the space

program  was  mostly  constrained, and  even  limited  to  voices  with  large  public
reputations  (such  as  major  writers  of  literary  significance). Some  literary  figures,
such  as  il’ia  ehrenburg, were  concerned  about  how  technology  and  the  space
race  obscured  the  importance  of  other  aspects  of  Soviet  life  on  earth, such  as
the  development  of  literature  and  the  arts, and  questioned  the  substantial  funds
and  government  subsidies  put  into  these  technical  arenas.

these critiques by

literary figures as well as citizens may have been a repercussion or reflection of
the Khrushchev “thaw”—the limited loosening of controls on artistic and public
expression in the Soviet union from 1953 until approximately 1962.

Furthermore,

they may have reflected the need for a more outspoken segment of the cultural
intelligentsia to remind the public of russia’s great artistic tradition (which should
not be masked by its recent technological feats).all the same, these critiques, as well
as ordinary citizens’ letters mentioned above, were never outright diatribes against
the regime’s achievements in spaceflight, and much of the public discourse still
remained, in a censored state, oriented toward glorifications of those achievements.

21. See paul r. Josephson, “rockets, reactors, and Soviet culture,” in

Science and the Soviet Social

Order,

ed. Loren r. graham (cambridge, ma: harvard university press, 1990), pp. 180–185.

22. For an example of this, see a worker’s letter to

Komsomol’skaia Pravda

published under the name

aleksei n.,“ne rano li zaigryvat’s lunoi,”

Komsomol’skaia Pravda

, 11 June 1960: p. 1.

23. For an example of articles (as well as letters to editors) in the popular Soviet press and

journals on the controversy of humans vs. automatons being sent into space, see B. Danilin, “Kto
poletit v kosmos—chelovek ili avtomat?”

Molodaia gvardiia

1 (1961): pp. 204–208.

24. See il’ia ehrenburg,“o lune, o zemle, o serdtse,”

Literaturnaia gazeta

1 (January 1960): pp. 3–4.

25. For an overview of the cultural and public/civic thaw under nikita Khrushchev, see priscilla

Johnson,

Khrushchev and the Arts:The Politics of Soviet Culture

(cambridge, ma:the mit press, 1964).

In Search of a Red Cosmos: Space Exploration,

Public Culture, and Soviet Society

the historian paul Josephson, in his analysis of the public ramifications of nuclear,

atomic, and space science, argues that celebrations and mass rallies (particularly in
moscow) became an important site for the Soviet “masses” to become involved in the
spectacle of display for Soviet“big science.”

planetariums hosted lectures on outer space;

writers produced short stories with exaggerated platitudes for adults and children; and
Soviet composers created popular songs (especially short

chastushki

) celebrating Sputnik

to be sung to children at schools.

however,official institutions such as the academy of

Sciences became the greatest proponents and conduits for disseminating more detailed
public lectures on the significance of these achievements.it was S.p.Korolev,the director
of the post-WWii Soviet rocket program and, in actuality, the real father of the russian
space program, who was asked to direct these celebrations at the academy; he was also
asked to give the 1957 keynote commemorative speech for the capstone series of events
planned in the era of Sputnik which honored Soviet space legends such as Konstantin
tsiolkovskii (the grandfather of the russian space program—

Ded cosmosa

What is interesting about the various speeches given by academics such as

Korolev, however, is that although they were prescribed to mythologize great feats
in  Soviet  rocketry  (and  help  build  a  pantheon  of  iconic  figures  in  Soviet  space
history), the  actual  speeches  focused  as  much  on  small  (yet  significant)  scientific
contributions  these  figures  made. For  instance, Korolev’s  1957  speech  glorifying
tsiolkovskii certainly painted him within the Soviet paradigm of one of the “first”
to conceive of rockets with liquid fuel. however, Korolev also spent as much time in
his speech, if not more, discussing the more pertinent contribution of tsiolkovskii’s
mathematical equations on the velocity of rockets leaving earth’s atmosphere.

26. See Josephson’s analysis of public display of big science in the former Soviet union in his excellent

chapter entitled “rockets, reactors, and Soviet culture,” in

Science and the Soviet Social Order,

graham, ed.

27. See S. ostrovskii, “pesenka o sputnike,”

Kul’turno-prosvetitel’naia rabota

1 (1958): pp. 30–33. these

children’s

chastushki

were two- or four-line folk verses to be sung in an upbeat tempo with fervor. See g.

Liando,“nebesnye chastushki,”

Kul’turno-prosvetitel’naia rabota

1 (1958): p. 34.

28. in the 1940s during the war, but primarily after the war and into the 1950s, the Soviets make

unsubstantiated claims of national priority in scientific discoveries. these claims ranged from the
ludicrous assertion of the invention of the electric light, radio, and telegraph, to more specific scientific
assertions of Soviets discoveries in a variety of disciplines, such as structural chemistry. Loren graham
believes most of these claims were abandoned later in the Brezhnev era in the 1960s and 1970s.
however, he rightfully asserts that a few of those disciplinary claims (particularly revolving around
certain scientific figures) should be investigated more seriously and need to be further analyzed in
isolation of the general nationalistic assertions. See Loren r. graham,

Science in Russia and the Soviet

Union:A Short History

(new York: cambridge university press, 1993), pp. 142–143.these assertions

are relevant to this public debate since the Soviets glorified their early theorists of cosmonautics, such
as tsiokovskii, claiming at times that they were the first to conceive of rocket flight.

29. See S. p. Korolyev, “on the practical Significance of the Scientific and engineering propositions

oftsiolkovskii in rocketry.”Lecture given on 17 September 1957,based on the centennial celebrations
of the birth oftsiolkovskii held in moscow, in

K. E.Tsiolkovskii, Izbrannyie trudy

(moscow,academy of

Sciences publishers,1963), pp. 16–18.

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though nationalistic in orientation, these public speeches at the academy

sought the small kernel of scientific truth,so to speak,while downplaying the greater
Soviet myth. academician Boris chertok, an engineer and the deputy director
under Korolev, later described Korolev’s speech on tsiolkovskii as critical to the
rocket community, if not overlooked at the time. chertok, in his recently published
memoirs, admitted that he and Korolev agreed that it was tsiolkovskii’s velocity
equation that was his real, lasting legacy of scientific contribution to the future of
rocketry.

chertok admitted that the regime exaggerated these iconic figures and,at

times, those such as Korolev tried to focus on real scientific contributions generally
overshadowed by the regime. ironically, it was chertok himself who believed that
myth and reality are nebulous concepts and those lines were sometimes blurred
historically.in his memoirs,chertok recanted a story about how mythic tsiolkovskii
actually was, despite his real scientific contributions to rocketry:

of the first missile decade, the last three years were certainly
the most interesting in terms of science and engineering. the
people  who  joined  the  missile  programs  during  1954–56
to  a  great  extent  determined  the  subsequent  development
of  our  cosmonautics  program. While  these  people  were  still
relatively young, someone’s quip caught their fancy. according
to  our  personal  history  forms, our  personnel  fall  into  one  of
two  categories: they  are  either tsiolkovskii’s  best  students  or
individuals whose youth isn’t their main shortcoming.

Epilogue: The Mythology of Soviet Cosmonautics and

its Social and Cultural Impacts and Ramifications

By the height of the Khrushchev era in the early 1960s, and after Yuri gagarin’s

historic piloted circling of outer space, the Soviet paradigm as propagated in public
went beyond national enthusiasm toward emphasizing how the regime made
quantum leaps to outpace the West. in april of 1961, just after Yuri gagarin became
the first human being to rocket into space orbit, the Soviets held a gala diplomatic
banquet in the Kremlin in his honor. at the event, the beaming Soviet premier,
nikita Khrushchev, embraced gagarin and then made a toast. he said, “We used
to go barefoot and without clothes and arrogant Western theoreticians predicted
that bast-shoed russians would never become a great power.”

Furthermore, he

said, “once-illiterate russia, which many regarded as a barbaric country, had now

30. Boris chertok,

Rockets and People

, vol. 1, naSa history Series, naSa Sp-2005-4110 (Washington,

Dc, 2005), p. 3.

31. Boris chertok,

Rockets and People, Creating a Rocket Industry

, vol. 2, naSa history Series, naSa

Sp-2006-4110 (Washington, Dc, 2006), p. 168.

32.

Pravda

, 15 april 1961: p. 2.

In Search of a Red Cosmos: Space Exploration,

Public Culture, and Soviet Society

pioneered the path into space.”

this speech, published the next day in

Pravda

for all Soviet citizens to read, propagated a notion that the Soviets overcame great
adversity to show the West how they could lead in the space race. although this
speech maintained the triumphal tone of the Stalin era, it went beyond that to
emphasize the “promethean” nature and “quantum leaps” of russia’s advances

ironically, Khrushchev’s boastful speech disregarded the real legacies his regime

inherited.that is, russia had a long history of not only rocket design and invention
stretching back to the tsarist era, but also an enthusiastic, engaged public that
was fascinated with global discoveries in aeronautics and rocketry going back to
the tsarist era and the cosmopolitan 1920s. in fact, russia had a tradition in the
tsarist era of public display of rocketry going back to the eighteenth century.the
romanov dynasty was especially well known for being fond of fireworks displays at
public festivities in St. petersburg, which may have been a catalyst for public interest
in rocketry. this interest, as mentioned above, was fostered in the late tsarist and
early Soviet press and popular journals of the time, and well into the late 1920s.

though this cosmopolitanism and enthusiasm may have changed in the

Stalinist  1930s  and  1940s  as  the  regime  propagated  more  nationalistic  myths  of
Soviet scientific triumphs, a fascination with and national pride in space discovery
and  rocketry  was  still  maintained  in  the  minds  of  average  Soviet  citizens  and
physicists alike. By the time of the Khrushchev thaw, with its limited public debate,
citizens may have questioned both the efficacy of the Soviet space program and its
propagandistic celebrations, but they (like most citizens globally) maintained that
fascination which stretched back to the eras of the tsars and Lenin. though we
may not be able to document that “fascination from below” with the same set of
sociological reader surveys and social-scientific data available to historians for the
pre-WWii  era, and  though  that  imagination  clearly  was  highly  constrained  and
orchestrated in a censored state “from above,” it existed (legacy intact) in memories
and oral testimony all the same.

33. ibid.

hapter

Live from the Moon: The Societal

Impact of Apollo

andrew chaikin

n october 2006, newspapers and Web sites around the world carried the news
that a 37-year-old mystery had apparently been solved:computer analysis seemed

to reveal that the word “a,” long thought to be missing from apollo 11 commander
neil armstrong’s first words after setting foot on the moon, had been spoken after
all.

now there was no need for editors to insert parentheses in armstrong’s famous

quote, “that’s one small step for a man, one giant leap for mankind.” aside from
the relief it gave grammarians—as armstrong himself acknowledged, the sentence
would not have made sense without the missing article—the story illustrated the
enduring cultural impact of project apollo.

our society’s experiences of the first human voyages to another world have

continued to evolve, even though the last of these pioneering journeys took place
more than three decades ago,in December 1972.that is understandable,considering
the fact that apollo was among the most memorable events of the twentieth century.
many observers have identified the moon missions as one of civilization’s crowning
achievements; apollo has also been called the greatest technological feat of the last
millennium.as one would expect for an event of such magnitude,the cultural impact
of apollo has been multifaceted. it was an event of international importance and yet
it touched countless lives on an intensely personal level.apollo was set in motion by
geopolitical, cold war concerns that had little to do with exploration: president John
F. Kennedy saw the lunar landing challenge as a way to best the Soviet union and
show the world the strength of a free society. But like all explorations, apollo had
some consequences that were largely unanticipated, including the profound effects
of seeing earth from lunar distance.

1. For example, “armstrong ‘got moon quote right’,” BBc news, 2 october 2006,

http://news.bbc.

co.uk/2/hi/americas/5398560.stm

(accessed 13 august 2007).

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A Leap in Perspective

When americans awoke on christmas morning of 1968, they were greeted

by more than presents under the tree. newspaper, radio, and television reports were
filled with the momentous news that three astronauts—the crew of naSa’s apollo
8 mission—were on their way back to earth after becoming the first human beings
to orbit the moon. For the u.S. space program, apollo 8 represented a major step
toward achieving the national goal, set by president Kennedy in 1961, of landing
men on the moon before the end of the 1960s.the news that three astronauts had
flown around our nearest celestial neighbor sparked feelings of national pride and
accomplishment, but it was also clear that other impacts were being felt from this
extraordinary feat.

in particular, there was a new awareness of earth and its place in universe.

through their spacecraft windows, the crew of the moonward-bound apollo 8
had seen their home planet shrink until it was small enough to cover with an
outstretched thumb. But it wasn’t just earth’s small size that impressed the astronauts;
it was the fact that our planet was so clearly alive and, in that way, apparently alone
in the universe. in contrast to the bleak and lifeless moonscape, earth represented,
in the words of apollo 8 command module pilot Jim Lovell, “a grand oasis in the
big vastness of space.”

the fact that millions of people heard Lovell’s words live, during a television

broadcast  by  the  astronauts  from  lunar  orbit, was  one  way  in  which apollo  was
unlike any previous exploration in human history. no longer did the populace have
to wait for news reports to trickle in from the frontier; now they were eyewitnesses
to the event and its impact unfolded in real time. only the astronauts could actually
see  what  earth  looked  like  from  230,000  miles  away, but  anyone  following  the
mission  could  share,  in  some  measure,  that  unprecedented  leap  in  perspective.
poet archibald macLeish expressed this in a reflection entitled “riders on earth
together, Brothers in eternal cold” that was printed on the front page of

The New

York Times

on christmas Day:

To see the earth as it truly is, small blue and beautiful in that eternal
silence where it floats, is to see ourselves as riders on the earth together,
brothers on that bright loveliness in the eternal cold—brothers who know
now they are truly brothers.

this transcendent idea stood in stark contrast to the previous events of 1968.

the nation was becoming increasingly divided over such issues as the escalation of
theVietnam War, racial tensions, and the troubles of the inner cities. in a year that saw
more than its share of horrors, including the assassinations of martin Luther King,

2. archibald macLeish,“a reflection: riders on earth together, Brothers in eternal cold,”

The New

York Times,

25 December 1968: p. 1.

Live from the Moon: The Societal Impact of Apollo

Jr. and robert Kennedy, apollo 8 provided an uplifting end. one of the countless
telegrams received by the astronauts after their return said,“You saved 1968.”

Still, not all reactions to the moon mission were positive. atheist madeline

murray o’hare protested the fact that during their second lunar-orbit telecast on
christmas eve the astronauts had read from genesis; she later sued, unsuccessfully,
to  block  any  form  of  public  prayer  by  astronauts  during  space  missions. But  for
most earthlings the impact of apollo 8’s new perspective on their home was lasting
and positive. it was captured in stunning clarity in the astronauts’ photographs, one
of which—an image of earthrise taken by Bill anders—was later made into a u.S.
postage stamp. many observers have noted the timing of apollo 8 with respect to
the  increase  in  environmental  activism; futurist  Stewart  Brand  maintains  it  is  no
coincidence  that  the  first  earth  Day, a  nationwide  observance  of  environmental
issues, took place in april 1970, some 16 months after americans first saw how their
world looked from the moon. it is worth noting that for the astronauts themselves
the  arresting  sight  of  their  world  as  a  lovely  and  seemingly  fragile “christmas
ornament” rising above the lunar horizon was the greatest surprise of the mission.
anders would later recall thinking,“We came all this way to explore the moon, and
the most important thing is that we discovered the earth.”

Shifting Priorities

as momentous as apollo 8 was, its historical impact was equaled, even

surpassed, by that of apollo 11, the first landing of humans on another world.When
neil armstrong and Buzz aldrin took history’s first moonwalk on 20 July 1969, an
estimated 600 million people—one-fifth of the world’s population—witnessed it
on live television and radio. it was difficult not to feel the enormity of the event, and
some observers viewed it as a turning point in the course of civilization—especially
science fiction writers, many of whom had envisioned the event in the decades
before it happened. one was robert heinlein, who had penned the story for the
1950 film

Destination Moon

; on the day of the moonwalk he appeared as a guest on

cBS news’ television coverage of the mission.“this is the greatest event in all the
history of the human race up to this time,” heinlein said.“today is new Year’s Day
of the Year one. if we don’t change the calendar, historians will do so.”

and yet no one could ignore the fact that the first moon landing, taking place

at a time of continuing turmoil in the united States, was also evoking dissent. on

3. Frank Borman has mentioned this telegram in a number of interviews.See,for example,

American Experience

pBS,

http://www.pbs.org/wgbh/amex/moon/peopleevents/e_1968.html

(accessed 13 august 2007).

4. Bill anders interview with the author, July 1987.
5

. Man on the Moon

[DVD] (apollo 11 chapter), marathon music and Video, distributed by eDi,

eugene, or, 2003.

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the day before the apollo 11 launch, ralph abernathy, chairman of the Southern
christian Leadership council, came to the Kennedy Space center with a small
group of protesters to draw attention to the plight of the nation’s poor. and in
new York city on the day of the landing, a member of harlem’s black community
voiced the same concern to a network tV reporter:

The cash they wasted, as far as I’m concerned, in getting to the moon,
could have been used to feed poor black people in Harlem, and all over
this country. So, you know, never mind the moon; let’s get some of that
cash in Harlem.

a defense of the apollo expenditures (the estimated total was $24 billion)

came from arthur c. clarke, the writer and futurist who had collaborated with
director Stanley Kubrick to create the screenplay for Kubrick’s 1968 epic science
fiction film

2001: A Space Odyssey

. in his comments, clarke looked to apollo’s

long-term benefits:

I think in the long run the money that’s been put into the space program
is one of the best investments this country has ever made . . .This is a
downpayment on the future of mankind. It’s as simple as that.

another celebrated science fiction visionary,ray Bradbury,was even more forceful.

he encountered negative sentiments while appearing on a televised panel discussion on
the moonwalk in London.there he found himself confronted by criticism of apollo
from his fellow guests, who included irish political activist Bernadette Devlin. Bradbury
responded with his own big-picture perspective, as he later described it:

This is the result of six billion years of evolution. Tonight, we have
given the lie to gravity.We have reached for the stars . . .And you refuse
celebrate? To hell with you!

in general, reactions to apollo 11 were divided between those who felt that

reaching for the moon was out of step with urgent needs on earth, and those who
insisted that apollo’s cost was outweighed by its long-term significance.how people
gauged the importance of the first human footsteps on another world depended
very much on who was being asked.

Still, it was clear that apollo 11’s cultural imprint was indelible.the quote that

accompanied neil armstrong’s first lunar footstep became instantly immortal and
became the source of countless spinoffs. (Less than a month after the moonwalk,
one appeared at new York’s Shea Stadium, where a teenaged fan cheered the mets
baseball team and their manager, gil hodges, on the way to their first winning season

6. ibid.
7

. CBS NewsTranscript

10:56:20 PM, EDT, 7/20/69: The Historic Conquest of the Moon as Reported to the

American People by CBS News over the CBSTelevision Network

(newYork: cBS news, 1970), p. 60.

8. ray Bradbury speech, San Francisco palace of Fine arts, 10 July 1972 (recording provided to the

author by space artist Don Davis).

Live from the Moon: The Societal Impact of Apollo

with a homemade sign:“one Small Step for hodges, one giant Leap for met-kind.”)

another way in which the success of apollo 11 entered the culture was in a new phrase
that entered the language:“if they can put a man on the moon, why can’t they [fill in
the blank]?”the blank ranged from curing cancer to solving the problems of the inner
cities.

this questioner was usually unaware of the fact that, unlike many of the difficult

problems of the day,the moon landing was a feat of engineering for which the enabling
scientific discoveries had already been made. But it underscored the way in which the
success of apollo 11 had permanently altered the public’s sense of what a group of
human beings dedicated to a single goal was capable of accomplishing.

acknowledgement of the moon landing also showed up in popular songs written

shortly afterward. Singer-songwriter Joni mitchell wrote in her song,“Willy,”

He stood looking thru the lace at the face on the conquered Moon.

Less enduring was a composition entitled “american moon,” which proclaimed,

Apollo Eleven delivered our heavenly right to say,
“The man in the moon is a citizen of the U.S.A.”
Stand up and brag for your grand old flag
Waving on the moon tonight, oh yes,
Waving on the moon tonight.

“american moon” reflected the way in which apollo 11 could be viewed

through the lens of nationalism: By winning the space race with the Soviet union,
apollo had given a boost to the nation’s prestige in the world and, for many
americans, a heightened a sense of national pride. But seen through another lens,
particularly that of the nation’s disadvantaged,the view was starkly different.to black
poet gil Scott-heron,apollo was emblematic of the nation’s racial inequalities. he
expressed this in “Whitey on the moon,” which begins,

A rat done bit my sister Nell.
(with Whitey on the moon)
Her face and arms began to swell.
(and Whitey’s on the moon)
I can’t pay no doctor bill (but Whitey’s on the moon)
Ten years from now I’ll be payin’ still.
(while Whitey’s on the moon)

9. Joseph Durso,“mets complete a Four-game Sweep of padres with pair of 3-to-2 Victories,”

The

New York Times,

18 august 1969: p. 41.

10. See, for example, “the moon and middle america,”

Time

, 1 august 1969; evan Jenkins, “For

ph.D.’s, no end to Lean Years,”

The New York Times,

8 January 1973: p. 72.

11. Joni mitchell,“Willy,”

Ladies of the Canyon

, 1970 (cD 1990, reprise, Burbank, ca, 6376-2).

12. Lyrics are printed on the Web site of the Smithsonian’s national museum of american history

http://americanhistory.si.edu/ssb/6_thestory/6d_views/main6d1b_ll.html

(accessed 13 august 2007).

the author saw the song performed by Judy carne on

The Ed Sullivan Show

on 26 october 1969.

. Now andThen:The Poems of Gil Scott-Heron

(edinburgh, Scotland: payback press, 2000), p. 21.

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Apollo Fades from View

For many people, the moon program began and ended with apollo 11; the

night they saw two americans leave their footprints on another world would prove
to be their only vivid memory of apollo. But in truth, apollo was far from over.
Six more landing attempts followed, all but one of which were successful, while the
magnitude of apollo’s lunar explorations quickened at a truly extraordinary pace.
in the summer of 1971, just two years after armstrong and aldrin explored a bland
acre of moonscape for two and a half hours, apollo 15 astronauts Dave Scott and
Jim irwin were living on the moon for three full days.their moonwalks lasted up
to seven hours—a full working day on the surface of the moon—and they drove a
battery-powered rover for miles across the surface and even up the side of a lunar
mountain, where they picked up rocks almost as old as the solar system itself. By
that time, however,apollo had largely faded from the nation’s consciousness.

public interest in the moon program had begun to fall off after apollo 11.

in november 1969, apollo 12 astronauts pete conrad and alan Bean achieved
history’s second lunar landing and made two moonwalks. once again there were
live pictures from the surface of the moon, this time in color. But in news coverage
there were expressions of apathy; one tennessee resident was quoted as saying,“it’s
old hat, it’s not like the first time.”

in a sense, that reaction was predictable, given

the fact that apollo’s stated objective of achieving a lunar landing before the end
of the 1960s had already been accomplished. in a culture attuned to “firsts,” even
the second occurrence of something as extraordinary as landing men on the moon
could not generate the same level of excitement.

But there were other factors that exacerbated the decline in interest. one was the

sheer strangeness of the events. unlike science fiction writers (and their readers), most
americans had little familiarity with space technology and although tV commentators
struggled mightily to convey the nuts and bolts of the apollo program, arcane concepts
like space rendezvous were, literally and figuratively, over viewers’ heads. in addition,
naSa (and for that matter,the astronauts themselves) tended to emphasize the technical
elements of the program rather than the human experiences that would have been easier
for the public to relate to.then there was lunar science, which increasingly became the
focus of both the astronauts and mission planners as the landings progressed. talk of
breccias and vesicles, of coarse-grained basalt and plagioclase feldspar was not easy for
nonscientists to follow.the cultural divide between scientists and the rest of the populace
was nothing new—it had been described a decade earlier by c.p.Snow in an essay entitled

TheTwo Cultures

—but apollo seemed to throw that gap into vivid relief.

14. Douglas robinson, “Second moon Visit Stirs Less public excitement,”

The New York Times

20 november 1969: p. 30.

15. this effect of apollo is described by Kerry Joels in “apollo and the two cultures,” in

Apollo:

Ten Years Since Tranquillity Base

(Washington, Dc: national air and Space museum, 1979).

Live from the Moon: The Societal Impact of Apollo

Still another factor was the increasing dissent over the war in Vietnam.

among young people especially, one of the effects of the war was a mistrust of the
government’s use of technology; there was little distinction between the technology
of warfare and the technology of space exploration. and though apollo’s successes
had briefly raised the national mood, they could not compete with americans’
mounting preoccupation with the war. in april 1970, when an oxygen tank aboard
apollo 13 exploded 200,000 miles from earth, the crisis sparked a resurgence of
interest in the moon program, as naSa struggled to save Jim Lovell and his crew
from a lonely death in space. But even then it was clear that the war was still on
many people’s minds. During the crisis a student at Duke university was asked
by a professor, “Do you think they’ll get them back?” the student responded by
talking about the american troops in Vietnam.

a couple of weeks after apollo 13’s

safe return, four students were killed by national guardsmen during an antiwar
demonstration at Kent State university, intensifying the country’s conflict over the
war. interest in apollo never recovered to earlier levels.

this was despite the fact that tV pictures of the astronauts’ activities on the

moon had greatly improved; the last three apollo landings carried a higher-quality
color tV camera which could be controlled from earth. and the scenery visited
by these teams was some of the most impressive landscapes on the moon, with
towering mountains, a winding canyon, and giant boulders. But even this could
not reverse the dwindling tide of public attention. By the time of the final apollo
missions, television networks no longer covered the moonwalks in their entirety.

The Astronauts Revealed

apollo ended at a time when many americans were turning inward. the

1970s saw increasing numbers of people engaged in a search for self-awareness and
the realization of one’s own potential. although the quest for enlightenment often
spilled over into self-indulgence, prompting writer tom Wolfe to christen the 1970s
“the me decade,” there was more interest than ever before in personal experience
as a gateway to understanding. So in the mid-1970s, when several apollo astronauts
began to describe their experiences before, during, and after their lunar missions,
they found an extremely receptive audience. people wanted to know what the
astronauts thought and felt as they left earth far behind, orbited the moon, and
walked on its alien surface. they wanted to hear how they had been affected by
their incredible voyages. underneath their curiosity, many harbored a hope that
somehow these men had been transformed by their journeys.

and in a couple of instances, the experiences of a lunar astronaut fulfilled that

wish. apollo 15’s Jim irwin returned from the moon and revealed that he had felt

16. this incident was described to the author by science journalist mark Washburn in 1988.

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the presence of god there. he soon left naSa to pursue a new life as a Baptist
minister, working to share his faith. But no apollo veteran’s testimony matched the
mood of the period better than apollo 14’s ed mitchell. Long interested in psychic
phenomena, mitchell had conducted an experiment in extrasensory perception
during the trip to and from the moon with a handful of volunteers on earth. made
public only after he and his crewmates returned, mitchell’s experiment spawned a
flurry of media reports. in the years that followed, mitchell said he had experienced
a shift in consciousness during the trip home from the moon,giving him a profound
awareness of the universe as a conscious,evolving entity.in 1972 mitchell left naSa
to pursue the scientific study of consciousness and psychic phenomena.

one of

his first subjects was uri geller, whose claimed feats of telekinesis (such as spoon
bending) made him an international celebrity in the early 1970s.

needless to say, these kinds of experiences and activities did not fit with the

public’s image of the astronauts. During the apollo program the media, especially

Life

magazine, had portrayed the astronauts as all-american heroes with rock-solid

temperaments, heartland opinions, and unwavering morals.their wives, meanwhile,
were expected to maintain composure at all times, despite the stresses imposed on
them by their husbands’dangerous profession and by the demands of sudden celebrity.
as the 1960s progressed, however, the

Life

magazine image of the astronauts and

their wives began to seem incongruous with emerging trends in popular culture.
the apollo missions took place at a time when the antihero was on the rise, as
exemplified by such films as

Cool Hand Luke

(1967),

Bullitt

(1968), and

Midnight

Cowboy

(1969).against that backdrop, some saw the astronauts as hopelessly square,

in a camp with what newly elected president richard nixon had called “the silent
majority.” certainly, that did not make it any easier for those segments of the public
to relate to the apollo missions.

So it came as a bit of a shock—and, some observers said, a relief—when

astronaut memoirs revealed very human traits.

For apollo 11’s Buzz aldrin, it

wasn’t the moon that changed him most dramatically,but what awaited him back on
his home planet. in his 1974 autobiography

Return to Earth

,aldrin candidly related

his struggle with alcoholism and manic depression, which came in the wake of the
intense public attention he received after apollo 11.

if that was not in line with

the public’s perceptions of astronauts, then neither was the apollo 15 astronauts’
involvement in a plan to sell first-day covers carried on their moon mission to a

17. mitchell has described his experiences in his own book,

The Way of the Explorer

(new York:

g. p. putnam’s Sons, 1996).

18. howard muson, “comedown from the moon—What has happened to the astronauts,”

The New York Times,

3 December 1972, Sunday magazine: p. 37.

19. edwin e.aldrin, Jr. with Wayne Warga,

Return to Earth

(new York: random house, 1973).

Live from the Moon: The Societal Impact of Apollo

german stamp dealer, as described in Jim irwin’s book

To Rule the Night

in 1977

even more damage was done to the astronauts’ image by

The All-American Boys,

the

memoir of Walt cunningham, who had been a crewman on earth-orbit apollo 7
mission in 1968; it described, among other things, his colleagues’ extramarital affairs.

and in his 1979 landmark portrait of the early astronauts,

The Right Stuff,

tom Wolfe

showed the humanity not only of the men but also their wives, who had secretly
harbored fears and anxieties they never shared with the public—or each other.

For all the upheavals surrounding their image,the astronauts themselves remained

relatively anonymous despite their status as the only humans in history to have visited
another world. in 1975 a new television ad campaign by american express featured
celebrities whose faces were largely unknown to the public; one was apollo 12
commander pete conrad. Looking into the camera, conrad asked, “Do you know
me? i walked on the moon.”and conrad was not the only one who went through
his post-apollo life so unrecognized.

nevertheless, even as the astronauts themselves receded from the public’s

consciousness, new reminders of their journeys became firmly embedded in pop
culture.When a new network called musictelevision (mtV) debuted in the summer
of 1981, its trailers featured pictures and film clips of astronauts on the moon. For
mtV’s target audience, some of whom had been small children at the time of apollo
11, these images must have seemed like just another slice of 1960s nostalgia.

History Doesn’t Repeat

By the time moonwalkers were bouncing across mtV trailers, the moon itself

was nowhere to be seen in naSa’s activities. in april 1981, after a six-year hiatus in
american human spaceflight missions, naSa achieved the first flight of its reusable
Space Shuttle. Buoyed by naSa’s promise that the Shuttle would make spaceflight
routine, many people responded with high enthusiasm. and in the first several years
of Shuttle missions there was plenty of action to excite space buffs; they could witness
spacewalking Shuttle astronauts repairing satellites and flying through the void with
self-propelled maneuvering units.(moonwalking,on the other hand,was now coming
to be known as a dance move performed by michael Jackson.)

the fact that the Shuttle never ventured beyond low-earth orbit was lost on some

americans, for whom going to the moon had become synonymous with the idea of
spaceflight. no longer exposed to the intricacies of apollo, people underestimated the
difficulty of lunar voyages and did not realize that no one had been to the moon since

20. James B. irwin with William a. emerson, Jr.,

To Rule the Night: The Discovery Voyage of Astronaut

Jim Irwin

(Boston: g. K. hall, 1974; philadelphia: J. B. Lippincott co., 1973).

21. Walter cunningham with mickey herskowitz,

The All-American Boys

(new York: macmillan

co., 1977).

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1972. this was evident from a comment by apollo 17 commander gene cernan,
who said in late 1986,“people don’t have any concept.they think all astronauts do the
same thing, go to the moon. [they say,] ‘oh, doesn’t the shuttle go to the moon?’”

the reality was that not only were humans no longer going to the moon, but naSa
had no plans to send them there.

and by late 1986 the dream of using the Shuttle to make spaceflight routine had

been shattered by the explosion of the Shuttle

Challenger

in January of that year. in the

wake of the disaster,there was renewed focus on naSa’s uncertain future;even before
the accident, a presidential commission had been convened to study possible long-
range plans for the agency to pursue. proposed scenarios included a return of humans
to the moon, followed by piloted expeditions to mars. however much enthusiasm
there might have been for this prescription—and there was a great deal among space
advocates—there were uncertainties about how to enact it.Was it simply a matter of
convincing the president to call for such a program, as John Kennedy had in 1961?
many space advocates thought so, and believed history would repeat itself.

they got a chance to test their belief on 20 July 1989, the 20th anniversary

of the apollo 11 lunar landing, when president george h. W. Bush declared that
america was going back to the moon, “this time to stay,” and after that to mars.
the so-called Space exploration initiative (Sei) called for a 30-year effort. But
because of the plan’s projected cost, public reaction was decidedly mixed and there
was strong congressional resistance. even naSa itself failed to embrace the plan.
Sei never got off the ground.

more than a decade later, Bush still remembered in detail the stinging defeat

of his space initiative, especially the expectation he’d been given by space advocates
that he could launch a major space program just by following Kennedy’s example.
Summing up the experience, he told naSa administrator Sean o’Keefe in 2003,“i
was set up.We were all set up.”

as it turned out,theapollo model for how to launch an ambitious space program

was not valid.and by 1991, with the end of the cold war, the old forces that had given
rise to apollo were no longer in the equation. in the wake of Sei’s failure there was a
growing awareness of something sharp-eyed observers had noted long before:apollo
had been a historical anomaly.

Apollo as a Multigenerational Experience

By the 1990s the generation that had been children during the apollo missions

had grown up. it included countless scientists and engineers, and even a number of
astronauts and flight controllers, who had been inspired to pursue their careers by the

22. author interview with gene cernan, December 1986.
23. Sean o’Keefe, personal communication, December 2003.

Live from the Moon: The Societal Impact of Apollo

moon missions. it also included storytellers who were moved to revisit the apollo
saga. one was film director ron howard, who brought apollo’s most dramatic
mission, 1970’s harrowing apollo 13 flight, to the screen in 1995.With a cast headed
by oscar-winner tom hanks as Jim Lovell, the film depicted the struggle, in space
and on the ground, to rescue Lovell and his crew. one of the year’s top-grossing films,

Apollo 13

was more than a retelling of events; it was a celebration of the courage and

ingenuity that characterized the entire apollo program.the astronauts were not the
only heroes featured; the film also spotlighted the mission controllers in houston in
all their engineering-nerd glory.the film even spawned a couple of new catchphrases:
“houston, we have a problem”

—the first announcement from hanks’ Jim Lovell

that apollo 13 was in trouble—and the rallying cry spoken by ed harris as Flight
Director gene Kranz,“Failure is not an option.”

Apollo 13

brought the drama of the moon program to a new generation of

young people and reminded adults of what they had lived through but might not
have fully absorbed. Writing about the film in

The New York Times

, science writer

John noble Wilford, who had covered the apollo missions, saw it as a reminder of a
particular spirit of exploration.“one can imagine that the story of apollo 13, perhaps
now or in other retellings by generations to come,” wrote Wilford, “will evoke a
time when people took risks to reach grand goals, a time when the astronauts were
themselves lionized and we still embraced heroes.”

the resurgence of interest in apollo was furthered when hanks went on to

produce a 12-part miniseries for hBo on apollo,

From the Earth to the Moon

(based

in part on this writer’s book about the apollo astronauts and their missions,

A Man on

the Moon

). in a sense, the various retellings of the apollo saga, so many years after the

events, filled an important cultural gap.With all the distractions now long gone—the
political discord,the distrust of technology,the antihero culture—the public was ready,
at last, to celebrate the moon program with new appreciation and understanding of
what it had accomplished.

The Moon Hoax

even decades after it happened,some were unwilling to celebrateapollo,especially

the people who believed it had never happened.this was not a new phenomenon;
even at the time of the first moon landings there were some who insisted apollo
was a government hoax and that the moonwalks had been filmed somewhere in

24. the film’s dialogue was a slight rewording of the actual transmission from apollo 13, “houston,

we’ve had a problem.”

25. John noble Wilford, “When We Were racing With the moon,”

The New York Times,

25 June

1995: p. 2.

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the nevada desert.

(a group called the international Flat earth Society, meanwhile,

refused to be swayed by the astronauts’ own reports and photos showing that the
planet is, in fact, a sphere.) in 1978, the film

Capricorn One

portrayed a faked mars

mission;although the director,peter hayms,did not believe apollo had been faked,he
was nevertheless fascinated by the notion that such a hoax was possible. interestingly,
he had written the script in 1972 but met strong resistance to the idea in hollywood.
By the late 1970s, when he sold the film, that resistance was gone—in part, because
of a new level of distrust of government in the wake of theWatergate scandal that had
made the idea of a faked space program more acceptable to studios.

Capricorn One

was well received by audiences, but the idea that apollo itself

had been a hoax was never embraced by a large percentage of americans. a 1999
gallup poll revealed that “[t]he overwhelming majority of americans (89%) do not
believe the u.S. government staged or faked the apollo moon landing. only 6% of
the public believes the landing was faked and another 5% have no opinion.”

Still, the

hoax theory continued to have a presence in the culture, as evidenced in February
2001 when the Fox tV network aired a program called “conspiracy theory: Did We
Land on the moon?”

the producers used faux-scientific analyses of the astronauts’

photographs to“disprove”their validity;in truth,the show’s popularity revealed,above
all, a lack of scientific literacy among its followers.

Despite its obvious flaws, the hoax theory has persisted largely because the

apollo missions were so difficult for most people to relate to. in 1969 the writer
norman mailer, commissioned by

Life

magazine to cover apollo 11, had observed

after watching the moonwalk,“the event was so removed,however,so unreal,that no
objective correlative existed to prove it had not conceivably been an event staged in a
television studio—the greatest con of the century . . . .” in the same breath, however,
mailer acknowledged the impossibility of carrying out such a hoax. “it would take
criminals and confidence men mightier, more trustworthy and more resourceful than
anything in this century or the ones before. merely to conceive of such men was the
surest way to know the event was not staged.”

Years later,neil armstrong put it more

simply:“it would have been harder to fake it than to do it.”

26. John noble Wilford, “a moon Landing? What moon Landing?”

The New York Times

, 18 December

1969: p. 30.

27. Benedict nightingale, “What if a mars Landing Were Faked? asks peter hyams,”

The New

York Times

, 28 may 1978: p. D10.

28.

http://www.galluppoll.com/content/?ci=1993&pg=1

(accessed 13 august 2007).

29. For an in-depth discussion of the Fox broadcast and the moon hoax theories, see

http://

www.badastronomy.com/bad/tv/foxapollo.html

(accessed 13 august 2007).

30. norman mailer,

Of a Fire on the Moon

(Boston: Little, Brown, 1970), p. 130.

31. neil armstrong, personal communication, 2003.

Live from the Moon: The Societal Impact of Apollo

Conclusion: Ahead of Its Time

today,more than three decades after the program ended,apollo remains a unique

event in the history of space exploration. there is no shortage of reminders of the
moon voyages, including DVDs of the moonwalks, memorabilia, and other apollo
related products.actual apollo hardware and lunar samples are on display at museums
around the world.

But the reality of humans walking on the moon has receded into

our past.there is something strangely out of place about an event so futuristic that
happened so long ago. gene cernan described this feeling in his 1999 autobiography,

The Last Man on the Moon

, when he wrote, “Sometimes it seems that apollo came

before its time. president Kennedy reached far into the twenty-first century, grabbed
a decade of time and slipped it neatly into the 1960s and 1970s.”

if the first human voyages to the moon had taken place the way science fiction

writers and space visionaries had predicted—after a step-by-step progression from
the first satellites to the first human spaceflights, then the establishment of a space
infrastructure including reusable space shuttles and permanent space stations in earth
orbit—they would not have seemed so unreal.the public would have had decades
to get used to the reality of spaceflight, and space technology would have become
a familiar part of the culture. as it actually happened, however, the populace was
relatively unprepared for what took place from December 1968 to December 1972,
when humans journeyed from their home planet to another celestial body.

in January 2004, president george W. Bush announced the Vision for Space

exploration, including return to the moon. unlike his father’s ill-fated Space
exploration initiative, the new program did not rely on substantial increases in the
naSa budget.and it came at a time when public support for the space program was
high.

if all goes according to plan, astronauts will be back on the moon no later than

2020 and our culture will once again be faced with absorbing the reality of humans
walking on another world.

Will apollo turn out to be the momentous punctuation mark in human history

that heinlein, clarke, and Bradbury predicted at the time of apollo 11? it seems
inescapable that it will, because no matter how far humans are able to go in their quest
to explore the universe, the apollo missions will stand as the opening chapter. Future
generations will no doubt judge the program’s significance not only by what apollo
achieved, but what it led to. if, as space visionaries have long maintained, human

32. For a listing of museum displays of apollo command modules, see “Location of apollo command

modules,” national air and Space museum Web site,

http://www.nasm.si.edu/collections/imagery/apollo/

spacecraftcm.htm

(accessed 13 august 2007).

33. gene cernan and Don Davis,

The Last Man on the Moon: Astronaut Eugene Cernan and America’s

Race in Space

(new York: St. martin’s press, 1999), p. 344.

34. Leonard David, “nSB report Finds Steady public Support For naSa,” 25 may 2004,

http://www.space.com/spacenews/archive04/nsbarch_052504.html

(accessed 13 august 2007).

hapter

Framing the Meanings of Spaceflight

in the Shuttle Era

Valerie neal

mong public policy analysts and pundits,it is conventional wisdom (and has been

almost since the Space Shuttle appeared) that the united States lacks a unifying

societal consensus about the fundamental purpose or goal of contemporary human
spaceflight. thirty years and more than 115 missions after the first Shuttle orbiter

Enterprise

made its debut in 1976, the debate continues along much the same lines as

it began:What purpose justifies the cost and risk of placing people in space? in what
intellectual framework does this enterprise make civic sense? Both the proponents
and opponents of human spaceflight have struggled to express a credible, broadly
persuasive rationale that appeals to or reflects supporting societal values.

advocates in the mercury-gemini-apollo era of the 1960s were not so tasked.the

politics of the time and presidential leadership gave rise to two readily intelligible frames
of reference for nascent human spaceflight: a competitive space race with the Soviet
union,and a pioneering venture into a new frontier.Both resonated with the american
public’s hopes, fears, and values. naSa did not need to craft a compelling rationale for
sending people into space; politicians and the media purveyed these messages.

Steeped in cold war anxieties about a possibly mortal adversary, citizens could

understand the importance of an all-out thrust into space, especially after the Soviets
made the first forays there.there was little disputing whether it was worth the cost
and risk; the affirmative response accorded with a people accustomed to victory
and anxious about the bomb. a

Time

magazine cover in December, 1968, with an

astronaut and cosmonaut sprinting toward the moon,captured the patriotic urgency
of this race against time, perceived as a race for survival against communism.

Likewise,the effort to reach the moon resonated with a widely held view ofamerica

as a pioneering nation with a frontier heritage.president Kennedy and his speechwriters
masterfully worked with this deeply ingrained sense of national identity as a metaphor
for exploring the new ocean of space. racing and pioneering merged in triumphant
images of the u.S. flag and astronauts on the dim landscape of another world.

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But what vision came after? Without a race to win or a frontier to conquer,

continued human spaceflight demanded a new purpose that made sense as a national
endeavor. how would naSa make the case and what role would the media play
in defining its purpose? how would society find meaning in continued spaceflight?
could human spaceflight fit into other frames?

over the past five decades naSa, the media, and interested sectors (aerospace

industry, scientific community, political figures, grass-roots groups, and others) plus
thoughtful individuals have engaged in an ongoing process of asserting and contesting
the value of human spaceflight by advancing a variety of visions or metaphors meant
to answer such questions and sway public opinion. the continual effort to define
the purpose of human spaceflight and reach a societal consensus on its value can be
viewed as an extended exercise in the social construction of meaning. in the Shuttle
era, at least five reference frames have been crafted, promoted, critiqued, refined,
accepted, rejected, or transformed in the process of shaping and communicating the
meaning of human spaceflight. these frames reveal much about what americans
hope for—and doubt—in our national ventures into space.

Frame Analysis as an Interpretive Tool

to pursue these questions about the meaning of Shuttle-era human spaceflight,

it is helpful to apply some concepts, terms, and techniques from the literature of
“frame analysis”that has become prominent in social science disciplines,especially in
media studies and the study of social movements.

in this context human spaceflight

can be considered a social movement that has an action agenda, an imperative to
muster resources, and a need to mobilize public support in order to carry out its
agenda. naSa is the hub of this social movement, with aerospace companies, space
societies, other government entities, and auxiliaries in the advocacy community,
including some in the media.

to analyze how social movements motivate public support, some scholars

focus on framing processes, and they use the term “framing” for the “construction
of meaning.” Framing is the packaging of messages that resonate with core values
and appeal to supporters. a “collective action frame” is a construct of ideas and

1. erving goffman,

Frame Analysis

(new York: harper & row, 1974); William a. gamson and andre

modigliani, “media Discourse and public opinion on nuclear power,”

American Journal of Sociology

(1989):pp.1–37;Williama.gamson,David croteau,William hoynes,andtheodore Sasson,“media images
and the Social construction of reality,”

Annual Review of Sociology

18 (1992):pp.373–393;Zhongdang pan

and gerald m. Kosicki,“Framing analysis: an approach to news Discourse,”

Political Communication

(1993): pp. 55–73; robert D. Benford and David a. Snow,“Framing processes and Social movements:an
overview and assessment,”

Annual Review of Sociology

26 (2000): pp. 611–639.

Framing the Meanings of Spaceflight in the Shuttle Era

meanings based on shared beliefs and values that will motivate support.

it is the

conceptual analogy to a structural framework or a picture frame.the space race and
the space frontier are such conceptual frames.

Frames are “the basic frameworks of understanding available in our society for

making sense out of events”;they help to render events meaningful,organize experience,
guide action, and simplify and condense aspects of the world.

they are intended to

motivate support and disarm opposition, to inspire adherents, and to legitimize the
activities and campaigns of a social movement. Frames provide context for a proposed
action or policy. opponents may contest or challenge them with counter-frames.

the mobilizing potency of a frame lies in its credibility and resonance. it must

be consistent with the facts and goals of the movement, and it must resonate with
the beliefs, values, and interests of the targeted support community or constituents.
even more broadly, it should have “narrative fidelity” or coherence with cultural
assumptions and myths in the public domain. activists use cultural resources—
beliefs, values, myths—as a “tool kit” to make their cause appealing and believable,
and audiences also use them to gauge resonance.

Because framing is an intentional process,frames need not be static.they can evolve

as circumstances change, either to account for unexpected events or to better appeal to
the target community.to mobilize support, a frame may need to be fairly elastic.

Social movement activists are not the only ones developing frames of meaning.

media discourse also participates in the process of constructing meaning. analysis
of media discourse relative to a variety of social movements (e.g., the women’s
movement, nuclear power, civil rights) reveals sophisticated frames or “interpretive
packages” that are promulgated to make sense of issues and events. Like frames,
interpretive packages have a central organizing idea, often presented in shorthand
through symbols, metaphors, visual images, and icons.the media provide both an
accessible forum for public consideration of issues and for suggested interpretations
that help to shape the social construction of meaning.

2. Benford and Snow, “Framing processes,” cited above, explicate these and other key concepts and

vocabulary in frame analysis scholarship.

3. goffman,

Frame Analysis

, 10; Benford and Snow,“Framing processes,” pp. 613–614.

4. Benford and Snow, “Framing processes,” discuss frame disputes, contested framing processes, and

counter-framing, pp. 625–627.

5. Benford and Snow, “Framing processes,” pp. 619–622, 629; gamson and modigliani, “media

Discourse,” pp. 1–10.

6. Benford and Snow,“Framing processes,” discuss framing processes and dynamics, pp. 622–632; Scott

Davies, “the paradox of progressive education: a Frame analysis,”

Sociology of Education

75, no. 4

(october 2002): pp. 269–286, esp. 270–273, refers to “two faces” (stable and changeable) of frames.

7. gamson and modigliani, “media Discourse”; gamson et al., “media images”; nadya terkildsen and

Frauke Schnell,“how media Frames move public opinion:an analysis of the Women’s movement,”

Political Research Quarterly

50, no. 4 (December 1977): pp. 879–900; Frank D. Durham,“news Frames as

Social narratives:tWa Flight 800,”

Journal of Communication

48, no. 4 (autumn 1998): pp. 100–117.

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this paper applies frame analysis concepts to human spaceflight during the

three-plus decades of the Shuttle era. primary sources for this analysis are selected
elements of societal discourse that helped shape or curb public expectations of
contemporary spaceflight—in this study, naSa’s publicity materials,

The New York

Times

(news, editorials, and opinion pieces), and editorial cartoons from a variety of

papers.

The NewYorkTimes

was selected for its breadth of coverage of Shuttle missions

and spaceflight,its often critical editorial stance,and the long tenure of reporter-analyst
John noble Wilford, who often wrestled with the meaning of human spaceflight.
other newspapers, magazines, and electronic media that could be fruitfully explored
are not included in this brief study; likewise, speeches, transcripts of congressional
hearings,and other official documents might be examined for a broader study.among
the techniques of frame analysis is close textual study with attention to keywords and
themes, a rhetorical approach that is suitable for the sources examined.

Framing Human Spaceflight: A New Era in

Space Transportation

With the Space Shuttle,naSa introduced a new frame of reference to justify human

spaceflight and capture popular interest and political support.it was“a new era”in space
transportation, setting human spaceflight into a long tradition of optimistic, progressive,
utopian visions of a brighter future.the cultural context for a new age or new era extends
to the origins of america as a new world, a key concept of national identity.the frame of
newness also harkened to a history of american innovation in transportation;automobiles
and aircraft had already brought about new eras in travel, with widespread social impact.
placing human spaceflight and the Shuttle into this frame—radically different from the
pioneering race of the 1960s—gave it a familiar appeal.

naSa promoted this theme through varied channels, including informative,

colorful public affairs brochures disseminated to the media and elsewhere.as soon as the
decision to develop the Space Shuttle was made in 1972,naSa began to frame the new
era for the public. artist robert mccall was commissioned to paint scenes of typical
Shuttle missions for a brochure that literally framed new ways of doing things in space.

a 1977 pamphlet titled

The Shuttle Era

claimed,“now a new era nears . . .the coming of

age in space”when people will be able to do important work there in ways never before
possible.

at about the same time, the Shuttle contractor rockwell international began

to release public relations materials to promote “a promising new era.”

. Space Shuttle

(Washington, Dc: national aeronautics and Space administration educational

publication ep-96, June 1972).

. The Shuttle Era

,Space Shuttle Fact Sheet naSa-S-76-815a (Washington,Dc:national aeronautics

and Space administration, march 1977).

10. rockwell international Space Division,

Space Shuttle Transportation System: A Promising New

Era for Earth

, September 1976, and

Space Shuttle:A Promising New Era for Earth

, January 1977.

Framing the Meanings of Spaceflight in the Shuttle Era

Crews from several missions in the 1980s relished their role in delivering and repairing satellites, adopting such business-like
monikers as Ace Satellite Repair Co. and Ace Moving Co., with “We pick up and deliver” and “The sky’s no limit” as mottos.

routine space transportation was the central tenet of the new era. in this

frame, spaceflight would no longer be a pioneering adventure; it would become
commonplace  and  practical,  in  earth  orbit,  not  outward-bound.  in  a  burst
of  metaphors, naSa  claimed  that  people  would  travel  a  highway  to  space  in  a
workhorse  shuttle  vehicle  that  would  operate  like  an  airliner. that  mixed  image
might have been a clue that the new-era routine transportation frame was strained.

naSa further elaborated the concept of routine access to space with

purposes that could appeal to special interests and make sense to the public at large.
commercial  enterprise  could  use  the  shuttle  to  cash  in  on  space  by  launching
satellites or developing manufacturing capabilities there. Knowledge would increase
as  observatories  were  placed  in  orbit  or  scientists  conducted  laboratory  science
in  space.  national  security  would  be  enhanced  by  regular  delivery  of  defense
department  payloads. all  these  activities  on  the  Shuttle  would  lead  to  practical
benefits  on  earth. naSa  thus  plugged  into  the  frame  something  to  appeal  to
each  necessary  constituency—business, science, and  military—and  purposes  that
moreover would resonate with the public.

With promised economic,scientific,and security benefits,citizens could understand

a practical approach to human spaceflight.add to that the typical american consumer’s
desire for the latest-model vehicle or the newest technology,as well as americans’regard
for the nation’s transportation systems, and the new era of routine space transportation
was a potent frame for human spaceflight on the Space Shuttle. in this context, the
purpose of human spaceflight was not exploration; it was useful work. the Shuttle
served as icon for this whole frame of meaning.to see the stubby-winged shape of the

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orbiter or the whole launch configuration with boosters and fuel tank was to recognize
the new era—and new meaning—of human spaceflight.humans were curiously absent
from these early depictions; the Shuttle vehicle, often called a spaceplane or a space
truck, symbolized the practical new purpose of people in space.

The New York Times

director of science news John noble Wilford was among

the first journalists to introduce the Shuttle-era frame of reference to the public.
his 1977 feature article, “another Small Step for man: Shuttling into Space,”
laid a bridge from the past to the future as the first Shuttle

Enterprise

engaged in

atmospheric flight tests. echoing neil armstrong’s famous words on the moon,
Wilford placed the Shuttle on the next rung of the ladder to humanity’s destiny
in space and recognized it as a revolution in space travel. he foresaw that the “era
of the spaceplane” meant hauling orbital freight on regular flights and handling
satellites by the three rs—release, retrieve, repair. the Shuttle would not be used
for exploration. But, because it would offer the ability to do new things in space, the
Shuttle might have a far-reaching impact, as did the automobile and airplane.

the end of the 1970s decade (just a bit prematurely),Wilford announced a variant of
the new era concept: the “commuting age Dawns in Space.”

When the new era truly dawned in 1981 as Space Shuttle

Columbia

roared

into orbit, the new frame of reference crafted by naSa and presented in the media
was in place.there might have been a different meaning construction—perhaps a
mythic journey or another metaphor—but none other was offered. already there
were skeptics and critics, but the news media in unison trumpeted a new era of
routine transportation to space.

Framing Human Spaceflight: A Business

a corollary to the new era of routine space transportation also was promoted:

spaceflight as a business.naSa claimed that the reusable Shuttle would lower the cost of
spaceflight and make transportation to and from earth orbit economical.the foundation
for Shuttle-era spaceflight would be a business model inspired by the commercial airline
industry.naSa managers studied airline operations and sought to drum up the customer
market,contracted with payload owners for orbital flights,plotted the mission manifests,
and calculated the operating margins to turn spaceflight into, if not a flourishing, at least
a break-even business.With a sufficient number of vehicles and frequency of flights, the
Shuttle might bring down the cost of spaceflight and pay for itself.

this business-model frame served to defend the Shuttle against critics who argued

that the program was unnecessary and too expensive, and it dovetailed well with the

11. John noble Wilford, “another Small Step for man: Shuttling into Space,”

The New York

Times

, 7 august 1977, Sunday magazine: pp. 7, 28, 54 ff.

12. John nobleWilford,“commuting age Dawns in Space,”

The NewYorkTimes

, 30 December 1979.

Framing the Meanings of Spaceflight in the Shuttle Era

concept of routine transportation for useful work in space.transportation businesses on
earth—interstate trucking,railroads,shipping,as well as airlines—were familiar analogues
to give meaning to a space transportation enterprise.this blend of concepts exemplified
frame enhancement or frame elaboration,a strategy for broadening the appeal of a social
action agenda, often by appropriating some elements of an adversary’s position. human
spaceflight in this frame did not mean adventure and exploration; it meant efficiently
running a business for practical benefits if not profits.

the business-model frame proved vulnerable to critique by standard business

accounting and auditing principles; it invited measurement of costs and gains. naSa
had provided the quantifiable metrics for judging the performance of human spaceflight:
flight rates and flight costs.as the Shuttle became operational in the 1980s, it was not
difficult for stakeholders in the business to do cost-benefit audits and assess the return
on investment in human spaceflight.the value of work performed by the astronauts was
more difficult to measure quantitatively,so the cost of operating the Shuttle served as the
primary measure for judging the value of human spaceflight.thus, the business frame
that was meant to promote also became a frame for critiquing spaceflight.

Reality Check: The Early Shuttle Era in Practice

a brief survey of reporting and editorializing about spaceflight during the first

five years of the Shuttle era shows how these two theoretical frames of meaning
fared in practice. reactions to the first 23 Shuttle missions (1981–1985) in

The New

York Times

served as “reality checks” for assessing actual spaceflight in the new era

within the routine transportation and business frames. greeting the Shuttle as a bold
new approach to human spaceflight and the first mission as a triumphant return to
space, the paper proclaimed “columbia . . . opening a new era of Space Flight.”

Yet chief Shuttle observer John noble Wilford cautioned from the outset that the
future was by no means certain; it might prove difficult to fulfill the optimistic
predictions of the new era.

a week before

Columbia

’s first launch, Wilford published another long,

thoughtful essay, this one on “Space and the american Vision.”

Four years had

elapsed  since  his “Shuttling  into  Space” article—years  during  which  the  Shuttle
had been plagued with technical problems, cost increases, and delays.Wilford again
framed  the  meaning  of  the  new  era  of  human  spaceflight, but  now  the  routine
transportation  scheme  did  not  seem  as  plausible  or  resonant  as  before, and  the
Shuttle had not even flown yet.there was a note of ambivalence about the Shuttle

13. articles in

The New York Times

by Wilford and others, april 1981; headline from 15 april 1981:

pp.a21.

14. John noble Wilford, “Space and the american Vision,”

The New York Times

, 5 april 1981, Sunday

magazine: pp. 14 ff, 118 ff.

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era in his rhetoric as he tried to reconcile america’s spacefaring destiny with the
spaceplane’s mundane mission of hauling orbital freight.

Because 13 of the first 23 missions were indeed freight-hauling flights to deliver

satellites for commercial customers,

The NewYork Times

reporters generally conveyed

Shuttle mission news within the routine transportation frame, featuring the three rs
of space trucking (release, retrieve, repair). But they also made room in stories for
questions about the cost of Shuttle missions and reported all manner of technical
glitches and delays that belied the concept of routine spaceflight.the terms “failure,”
“delay,” and “problem” repeated frequently in news accounts subtly challenged the
accepted frames of reference and sowed doubts about the fit between these frames and
reality.Yet the Shuttle came to be understood as a space truck delivering large cargos
to orbit—an image that some of the astronaut crews happily fostered—and successive
satellite deliveries helped to establish a semblance of routine spaceflight.

attention to five missions in 1984 and 1985 elevated the space truck to new

heights of interest by putting humans squarely in the focus.these missions added a
Buck rogers gloss to the notion of routine work in space and made vivid the role
of human spaceflight.

the common theme of these servicing and salvage missions

was satellites gone awry—humans to the rescue.the drama of astronauts flying away
from the Shuttle in jet backpacks, grappling errant satellites, wrestling them into the
payload bay, and then conducting repairs, put a human face on the new-era frame.
the Shuttle image broadened from delivery truck to tow truck to service station,
and the astronauts earned credit as orbital repairmen. extravehicular activity (eVa)
figured heavily in these missions and was a visibly effective way to demonstrate
human capability in space.the missions showed off new astronaut tools—the piloted
maneuvering unit backpack, the remote manipulator system robotic arm, the power
hand tools—that gave working in space a vivid dexterity.the message in the media,
and from naSa, was that “nothing like this has ever been done before.”

By the end of 1985, with 23 Shuttle missions completed,

The New York Times

(and other news media) had validated the new era of routine space transportation
concept as the meaning frame for human spaceflight. however, a noticeable current
of critique ran through some of the news reports, and more so in editorials and
opinions. alert journalists noted that about two-thirds of the launches had been

15. typically

The New York Time

s ran a news article each day of each mission; several in the days just

before launch and after landing; at least one article for every delay or significant problem; and occasional
analytical pieces.the mission-related coverage during the 1981–85 period totaled hundreds of articles.

16. the five missions were, in 1984, the 10th (StS 41-B), featuring first flights in the manned

maneuvering unit; the 11th (StS 41-c), the Solar max observatory repair mission; the 14th (StS
51-a), the first satellite retrieval to return the Westar and palapa communications satellites; and in
1985, the 16th (StS 51-D), another satellite delivery mission, and the 20th (StS 51-i) to deliver
three satellites and retrieve/repair another. See

The New York Times

articles by Wilford and others in

January–april and november 1984, and april and august–September 1985.

Framing the Meanings of Spaceflight in the Shuttle Era

The quintessential frames for the meaning of human spaceflight are images of a single astronaut poised against black space,
the vivid Earth, or the landscape of another world. They resonate with adventure, risk, courage, heroism, discovery, and beauty.

delayed  by  weather  or  technical  problems; several  missions  had  been  delayed  in
returning or brought home early for the same reasons; and five years into the new
era the launch schedule was always subject to change. By these measures,“routine”
transportation  seemed  ephemeral.  of  the  satellites  deployed  from  the  Shuttle,
enough had failed to reach their intended orbits or operate properly that salvage
missions were required, making the satellite deployment role for the Shuttle look
less rosy.Worrisome repeated problems such as damaged tiles, fluid leaks, computer
malfunctions, locked  brakes, and  blown  tires  also  clouded  the  picture  of  routine
transportation. occasional serious anomalies discovered after landing—evidence of
a fire and explosion in the engine compartment, a large hole in a wing with partial
melting of the structure—gave pause for observers to wonder how safe the Shuttle
really was.

Despite the frequency and variety of missions in this new era, evidence

mounted that human spaceflight was not yet routine.

only a few of the early Shuttle missions provoked editorial commentary in

The

New York Times

,which began to challenge the concepts of routine space transportation

and useful human spaceflight.a skeptical editorial—“is the Shuttle Worth rooting
For?”—appeared on the eve of the first Shuttle launch.While acknowledging the
Shuttle as “an unquestionable technological achievement,” the editors noted that it
was “a technology in search of a mission” that might become a white elephant.the

17. ninth mission (StS-9, 1983), aft compartment fire upon landing; 16th mission (StS 51-D, 1985),

damaged wing.

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reason for their ambivalence: uncertainty that the Shuttle would really cut the cost
of operating in space.

a few days later, the editors tempered their end-of-mission

congratulations with the question, “now that we own a successful space shuttle,
what do we do with it?”their standard: “What can a reasonable society afford?”

the next editorial on the Shuttle suggested limiting the number of spaceplanes to
allow for continued planetary exploration.

to mark the third successful Shuttle mission,

The New York Times

acknowledged

that

Columbia

“almost succeeded in placing the stamp of routine on shuttling

into space,” but charged that naSa was not using the magnificent machine with
sufficient style. it deserved a purpose greater than trucking freight. in this instance,
reality fit within the routine transportation frame but the frame itself was challenged
as unimaginative. however, no alternate frame was tendered.

the tension between spacefaring and freight-hauling was a latent stress on the new-

era routine transportation and business frames of reference.Wilford’s occasional reflections
on the Shuttle missions showed the stress fractures in these frames, and revealed how
they were becoming dissonant, rather than resonant, with some important societal values.
“this is no adventure in exploration; this is a freight run,” he wrote upon witnessing the
eighth launch. it did not inspire the same thrill as a mission to the moon. he began to
try to reframe human spaceflight by defining for it a purpose worthy of a spacefaring
people with a tradition of exploration.With naSa under pressure to make spaceflight an
economical business,he argued that the nation should aspire to a new vision of its future in
space.although the Shuttle and a future space station would expand human activities
in space,he looked to the robotic voyages of discovery in the solar system as the model
for inspiring wonder and rekindling the spirit of the apollo era.

Before 20 missions had flown, Wilford wrote a piece measuring actual

performance against promise, in effect measuring the fit between the routine space
transportation frame and reality. using such metrics as number of missions projected
vs. accomplished and number of satellites scheduled vs. orbited, he showed the large
gap between hopes and reality.these discrepancies were prompting a reevaluation of
the Shuttle program by its customers and critics, and even its proponents. regardless
of spectacular achievements, the frame for human spaceflight in the Shuttle era was
getting out of alignment with reality.

18. “is the Shuttle Worth rooting For?”

The NewYorkTimes

, 9 april 1981: p.a22.

19. “Down to earth,”

The New York Times

, 14 april 1981: p.a30.

20. “What Does the‘S’in naSa mean?”

The NewYorkTimes

,4 november 1981:p.a30.

21. “too Fine a machine,”

The New York Times,

31 march 1982: p.a30.

22. John noble Wilford, “Big Business in Space,”

The New York Times

, 18 September 1983,

Sunday magazine: pp. 46–47 ff., 50, 83.

23. John noble Wilford, “gap Between early hope and present accomplishment grows Large;

Space Shuttle re-evaluated,”

The NewYorkTimes

, 14 may 1985: p. c1.

Framing the Meanings of Spaceflight in the Shuttle Era

other observers also subjected Shuttle-era human spaceflight to a cost-benefit

analysis and found that the numbers did not add up to economical space transportation.
historian of technology alex roland published one of the most strident critiques of
this type in the popular magazine

Discover

. in “the Shuttle: triumph or turkey?”

he appraised its cost, technical failures, maintenance demands, uncertain schedule,
deployment mishaps, and other shortcomings against the promises of routine space
transportation, and found the sophisticated, versatile Shuttle wanting.“Judged on cost,
the shuttle is a turkey . . . . it costs too much to fly . . . . and cost is the principal
criterion by which it should be judged.”in setting a cost-benefit frame over the Shuttle,
roland was not reframing human spaceflight itself; indeed, he did not comment on
the value of the missions or crews. rather, he faulted the vehicle—the icon of human
spaceflight—to attack the credibility of naSa’s new-era and business frames for the
unrealized promise of routine, reliable, economical space transportation.

editorial cartoons from this period also had perspectives on the new-era frame

of reference, as they quite literally distilled an idea or opinion within an inked frame.
editorial cartoonists across the country treated the Shuttle and human spaceflight as
subjects.

in the early 1980s many of them responded to the concept of routine space

transportation with pride or humor.they tended to treat the first Shuttle mission as a
patriotic and technical triumph, featuring uncle Sam and the u.S. flag on track toward
america’s destiny in space. Some depicted passengers lined up with a Shuttle timetable,
waiting for pickup.others drew the Shuttle as a space truck and astronauts as handymen
on the satellite delivery and servicing missions. they depicted the foibles of launch
delays and technical problems—a Shuttle on the launch pad covered in cobwebs, suited
astronauts growing old while waiting to fly, tiles falling off the Shuttle, a tanker truck of
superglue at the pad, a countdown clock with a ridiculously high number.

the editorial cartoonists, inspired by the news and their own idiosyncratic

perspective on things, independently endowed the Shuttle and human spaceflight
with meaning inside the frames they drew.

their charter for the Shuttle, as for

other topics, was to distill the essential meaning of things stripped of hype. perhaps
earlier than others, they began to see (and lampoon) a misalignment of naSa’s
frame of reference and reality.

24. alex roland,“the Shuttle:triumph orturkey?”

Discover

(november 1985): pp. 29–49; quotes, 45.

25. the naSa historical reference collection at naSa headquarters in Washington, Dc, contains

many cartoon files catalogued by year and topic in the series cartoons.

26. Various scholars have examined editorial cartoons as effective keys to frames of meaning:

William a. gamson and David Stuart, “media Discourse as a Symbolic contest: the Bomb in
political cartoons,”

Sociological Forum

7, no. 1 (march 1992): pp. 55–86; edward t. Linenthal,

Symbolic

Defense:The Cultural Significance of the Strategic Defense Initiative

(urbana, iL: university of illinois press,

1989);thomas h. Bivins,the Body politic:the changing Shape of uncle Sam,”

Journalism Quarterly

63 (Spring 1987): pp. 13–20; roger a. Fischer, “oddity, icon, challenge: the Statue of Liberty in
american cartoon art, 1879–1986,”

Journal of American Culture

9, no. 4 (Winter 1986): pp. 63–81.

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Reframing Human Spaceflight: Scientific Research

Social movement scholars have defined several processes for invigorating

or strengthening a contextual frame to make it less vulnerable to criticism and
more appealing to supporters. clarification and expansion of the concept (frame
amplification and frame extension) can be effective strategies for protecting a core
concept and expanding its appeal to a broader community.

as editorial and opinion writers began to critique the practice and meaning

of human spaceflight in the Shuttle era, naSa did what social action movements
often do to maintain support. it began to extend the frame, stretching its elastic
boundaries to include other appealing elements. as soon as the Shuttle became
operational, naSa began to retool for another big engineering project. presidential
approval to begin development of an orbital station complex came in 1984. human
spaceflight now encompassed not only the Shuttle but also a space station, promoted
as “the next logical step” to a “permanent presence” in space.

this expanded package of meaning protected the Shuttle as essential to the

assembly and routine supply of the space station,and both were deemed essential for the
continuation of human spaceflight.however,to avoid a completely circular justification
for the Shuttle and station,naSa elaborated the purpose of human spaceflight to include
scientific research, a dimension of useful work that would bring benefits through new
knowledge.this elaboration evolved in relation to three human spaceflight programs:
Spacelab, Space Station

Freedom

, and the international Space Station.

Scientific research was a secondary theme in the early Shuttle era. Just four of

the first 25 Shuttle missions had focused on science instead of commercial or national
security payloads.

in the 1990s science became a major focus on half of the missions,

with some 30 flights completely dedicated to research and other flights carrying at least
a few experiments. the Spacelab suite of laboratory module and instrument pallets,
developed by the european Space agency and installed in the payload bay, effectively
turned the Shuttle into a temporary orbital research station generally staffed by ph.D.’s.
these missions included experiments in various disciplines where flight crews could
carry out research with the goal of pushing the frontiers of knowledge.

a primary scientific objective was to study space motion sickness and adaptation

27. David a. Snow, e. Burke rochford, Jr., Steven K. Worden, and robert D. Benford, “Frame

alignment processes, micromobilization, and movement participation,”

American Sociological Review

51, no. 4 (august 1986): pp. 464–481, esp. 469–473.

. Space Station Freedom Media Handbook

(Washington, Dc: naSa, may 1992).

29. Spacelab 1 (StS-9, 1983), Spacelab 3 (StS 51-B, 1985), Spacelab 2 (StS 51-F, 1985), and

Spacelab german D-1 (StS 61-a, 1985), the 9th, 17th, 19th, and 22nd shuttle missions. See

The

New York Times

articles november–December, 1983;april–may and July–august, 1985.

30. examples of public affairs material framing human spaceflight as scientific research are the

naSa marshall Space Flight center pamphlet

Spacelab

, 13-m-883, which describes the facility and

its uses, and the naSa information Summaries pmS-008a (hqs),“Space Station,”august 1988.

Framing the Meanings of Spaceflight in the Shuttle Era

to weightlessness—topics that put the spotlight on the role of humans in space.another
was to investigate the properties of materials and processes in microgravity.investigations
in life and materials science included both basic and applied research. these Shuttle
missions refined the ability of astronaut crews to collaborate with scientists on the ground
while carrying out experiments, thus opening the space environment to hundreds of
researchers. enabling members of the worldwide scientific community to participate
directly in space missions broadened the appeal of human spaceflight in those disciplines
based on laboratory methods. astronomers and space physicists generally were not
persuaded that human spaceflight was necessary; automated instruments and satellites
were more effective and less expensive means for conducting their research.

naSa and the media began to stretch the human spaceflight frame beyond the

Shuttle,seeing the Shuttle-borne laboratory as a precursor to a space station.the new
era frame now began to imply a very long-term, perhaps permanent human presence
in space.the effort to promote a space station, known first as

Freedom

and then as the

international Space Station, relied on the key ideas of orbital research,“cutting-edge
science,” a “world-class laboratory,” “frontiers of knowledge,” and other superlatives
to bolster the meaning of continued human spaceflight. the purpose of human
spaceflight on the space station was to advance science, which would yield discoveries
for benefits on earth and enable future exploration. if the stretch occasionally seemed
improbable—that research on the space station might lead to cures for cancer or
aiDS or osteoporosis—it also showed that naSa was seeking new constituencies,
especially women, to garner public support for an expensive new program.

The New York Times

editorial column stridently challenged this framing of

human spaceflight on the grounds of cost, size, purpose, utility, scientific potential,
necessity, and logic. especially during the precarious years of the late 1980s and early
1990s when the space station program was in political trouble,

The New York Times

urged its cancellation and a redirection of human spaceflight. calling the proposed
orbital research station an extravagant folly and the arguments for a permanent human
presence there specious, the editors found in it no compelling national purpose or
social value.

The NewYorkTimes

attempted to reframe its meaning as a grandiose fiasco.

only when the station was scaled down in size and purpose did the editors briefly
give it credence but never full support.

31. naSa press release 92-92, “goldin Says america needs Space Station Freedom now,” 24

June 1992; naSa press release 92-119, “naSa, nih Sign agreement on Joint, Space-related
research,” 21 July 1992; Boeing, “the Space Station Brochure,” early 1990s; “Space Station
Freedom: gateway to the Future,” naSa publication np-137, 1992; “the international Space
Station:the naSa research plan,” naSa np-1998-02-232-hQ, 1998.

32. examples of strident critiques of the space station basis for human spaceflight that appeared

The New York Times

include “naSa’s Black hole in Space,” 29 march 1990: p. a22;“Space Yes;

Space Station no,” 6 June 1991: p. a24; “naSa’s untouchable Folly,” 14 July 1991: p. e18; “the
Wrong Space Station,” 29 July 1992: p. a20;“is naSa among the truly needy?” 6 march 1995:
p.a14.two qualified exceptions were “how to put Space in its place,” 12 December 1990: p.a22
and “Space, in proportion,” 6 march 1991: p.a24.

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influential voices outside

The NewYorkTimes

also doubted the value of the space

station and the meaning of human spaceflight in scientific research. Space scientist
James a.Van allen was one of the earliest and most earnest critics. he made the point,
often repeated in

The NewYork Times

, that “the overwhelming majority of scientific

and utilitarian achievements in space have come from unmanned, automated and
commandable spacecraft.” robotic satellites and planetary probes had advanced the
frontiers of knowledge quite successfully and at far less cost than people could.Van
allen argued that the space station would seriously

diminish

,not expand,opportunities

for scientific advances. he found the human spaceflight-for-science frame to be
disingenuous and the high value placed on piloted flight to be excessive.

Van allen suggested that the cultural obsession with human spaceflight defied

reason when the motive was science, but he granted the power of popular interest
in science fiction and the space program’s potential for creating real adventure.
arguments of scientific productivity, however, did not derail the space station and,
20 years after Van allen wrote, his critique has been partly vindicated. instead of
“the tidal wave of basic science” that naSa had predicted for the space station,
a trickle has flowed.

circumstances have required crews to spend more time

operating and maintaining the international Space Station than exploiting its
capabilities for laboratory science. if there have been discoveries from cutting-
edge experiments aboard the station, they have not been well advertised.a reality
check of this frame now would likely show it out of alignment with its premises
and less resonant with societal values than at its origin.

Frame Shift: Human Spaceflight as Heroism

Scholars of meaning construction in social movements and the media note

that occasionally an event creates some perturbation in the prevalent meaning frame
of an issue. Such a crisis may provoke reconsideration or even reconstruction of
meaning.a crisis becomes a critical discourse moment that can change the basis of
meaning, introduce new values, and prompt a shift to a new frame of meaning.

Such a critical moment occurred in January, 1986.

the year began with news that the Voyager 2 spacecraft had reached the

neighborhood of uranus, its first planetary encounter since leaving Saturn five years
earlier. images from the spacecraft showed new moons, rings, colors, mountains, craters,
and other intriguing features. as naSa and the media hailed this ongoing mission

33. James a. Van allen, “Space Science, Space technology and the Space Station,”

Scientific American

254, no. 1 (January 1986): pp. 32–39.

34. naSa administrator Daniel goldin quoted in naSa press release 92-92, “goldin Says america

needs Space Station Freedom now,” 24 June 1992.

35. gamson and modigliani, “media Discourse and public opinion,” and Benford and Snow,

“Framing processes.”

Framing the Meanings of Spaceflight in the Shuttle Era

of discovery,

The New York Times

published two editorial odes to Voyager as space

exploration “at its most intelligent and productive” and “at its best.” By comparison,
human spaceflight seemed adrift, with naSa flying politicians and a teacher to hold
public attention. in a terrible coincidence, the second of these pieces appeared on
January 28, the morning of

Challenger

’s final launch. its barbed closing line chided,“if

naSa wants lasting public support for a vigorous space program, the wonder of seeing
new worlds will do it a lot more good than soap opera elevated to earth orbit.”

What happened that morning, witnessed by millions of television viewers, was

nothing as trivial as a soap opera.the catastrophic loss of the Shuttle and death of seven
crewmembers barely a minute after liftoff seared the nation, shaking national pride and
confidence about the technology and safety of human spaceflight.the dimensions of
the tragedy broadened and deepened during the weeks of investigation, with stunning
revelations of flawed technology and questionable decision making within naSa.

the

Challenger

accident shattered the new-era frame of routine spaceflight.What

some had suspected suddenly became clear—space transportation was not yet routine,
measured not by a dry financial cost-benefit analysis but by the cost of human life.
the risk of spaceflight had been absent in the new-era frame of reference.that this
was a basic freight-hauling mission to deliver a satellite—a task that did not inherently
require a human crew—made their deaths even more tragic. Spaceflight deemed as
routine as airline flight implied safety.as the pace of Shuttle missions had quickened,
the public had understandably become complacent about spaceflight, perhaps the
inevitable result of the frame of reference that had given meaning to the Shuttle era.

With the accident and loss of life, the disparity between reality and the

conceptual frame of meaning for human spaceflight was too great to hold. it lost
credibility and resonance in the shock of tragedy.the astronauts’ deaths demanded
greater significance than the space truck rationale could provide. Both the Shuttle
and human spaceflight would be questioned and revalued, first to make sense of the
tragedy and then to reconceive america’s future in space.

the public search for meaning immediately defaulted to the 1960s frame of

pioneering exploration and heroism on the space frontier. From president reagan’s
consoling remarks to media coverage, official tributes, and personal mourning, the
theme was courage and sacrifice in the cause of exploration.

the very purpose

that the Shuttle did

not

actually have—exploration—became the cause for which

the

Challenger

crew sacrificed their lives. invoking the quest of exploration elevated

the

Challenger

mission to a noble cause and valued the deaths as heroic.the routine

space transportation frame could not bestow that meaning.

36. “adrift in Space,”

The New York Times

, 7 January 1986: p. a20 and “on to neptune,”

The New

York Times

, 28 January 1986: p.a24.

37. transcript of president reagan’s statement to the nation, reprinted in

The New York Times

, 29

January 1986: p.a9.

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The New York Times

reported the details of the accident and subsequent

investigation and also immediately began to offer perspective on the news.an analysis
piece “Should u.S. continue to Send people into Space?” appeared as soon as
January 30 under a heading “issue and Debate.” John nobleWilford’s articles included
reflections on human vulnerability, trust in technology, and the unrelenting dangers
and risks of exploration as germane to a reappraisal of spaceflight.this bleak time in
the space program was an opportunity to set new goals and a clearer mission for the
Shuttle and beyond. he noted that human spaceflight was bound to continue, because
“With the loss of the

Challenger

and its crew of seven, we learned, to our surprise, how

much these adventures into space, into the future, mean to us as a people.”

editorial cartoons telegraphed the societal impact of spaceflight as scores of cartoonists

responded to the

Challenger

tragedy.

the primary themes, as in the president’s address,

were national sorrow and heroism,variously depicted as uncle Sam with head bowed,the
flag on the moon at half-mast, or an eagle shedding a tear. Some cartoonists framed the
accident in a spiritual dimension, showing the Shuttle as a constellation, the astronauts as
new stars, or the Shuttle and crew entering heaven.there were no cartoons featuring a
space truck or astro-delivery-nauts, no suggestions of routine spaceflight.a few editorial
artists who also wrote about responding to the

Challenger

accident described the meanings

they sought to distill within their drawings as the fragility of mankind’s wings, shattered
faith in space technology, or inexpressible sorrow for a profound loss to the nation.

Framing the

Challenger

accident within the heroic cause of exploration—really

a return to the meaning frame of the 1960s—was powerful, perhaps instinctive. it
gave meaning to a shocking tragedy and resonated with societal values of patriotism
and faith that offered consolation for the present and hope for the future. the
exploration frame appealed to public sentiment, which translated into expressions
of increased public support for the space program. in the immediate aftermath of
the

Challenger

accident, the supportive public and the Shuttle’s critics seemed to be

oddly in accord in revaluing the meaning of human spaceflight as exploration, not
freight-hauling and similar practical work.

38. David rosenbaum, “Should u.S. continue to Send people into Space?”

The New York Times

30 January 1986: p.a18; John noble Wilford,“Faith in technology is Jolted, but there is no going
Back,”

The New York Times

, 29 January 1986: p. a7; John noble Wilford, “the challenger’s Fate,

the Shuttles’ Future,”

The New York Times

, 2 February 1986: p. e1; John noble Wilford,“america’s

Future in Space after the challenger,”

The New York Times

, 16 march 1986: p. 85 ff.

39. Files in the history office at naSa headquarters in Washington, Dc, contain some 150

Challenger

related cartoons published in 1986.

40. examples include garner’s drawing in

The Washington Times

, 19 January 1986: 11a; Swann’s

drawing in

The Huntsville Times

, 19 January 1986; marlette’s drawing in

The Charlotte Observer

, 28

January 1986 and in Doug marlette,

Shred This Book!

(atlanta: peachtree publishers, 1988), pp.

86–88; ohman’s drawing in

Newsweek

, 10 February 1986: p. 21, and in Jack ohman,

Back to the ’80s

(new York: Simon & Schuster, 1986), pp. 136–137.

Framing the Meanings of Spaceflight in the Shuttle Era

the new-era routine spaceflight frame had originated with naSa and then

was promoted to the public. however, the reframing of human spaceflight after the

Challenger

accident seems to have arisen outside the agency.

The New York Times

became a forum for reappraising the state of human spaceflight by publishing its
own perspectives and those of several prominent citizens. immediately after the
accident, a

New York Times

editorial addressed “the challenge Beyond challenger”

with thoughts for reordering the nation’s priorities in space. the coincidence of
the Shuttle’s destruction and Voyager’s success illustrated a need to establish goals
in space and use humans only when necessary. as most of the tasks for the Shuttle
crews could be performed better by rockets or automation, a better goal for human
spaceflight might be a mission to mars to “satisfy humanity’s sense of adventure.”this
surprising proposal, given that robots could also explore mars, was a concession that
humans might have some role in space more justifiable than then-current roles.

For weeks,

The New York Times’s

editorials and op-eds reflected on both the

routine spaceflight reference frame and the need to reorient the role of human
spaceflight. in their quest to find a justifiable purpose for sending people into space,
the only one tentatively suggested was a piloted mission to mars.

as a critical

discourse moment, the

Challenger

accident prompted a shift from the routine

spaceflight frame to its direct opposite: exploration.

Frame Transformation:

Human Spaceflight as Exploration

From 1986 into the 1990s, and then again after the 2003

Columbia

accident,

considerable energy went into transforming the meaning of human spaceflight.
Shuttle flights continued to carry out satellite delivery and science missions, and
then preparatory and actual space station missions. human spaceflight continued
within the meaning frames of transportation and science, but on another track a
new frame—exploration—was taking shape through various task force/advisory
committee studies and media discourse.the framers shaped this concept largely in
antithesis of the others, a counter-frame based on opposition to the status quo.their
purpose was to transform the meaning of human spaceflight by situating it within
a different set of traditions and values.

. The New York Times

, 31 January 1986: p.a30.

42. “risk and routine,”

The New York Times

, 7 February 1986: p. a34; tom Wicker, “icon and

o rings,”

The New York Times

, 18 February 1986: p.a23;“the Seal on naSa’s Fate,”

The New York

Times

, 22 February 1986: p.a22;“the Frailties of machines and men,”

The New York Times

, 2 march

1986: p. e22;“how to regain Face in Space,”

The New York Times

, 28 may 1986: p.a22.

43. Frame transformation is discussed in Benford and Snow, “Framing processes” and Snow et al.,

“Frame alignment processes.”

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Within weeks of the

Challenger

accident, an alternative plan for human

spaceflight appeared.the national commission on Space, created by congress and
appointed by the president, released a report of its year-long project to develop an
exciting vision and goals for the twenty-first century. ambitious and optimistic, it
was an antidote to the malaise spawned by the accident. this new vision was crafted
in public dialogues around the country as the commissioners sought to hear what
citizens expected of their space program. in a word—exploration.

the advisory commission’s report,

Pioneering the Space Frontier

, focused

on  exploration  and  settlement  within  the  solar  system  as  the  extended  home  of
humanity.american leadership could open this new frontier to science, technology,
and  economic  enterprise. the  elaborate  plan  envisioned  a  massive  infrastructure:
space  station, different  types  of  vehicles  and  spaceports, a  lunar  outpost, a  mars
base, and related technologies.the Shuttle era was confined to an orbital beltway
near earth, but in the future era humans would move out on a “highway to space”
and a “bridge between worlds,” to set up residence and do useful work producing
propellants and other life- necessary resources.this vision was a hybrid of the familiar
frontier and transportation frames for human spaceflight applied to a new setting and
purpose.colorful cover art and illustrations engagingly framed this rather industrialized
vision of the space frontier, published as a report dedicated to the

Challenger

crew, who

in president reagan’s words were “pulling us into the future.”

naSa also engaged in its own reappraisal of the future of human spaceflight.

astronaut Sally ride chaired an internal agency planning group that prepared a
report on

Leadership and America’s Future in Space

it, too, proposed an eventual

human mission to mars, but at a more measured pace and scale than the national
commission had proposed. these and other studies were gestures toward a
transformational vision of human spaceflight beyond the Shuttle era, but they were
not converted to action plans.

near the one-year anniversary of the

Challenger

accident, an encouraging

piece by space scientist carl Sagan appeared in

The New York Times

.“it’s time to go

to mars,” he wrote, in a systematic program of exploration advancing from robotic
rovers to sample-return missions and then to “the first human footfalls on another
planet.” unlike the national commission’s vision of productive industry on mars,
Sagan’s vision focused on the values of adventure, excitement, inspiration, valor,
prestige, and purpose in the space frontier. he argued that exploration of mars
for the sake of knowledge could revitalize the moribund space program and make
possible a new goal,“establishing humanity as a multiplanet species.”

44.

Pioneering the Space Frontier: The Report of the National Commission on Space

(new York: Bantam

Books, 1986).

45. Sally K. ride,

Leadership and America’s Future in Space

(Washington, Dc: naSa,august 1987).

46. carl Sagan,“it’s time to go to mars,”

The New York Times

, 23 January 1987: p.a27.

Framing the Meanings of Spaceflight in the Shuttle Era

Variants of the exploration of mars arose as forces inside and outside naSa

tried to reframe the purpose of human spaceflight.the mars goal seemed a worthy
commitment for astronauts, and it might align the human and robotic flight programs
in a complementary rather than competitive enterprise.it could also reassert american
leadership in space in an inspiring,challenging adventure.By spring,1987,John noble
Wilford could report in

The NewYorkTimes

that “momentum is building in the space

agency and among . . . leaders to make mars the next major goal of the american
civilian space program.”

exploration,specifically the exploration of mars,had gained

credibility and resonance as the future meaning of human spaceflight.

the 20th anniversary of the apollo 11 landing highlighted the discrepancy

between current human spaceflight and aspirations for a new purpose. president
george h. W. Bush marked the anniversary in 1989 by endorsing a spacefaring
initiative to return to the moon and move on to mars.apparently formalizing the
frame shift from Shuttle-era concepts to exploration, the announcement was more
rhetoric than mandate, for he set no schedule and made no funding commitment
for such an enterprise. it met with skepticism among political leaders and space
policy analysts as too costly.

The New York Times

dismissed it as “mr. Bush’s giant

step back in space . . . a failure of imagination” because it sounded like apollo
redux without a compelling reason.

the president’s new frame for the meaning of

human spaceflight seemed rickety but it did authorize naSa to chart a path out of
earth orbit through a new space exploration initiative.

Despite the ferment, the transformation process was slow, and in the meantime

human spaceflight was still riding the Shuttle and preparing a space station.the new
York times published numerous impatient, frustrated editorials on the theme “stuck
in earth orbit for no good reason.”the editorial page framed the Shuttle as fragile,
vulnerable, neither fully safe nor fully reliable, with nowhere to go. the planned
space station was decried as an extravagant folly, a “black hole,” a fiasco, purposeless
or a “potpourri of purposes,” grandiose, unsuitable for anything except being a place
for the Shuttle to go.the space agency was “an aged and faltering institution,” ailing
and “pinched in scope and vision.”the drumbeat message: cancel the space station
and do something more imaginative than carry astronauts and cargo to low earth
orbit.

The New York Times’s

editorial position framed human spaceflight as properly

47. J. n. Wilford, “exploration of mars is advised as goal for naSa,”

The New York Times

, 18

march 1987: p. B6 and “the allure of mars grows as u.S. Searches for new national goal,”

The

New York Times

, 24 march 1987: p. c1.

48. “mr. Bush’s giant Step Back in Space,”

The New York Times,

21 July 1989: p.a28.

49. typical

The New York Times

editorials in this vein include “naSa’s Black hole in Space,” 29

march 1990: p.a22;“rethink Space,” 21 July 1990: p. 20;“those hisses on the Launching pad,” 19
September 1990: p. 22;“Space Yes, Space Station no,” 6 June 1991: p. a24;“naSa’s untouchable
Folly, 14 July 1991: p. e18;“the Wrong Space Station,” 29 July 1992: p.a20;“is naSa among the
truly needy?”, 6 march 1995: p.a14.

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grounded in wonder, imagination, excitement, frontiers, discovery, and a clear goal
worthy of risking human life.

as momentum built in the media and advisory and advocacy bodies for

missions to the moon and mars, naSa began to elaborate and extend the space
station concept to more explicitly embrace exploration.

in the 1990s the agency

started describing the orbital research center as a stepping-stone or a bridge to
future exploration.the language of future spaceflight borrowed from the builder’s
lexicon, as planners worked on “blueprints” and “architectures” for exploration.
adding an overlay of exploration to the space station partially reframed it to disarm
critics and strengthen support.

The NewYorkTimes

editors disagreed with that gloss, as did another naSa critic,

science journalist timothy Ferris, writing for the op-ed page.

The New York Times

charged that the space station was not designed to be a way station to other worlds,
a launching pad for planetary exploration, or a stepping-stone to anywhere. “the
shocking surprise is how little the station would contribute to the nation’s long-range
space goals,”really only life science research.

the week before the first element of the

international Space Station was placed in orbit in 1998, Ferris wrote a critical op-ed
piece titled “naSa’s mission to nowhere.” in his view, the station “touted as a giant
leap into space and a step toward the stars in truth . . . is little more than a motel 6
in low [e]arth orbit . . . . [i]t will be of almost no use in getting to mars, the moon,
or anywhere else—except into debt.” Ferris argued that a far better plan would be
to abandon the space station and mount “an international effort to put a colony on
mars” to make humanity a two-planet species. it could have great scientific value and
also be a grand adventure, a future where we “really get somewhere.”

With effort focused on assembling and operating the space station, the space

exploration initiative withered until another critical discourse moment forced
the issue again. the second Shuttle tragedy, the loss of

Columbia

and crew during

reentry in February 2003, again thrust the purpose of human spaceflight into the
media spotlight for debate whether this type of orbital mission was worth the risk
and cost of human lives.again the public responded to the tragedy by revering the
astronauts as heroic explorers, and editorial cartoonists depicted the apotheosis of
the Shuttle and crew as stars in the heavens.

50. other reports from this period included

Report of the Advisory Committee on the Future of the U.S.

Space Program

(augustine committee) (Washington,Dc: u.S. government printing office,1990) and

America at the Threshold:America’s Space Exploration Initiative

, report of the Synthesis group (Stafford

committee) (Washington, Dc: u.S. government printing office, 1991).

51. Space Yes; Space Station no,”

The New York Times,

6 June 1991: p. a24; “naSa’s untouchable

Folly,”

The NewYork Times

, 14 July 1991: p. e18;“the Wrong Space Station,”

The NewYork Times

, 29

July 1992: p.a20.

52. timothy Ferris,“naSa’s mission to nowhere,”

The NewYorkTimes

,29 november 1998:p.WK9.

53. cartoon series file 2003 in the naSa historical reference collection at naSa headquarters.

Framing the Meanings of Spaceflight in the Shuttle Era

as the exploring Voyager mission starkly contrasted with the earlier Shuttle

tragedy, the call of distant worlds also beckoned after the

Columbia

tragedy.

The New

York Times

responded to the tragedy not with a call to halt human spaceflight but

to redirect it to exploration. “curiosity and the quest for knowledge . . . make it
inevitable that humans will continue to venture into space . . . to engage in the sheer
thrill of exploration and new discoveries.”

Soon robust robots roaming on mars

captured public attention with the vicarious thrill of exploration, in contrast to the
handicapped human spaceflight program. editorial cartoonists depicted the Shuttle
as physically decrepit, geriatric, on life support, with the astronauts idled on earth
while robots explored mars.

in 2004 president george W. Bush urged a new vision for space exploration

for the future beyond the Shuttle and space station. Like the space exploration
initiative 15 years earlier, this presidential charter stimulated planning studies inside
and outside naSa. But this time naSa took the challenge seriously enough to
reorganize for action, aiming for a transformation of both the rhetoric of human
spaceflight and the agency itself. emphasizing sustained and affordable programs to
satisfy the spirit of discovery, planners have been careful not to make exaggerated
claims about the benefits of exploration.human spaceflight now is being framed not
as a practical or a business enterprise but more lyrically, as exploration resonant with
mystery, curiosity, adventure, and reinvigoration after a long stay in earth orbit.

naSa’s slogans for the space exploration vision,“the new age of exploration”

and “a renewed Spirit of Discovery,” herald a return to a cultural tradition of
exploration that expands knowledge and fuels wonder.this framing approach differs
rhetorically from the previous initiative; publicity materials depict people on mars as
explorers, not as miners, and prose addresses compelling questions of scientific and
societal importance more than technology. it is too early to know if or how that
renewal will occur,but the current vision for space exploration seems to be reasonably
framed for broad appeal. it takes human and robotic explorers out of competition and
elevates scientific discovery as their shared goal. more modest in promises than earlier
frames yet potentially more heroic, exploration aims at the worthier purpose that
critics and advocates of human spaceflight have long demanded.

54. “the call of Distant Worlds,”

The New York Times

, 9 February 2003:WK14.

55. cartoon series files 2003–2005 in the naSa historical reference collection at naSa

headquarters.

56.

TheVision for Space Exploration

(Washington,Dc:nationalaeronautics and Spaceadministration,2004).

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Conclusion

this frame analysis of the Shuttle era has focused on the social construction of

meanings for human spaceflight. Five meaning frames have been probed: a new era of
routine transportation, business, scientific research, heroism, and exploration. naSa
was the primary,but not sole,shaper of these meanings;the media,represented here by

The NewYorkTimes

, and the public also exerted a strong influence by critiquing the fit

between frames and reality.When a frame became dissonant with societal expectations,
either naSa subtly revamped it or the media and public pressured for change.

the varied meanings of human spaceflight in the Shuttle era can be interpreted

as arising from processes of frame development, frame extension, frame shifts, and
transformations—all strategies used by social action movements to appeal to and
sustain their supporters and also used by media to give readers a context for thinking
about issues.these frames helped society make sense of the costly, risky endeavor
of human spaceflight by anchoring it in traditions and values that matter to citizens.
curiously, the keenest consensus about the meaning of human spaceflight arose not
from its successes but from the two Shuttle tragedies.these critical moments forced
a societal discourse about the defining purpose of human spaceflight that prompted
reframing and transformation. it seems ironic that robotic planetary missions also
inspired efforts to reframe the meaning of human spaceflight as exploration.

that in the course of more than 30 years the meaning of human spaceflight

has been malleable may attest to societal wisdom and adaptability to changing
circumstances, or it may indicate a restless desire to try something new. in any case,
human spaceflight remains anchored in american culture and resilient in meaning.

hapter

Space in the Post–Cold War

Environment

John m. Logsdon

n a thoughtful report issued in December 1992, one year after the dissolution
of the Soviet union, a blue-ribbon panel of the Vice president’s Space policy

advisory Board observed that “[t]he u.S. civil and national security space programs
have evolved within a policy framework that reflected the international tensions, as
well as the economic and technological constraints and alliance relationships of the
cold War period.”the panel suggested that “[t]he end of the cold War, advances
in technology, and other developments present new opportunities for cooperation
and progress in space.” given this reality, the group found it necessary to “transform
the u.S. space program to meet the challenges of the new post cold War era.”

the

report suggested the steps needed for such a transformation; its recommendations
have as much relevance now as they did in 1992.

the title of this report, “a post cold War assessment of u.S. Space policy,”

carried with it an underlying assumption.that assumption was that the “cold war”—
the protracted geopolitical, ideological, and military struggle that emerged after
World War ii between the united States and its allies and the Soviet union and its
allies, that never erupted into direct military conflict between the united States and
the Soviet union, and that ended with the collapse of the Soviet union in 1991—

1. Vice President’s Space Policy Advisory Board, “A Post Cold War Assessment of U.S. Space Policy: A

Task Group Report,” December 1992, pp. v, vii. During the administration of President George H.
W. Bush, there was in the Executive Office of the President a National Space Council, chaired by
Vice President Dan Quayle and supported by a small staff. Supporting the Space Council was a Vice
President’s Space Policy Advisory Board, which was activated only in mid-1992. The members of
the Task Group that prepared this report, in addition to the author of this paper, were all individuals
with long and diverse experience in the space sector. They included Laurel Wilkening, Chair; James
Abrahamson; Edward “Pete” Aldridge; Joseph Allen; Daniel Fink; John Foster, Jr.; Edward Frieman;
Don  Fuqua;  Donald  Kutyna;  and  Bruce  Murray. The  report  can  be  found  at

http://history.nasa.

gov/33080.pt1.pdf

and

http://history.nasa.gov/33080.pt2.pdf

(accessed 9 November 2006).

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had had an important and continuing influence on the content and character of the
u.S. space program. given the credentials of the panel, the members of which had
long and varied involvement with the space sector, its assessment ought to reflect a
reasoned perspective regarding the impact that the end of the cold war should have
on the way the united States would henceforth carry out its space efforts.

the panel’s report made a key observation that is central to the argument of

this paper—that “the quest for leadership has been a fundamental objective of the
u.S. space program.” Since the end of World War ii, the “u.S. ability to influence
the shape and flow of events around the world has been a core national interest.”
Successive presidents “have recognized the contributions that the u.S. space
program made to the perception of the united States as a leading nation.” With
respect to the cold war,“in the 1960s, and for most of the next two decades, space
leadership clearly meant besting the uSSr in visible, challenging space exploration
endeavors.” But, the panel observed, it was global space leadership that was the basic
goal, with u.S.–Soviet space relations an important, but not the only, venue for
achieving that leadership.at the time the panel report was issued in 1992, the then-
current national space policy stated that “a fundamental objective guiding united
States space activities has been, and continues to be, space leadership.”

if this perspective is valid, then the end of the cold war would not have changed

the importance of space leadership as the underlying goal of the u.S. space program,
although different means for achieving that goal would have had to be pursued.if that is
the case, then the end of the cold war would be less of a watershed in u.S. space policy
than is usually thought.this paper will provide evidence in support of this conclusion.

the relationship between the cold war and u.S. efforts toward leadership in

space is thus far from straightforward. the quest for global leadership, rather than
direct  u.S.–Soviet  competition, has  been  the  primary  political  influence  on  the
evolution  of  the  u.S. space  program. as  the  1992  panel  observed, during  those
times in the 1957–1991 period when the Soviet union loomed as a direct peer
competitor of the united States, global space leadership indeed meant leadership
in comparison to the Soviet union. But at times when u.S.–uSSr relations were
not actively competitive, such as after the cuban missile crisis, the period of u.S.–
Soviet détente during the nixon administration, and the latter years of the reagan
administration  when  the  spirit  of

glasnost

colored relationships between the two

countries, the u.S. quest for space leadership continued.that did not change with
the disappearance of the Soviet union in 1991.

2. ibid., pp. 1-2. national Space policy nSpD-1, 2 november 1989,

http://www.au.af.mil/au/awc/

awcgate/nspd1

(accessed 8 november 2006).

Space in the Post–Cold War Environment

The Cold War and the U.S. Civilian Space Program

the focus of this paper is on the u.S. civilian space program, and particularly

that major portion of the civilian program carried out by naSa. certainly the
u.S.–Soviet strategic and military rivalry during the cold war was a major influence
on u.S. national security space efforts, but those will not be discussed in what
follows. So, rather than repeat the word “civilian” below, the reader should assume
that all references are to the civilian sector of u.S. space activities.the issue to be
discussed is how the intertwining between the desire for global space leadership and
the need to demonstrate space superiority vis-à-vis the Soviet union shaped u.S.
space efforts in the 1957–1991 period.

president Dwight D. eisenhower, even after assessing the international and

domestic political impacts of Soviet space successes in the aftermath of Sputnik

came

to the conclusion that space leadership, particularly in highly visible space achievements,
was not needed to preserve u.S.global standing overall.his efforts to avoid having a u.S.
space program driven primarily by competition with the Soviet union have been well
documented.as two careful analysts commented,“[g]iven the political pressures for an
all-out space race with the Soviet union, the degree to which eisenhower controlled
the space policy agenda in the late 1950s stands as a considerable achievement.” even so,
“[i]t would be inaccurate . . . to suggest that he was ever really in command of events.”
in fact,they conclude,“[e]arly u.S.space policy was indeed heavily determined by what
the Soviet union did.”

the eisenhower administration in January 1960 issued a formal

statement of national space policy that reflected the tension between trying to develop
a u.S. space effort based on its inherent merits and one that was competitive with the
uSSr.the policy suggested that:

[t]o minimize the psychological advantages which the uSSr
has acquired as the result of space accomplishments, select from
among those current or projected u.S.space activities of intrinsic
military, scientific or technological value, one or more projects
which offer promise of obtaining a demonstrably effective
advantage over the Soviets and, so far as is consistent with solid
achievements in the overall space program, stress these projects
in present and future programming.

3. David callahan and Fred i. greenstein,“the reluctant racer: eisenhower and u.S. Space policy,”

Spaceflight and the Myth of Presidential Leadership

, roger D. Launius and howard e. mccurdy, ed.

(urbana, iL: university of illinois press, 1997), pp. 39–40.

4. national aeronautics and Space council, “u.S. policy on outer Space,” 26 January 1960, in

Exploring the Unknown: Selected Documents in the History of the U.S. Civil Space Program

,Volume i,

organizing for exploration, John m. Logsdon et al., ed. (Washington, Dc: national aeronautics and
Space administration Special publication-4407, 1995), pp. 367–368.

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this statement captures well the ambivalent stance of the eisenhower

administration; while desiring a space program of substantive value, it was virtually
impossible to avoid the influence of Soviet achievements in space because of their
propaganda impacts on u.S. interests abroad and on national morale at home.

although president John F. Kennedy is best known with respect to space for

challenging the Soviet union to a race to the moon, the reality is that he, too, was
ambivalent about linking space achievement to cold war competition; he saw space
cooperation between the u.S. and the Soviet union as an alternate path to u.S.
leadership.Kennedy’s first inclination upon taking office was to use space as an area for
tension reduction with the Soviet union; in his inaugural address, the new president
addressed the Soviet leadership, saying “Let both sides seek to invoke the wonders of
science instead of its terrors.together let us explore the stars.”

in the early months

of the Kennedy administration, there was a concerted effort to find feasible areas of
u.S.–uSSr space cooperation. But the 12 april 1961 flight of the first human in
orbit, Soviet cosmonaut Yuri gagarin, and its international and domestic aftermath
convinced Kennedy that he had to compete in space with the Soviet union in order
to avoid a significant loss of u.S. national prestige and to demonstrate that the united
States, not the Soviet union, was the superior technological and military power.

Kennedy’s advisors were blunt in their linkage between space achievement and

cold war competition.in their 8 may 1961 memorandum recommending that Kennedy
set a lunar landing as a national goal, naSa administrator James Webb and Secretary
of Defense robert mcnamara argued that “[o]ur attainments [in space] are a major
element in the competition between the Soviet system and our own . . . . in this sense,
[they] are part of the battle along the fluid front of the coldWar.”as he announced his
decision to go to the moon, Kennedy equated the venture with u.S. leadership, saying
it was “time for this nation to take a clearly leading role in space achievement.”

the tension between the imperative to beat the Soviet union to the moon

and the desire for overall space leadership was implicit in the program that the
president approved in may 1961, which had as its central focus the lunar landing
objective but also called for an across-the-board acceleration of u.S. space efforts.
this tension surfaced in an argument between Kennedy and naSa administrator
James Webb as the president met with his advisors on 21 november 1962 to discuss
the naSa budget. Kennedy declared “[t]his is important for political reasons,
international political reasons.this is, whether we like it or not, in a sense a race . . . .

5. public papers of the presidents of the united States: John F. Kennedy, 1961 (Washington, Dc: u.S.

government printing office, 1962), p. 2.

6. See John m. Logsdon,

The Decision to Go to the Moon: Project Apollo and the National Interest

(cambridge, ma: mit press, 1970) for a detailed account of this decision.

7. James e.Webb and robert mcnamara,“recommendations for our national Space program:changes,

policies, goals,” 8 may 1961, reprinted in Logsdon,

Exploring the Unknown

, p. 444. John F. Kennedy,

“urgent national needs,” Speech to a Joint Session of congress, 25 may 1961 in ibid., p. 453.

Space in the Post–Cold War Environment

everything that we do ought to really be tied into getting onto the moon ahead of
the russians.”Webb retorted “Why can’t it be tied to preeminence in space?”

as he prepared to leave the meeting, the president asked Webb to prepare a

letter stating his position on why space preeminence, and not just being first to the
moon, should be the country’s goal:“i think in the letter you ought to mention how
the other programs which the agency is carrying out tie into the lunar program,
and what their connection is, and how essential they are to the target dates we’re
talking about, and if they are only indirectly related, what their contribution is to
the general and specific things possibly we’re doing in space.”

Webb’s letter was sent to the president on november 30. in it,Webb said that in

his view“[t]he objective of our national space program is to become preeminent in all
important aspects of this endeavor and to conduct the program in such a manner that
our emerging scientific, technological, and operational competence in space is clearly
evident.”Webb emphasized that “[t]he manned lunar landing program, although of
highest national priority, will not by itself create the preeminent position we seek.”

president Kennedy seems to have accepted the basic argument made by James

Webb—that preeminence in space should be the guiding objective of the national space
program. in a 17 July 1963 press conference, Kennedy responded to a press report that
the Soviet union was not planning to send its cosmonauts to the moon, saying,“the
point of the matter always has been not only of our excitement or interest in being
on the moon; but the capacity to dominate space, which would be demonstrated by a
moon flight,i believe,is essential to the united States as a leading free world power.that
is why i am interested in it and that is why i think we should continue.”

John Kennedy never gave up on the hope that the space relationship between

the u.S. and the Soviet union could be changed from competition to cooperation.
With the october 1962 successful outcome of the cuban missile crisis in hand, in
1963 Kennedy sought to engage the Soviet leadership in reducing global tensions
through such agreements as the Limited test Ban treaty. Space was part of this “peace
offensive.”on 20 September 1963,Kennedy went before the general assembly of the
united nations and said “[i]n a field where the united States and the Soviet union
have a special capacity—in the field of space—there is room for new cooperation . . .
i include among these possibilities a joint expedition to the moon.”

8. “transcript of presidential meeting in the cabinet room of the White house, november 21, 1962.”

this transcript can be found at

http://history.nasa.gov/JFK-Webbconv/

(accessed 7 november 2006).

9. James e. Webb, administrator, naSa, Letter to the president, 30 november 1962, in Logsdon,

Exploring the Unknown

, p. 461.

10. “news conference 58,” John F. Kennedy Library and museum,

http://www.jfklibrary.org/Historical+Resources/

Archives/Reference+Desk/Press+Conferences/003POF05Pressconference58_07171963.htm

(accessed 25 august 2006).

11 public papers of the presidents of the united States: John F. Kennedy, 1963, (Washington, Dc: u.S.

government printing office, 1964), pp. 567–568.

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Kennedy’s top advisor theodore Sorenson later explained this apparent

switch in policy:

i  think  the  president  had  three  objectives  in  space. one  was
to  ensure  its  demilitarization. the  second  was  to  prevent  the
field to be occupied [by] the russians to the exclusion of the
united States.and the third was to make certain that american
scientific prestige and american scientific effort were at the top.
those three goals all would have been assured in a space effort
which culminated in our beating the russians to the moon.all
three of them would have been endangered had the russians
continued to outpace us in their space effort and beat us to the
moon. But  i  believe  all  three  of  those  goals  would  also  have
been assured by a joint Soviet-american venture to the moon.
the difficulty was that in 1961, although the president favored
the  joint  effort,  we  had  comparatively  few  chips  to  offer.
obviously the russians were well ahead of us at that time . . . .
But by 1963 our effort had accelerated considerably.there was
a very real chance we were even with the Soviets in this effort.
in addition, our relations with the Soviets, following the cuban
missile crisis and the test ban treaty, were much improved—so
the president felt that, without harming any of those three goals,
we  now  were  in  a  position  to  ask  the  Soviets  to  join  us  and
make it efficient and economical for both countries.

Like Dwight eisenhower before him, John F. Kennedy tried to avoid direct

competition with the Soviet union as the defining feature of the u.S. space effort,
in his case by trying several times during his brief presidency to turn space into
an area for cooperative tension reduction rather than zero-sum competition. even
so, much more than eisenhower, Kennedy was willing to accept the alternative of
u.S.–uSSr competition if the cooperative option was not feasible. it is impossible
to know what might have happened in this respect if Kennedy had been able to
complete  two  terms  as  president. But  with  his  assassination, the apollo  program
came  to  be  seen  as  one  of  his  legacies, and  there  was  no  possibility  of  shifting
it  to  a  cooperative  undertaking. getting  to  the  moon  before  the  Soviet  union
became the defining goal of the u.S. space effort between 1963 and 1969.When, in
1968, it appeared as if the Soviet union might send cosmonauts

around

the moon,

without landing, before the united States, the apollo schedule was modified to
insert the apollo 8 circumlunar mission in December 1968. although the public
record supports the argument that this shift was made for programmatic reasons

12. theodore Sorenson interview by carl Kaysen, 26 march 1964, in John F. Kennedy presidential

Library, Boston, ma.

Space in the Post–Cold War Environment

having to do with the fact that the lunar landing module was not ready for a
scheduled December 1968 test flight, some (including members of the apollo 8
crew) have suggested that the threat of being beaten to the moon by the Soviets was
an important factor in the decision to fly apollo 8 to lunar orbit.

the next major opportunity for determining the character of the u.S. space

effort came in 1969, as it became clear that the u.S. would soon achieve Kennedy’s
goal of a lunar landing “before the decade is out.” on February 13 of that year the
new president, richard m. nixon, asked for a “definitive recommendation on the
direction which the u.S. space program should take in the post-apollo period.”the
president chartered a Space task group chaired by Vice president Spiro agnew to
prepare that recommendation; the group’s report was submitted to president nixon
on September 15. it noted that “for the short term, the race with the Soviets has
been won” and that “[p]ublic frustration over Soviet accomplishments in space, an
important force in support of the nation’s acceptance of the lunar landing in 1961,
is not now present.today, new Soviet achievements are not likely to have the effect
of those in the past.”Based on this reasoning, the Space task group proposed that
the  political  goal  of  the  post-apollo  program  should  be “to  promote  a  sense  of
world  community” by  expanded  international  participation  in  u.S. space  efforts,
rather  than  to  pursue  another  unilateral  demonstration  of  u.S. strength  through
space achievements.

the absence of visible Soviet competition in space at the end of the 1960s

made such an approach feasible and reduced somewhat the political saliency of
the u.S. space effort to overall u.S. foreign policy objectives.

as they discussed

the significant cuts to the naSa budget that had been made in the immediate
aftermath of the apollo 11 and 12 missions, president richard nixon told naSa
administrator thomas paine that “[o]ne of our main troubles . . . is that the Soviets
have not been flying dramatic missions for a long time” and that “[i]t was an
unfortunate truth that new Soviet spectaculars were what the public needed to get
interested in u.S. space activities.”

Such an approach reflected a more muted view of the impact of the cold war

per se on u.S. space efforts. rather than make bilateral space competition “part of
the battle along the fluid front of the cold War,”the united States would use its space

13. See robert Zimmerman,

Genesis: The Story of Apollo 8

(new York: Dell, 1999) for a discussion

of the various factors leading to the decision to fly the mission.

14. Space task group report to the president, “the post-apollo Space program: Directions for

the Future,” September 1969,appendix a, pp. 7, 16, 27.

15. although the u.S. intelligence community was aware of Soviet development of systems

capable of sending cosmonauts to the moon and of the failures of those systems, this information
was not publicly available, and the Soviet union denied that it had a lunar landing program.

16. thomas o. paine, “meeting with the president,” 22 January 1970; memorandum for the record,

22 January 1970, naSa collection, university of houston, clear Lake Library.

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capabilities as part of its strategy of global leadership, potentially in partnership with
many other nations.as long as the Soviet union remained a strong military and political
power, there would be a challenge to u.S. leadership, but the events of the 1960s, from
the cuban missile crisis to the apollo 11 lunar landing, had changed the nature of the
cold war threat and its impact on u.S.space activities.the link between space capabilities
and the u.S. global image was not lost on nixon and his closest advisors. one of them,
caspar “cap” Weinberger, commented as additional cuts to the naSa budget were
being contemplated in mid-1971 that such cuts would provide confirmation that “our
best years are behind us,that we are turning inward,reducing our defense commitments,
and voluntarily starting to give up our super-power status, and our desire to maintain
world superiority.” nixon responded,“i agree with cap.”

Weinberger’s memorandum came in the midst of the debate over whether to

develop the Space Shuttle as the next major u.S. space program.there is little specific
mention of u.S.–Soviet competition in the arguments naSa put forth in trying to
convince theWhite house to go forward with the Shuttle,although naSaadministrator
James Fletcher did suggest in his “best-case” paper that “man has learned to fly in space,
and man will continue to fly in space.this is a fact. and, given this fact, the united
States cannot forgo its responsibility—to itself and to the free world—to have a part in
manned space flight.” he added,“For the u.S. not to be in space, while others do have
men in space, is unthinkable, and a position which america cannot accept.”

rather than continue to compete with the Soviet union in space during the

1970s, the united States pursued a cooperative strategy. the Space task group had
suggested that “[i]n the case of the uSSr, experience over the past ten years makes
clear that the central problem in developing space cooperation is political rather than
technical or economic.”

as part of its strategy of détente with the Soviet union, the

nixon administration approved the apollo–Soyuz test project; the 1975 “handshake
in space” was intended to symbolize a new era in u.S.–Soviet relations, both in space
and overall.this initial high-profile cooperative venture was potentially to be followed
by a docking between a Space Shuttle and a Soviet

Salyut

space station and then by

joint development of a larger space station.

however, this cooperation fell victim to

increased u.S.–uSSr tensions in the wake of the Soviet invasion of afghanistan, and
was never pursued.

17. caspar Weinberger, memorandum for the president, “Future of naSa,” 12 august 1971 in

Logsdon,

Exploring the Unknown

, p. 547.

18. James c. Fletcher,“the Space Shuttle,” 22 november 1971 in ibid., p. 556.
19. Space task group, p. 17.
20

a. p. aleksandrov, uSSr academy of Sciences, and a. m. Lovelace, naSa, “agreement between
the uSSr academy of Sciences and the national aeronautics and Space administration of the uSa on
cooperation in thearea of manned Space Flight,”11 may 1977,in

Exploring the Unknown:Selected Documents

in the History of the U.S. Civil Space Program

, Volume ii, external relationships, John m. Logsdon, Dwayne a.

Day,and roger D.Launius,ed.(Washington,Dc:naSa Special publication 4407,1996),p.215.

Space in the Post–Cold War Environment

Like Dwight eisenhower 20 years earlier, president Jimmy carter was not

convinced that civilian space leadership was an essential element of u.S. global power.
in his first space policy statement, issued on 11 may 1978, carter listed “united States
space leadership” as his third priority for civil space efforts. Later that year, another
White house policy statement noted that “[i]t is neither feasible nor necessary at this
time to commit the uS to a high-challenge,highly-visible space engineering initiative
comparable to apollo.”

in this view, carter was an exception to the judgment of the

four presidents who had preceded him that space leadership was important.

as he entered the White house in 1981, president ronald reagan brought

with him a strongly anticommunist perspective that colored his stance toward the
Soviet union in the first several years of his presidency.the u.S.–Soviet agreement on
space cooperation that had been initiated in 1972 and renewed in 1977 was allowed
to lapse in 1982. in the first reagan administration statement of space policy, issued
that same year,“space leadership” was once again identified as one of the “basic goals”
of u.S. space activities.

as naSa sought presidential approval for development of a space station in late

1983, administrator James Beggs told president reagan that “president Kennedy’s
decision to go to the moon chartered a course that resulted in leadership in space
for the united States”; that “president nixon, against the wishes of many, continued
america’s commitment to leadership in space by approving the Space Shuttle”; and
that “this focus on leadership in space was reaffirmed in your Space policy.” Beggs
suggested that “[i]n the 1990s, leadership in space will have a new dimension,
something perhaps that presidents nixon and Kennedy could not foresee when they
committed america to leadership in space . . . [t]he new dimension will be the
presence of the private sector in space.” Beggs referred to the

Salyut

space station as

“the centerpiece of the Soviet program” and said, “[W]hat worries me is what the
Soviets are up to. What are they planning to fly in the late 1980s and the 1990s?
Will they be successful in their plans to dominate space?” Beggs concluded his sales
pitch by noting that “[o]ur leadership in space these past 25 years told the world
that america was strong and that america accepted the challenge of space, and that
she was equal to the responsibilities of leadership.” asking the president to approve
space station development, Beggs concluded his presentation by saying, “[t]he
stakes are enormous: leadership in space for the next 25 years.”the final viewgraph
accompanying his presentation to the president showed an artist’s conception of the

21. presidential Directive/nSc-37, “national Space policy,” 11 may 1978 in Logsdon,

Exploring

the Unknown

, p. 574; and Zbigniew Brzezinski, presidential Directive/nSc-42,“civil and Further

national Space policy,” 10 october 1978, in ibid., p. 576.

22. White house, national Security Decision Directive number 42, “national Space policy,” 4 July

1982 in Logsdon,

Exploring the Unknown

, p. 590.

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space station with the highlighted legend “a highly visible symbol of u.S. strength.”

once again, the goal of space leadership and cold war competition were intertwined
for a sympathetic president.

president reagan not only approved space station development;as he announced

his decision in his 25 January 1984 State of the union address, he also said,“naSa
will invite other countries to participate so we can strengthen peace, build prosperity,
and expand freedom for all who share our goals.”

although canada and europe

had made contributions to the development of the Space Shuttle in the 1970s, this
announcement escalated international cooperation in the development of the next
major u.S. space program to a central feature of u.S. space strategy, marking a definite
transition from the unilateral demonstration of national power that had fueled the
apollo program to an approach where the u.S. would demonstrate its leadership as
the managing partner in a long-term, highly visible, multilateral undertaking. Still, the
invitation to participate was limited to u.S. allies; the existence of the cold war still
conditioned the u.S. move toward a cooperative approach.

By the end of ronald reagan’s second term in office, the end of the cold war

was well in sight,as the reforms of mikhail gorbachev took hold and the Soviet union
struggled with its internal economic and political problems. even so, in the aftermath
of the Soviet launch of its very large energia booster in may 1987, following on the
launch of the core of the mir space station a year earlier,time magazine headlined the
cover story of its 5 october 1987 issue:“Surging ahead:the Soviets overtake the u.S.
as the no. 1 Spacefaring nation.”the article suggested that the Soviet union “had
surged past the u.S. in almost all areas of space exploration” and that “if unchallenged,
moscow is likely to become the world’s dominant power in space by the twenty-first
century.”

twenty-five years earlier, this sort of report might have provoked a debate

over how to respond to a new Soviet space challenge, but there was no such reaction
in 1987. the u.S. space effort was focused on recovering from the January 1986
challenger accident and on getting started with the space station, and Soviet space
achievements were not perceived as a major threat to u.S. interests.

rather, the united States revived its space cooperation agreement with the

Soviet union in 1987, and a year later mikhail gorbachev suggested to ronald

23. naSa,“revised talking points for the Space Station presentation to the president and the cabinet

council,” 30 november 1983 in Logsdon,

Exploring the Unknown

, pp. 595–600.

24. president ronald reagan,“Speech on the State of the union,” 25 January 1984,

http://www.reagan.

utexas.edu/archives/speeches/1984/12584e.htm

(accessed 8 november 2006).

25. michael D. Lemonick, “Surging ahead: the Soviets overtake the u.S. as the no. 1 Spacefaring

nation,” in

Time

, 5 october 1987,

http://www.time.com/time/magazine/printout/0,8816,965658,00.

html

(accessed 13 September 2006).

Space in the Post–Cold War Environment

reagan that the two countries cooperate in a human mission to mars.

the final

reagan administration statement of space policy, issued on 11 February 1988, stated
that “[a] fundamental objective guiding united States space activities has been, and
continues to be, space leadership.”the statement went on to say that “[L]eadership in
an increasingly competitive international environment does not require united States
preeminence in all areas . . . . it does require united States preeminence in key areas of
space activity critical to achieving our national security, scientific, technical, economic,
and foreign policy goals.”

The Impact of the End of the Cold War:

Leadership Through Cooperation

this lengthy excursion into the three-way relationship between the cold war,

the u.S. quest for space leadership, and the choices that have defined the u.S. civilian
space program was intended to demonstrate that even before the end of the cold
war the quest for global leadership, rather than direct u.S.–Soviet competition, had
been the primary political influence on the evolution of the u.S. space program.
cold war competition was, of course, the single most important contextual factor
influencing this quest for leadership in the 1957–1991 period, but it was a secondary,
not fundamental, consideration.

if this analysis is accepted, then the end of the cold war should have had a

significant, but not decisive, impact on space in the post-cold war era. an obvious
impact, of course, was that the russian Federation, which inherited most Soviet
space capabilities, became a politically attractive space partner for the united States
rather than a peer competitor. this was especially the case, given the economic
problems faced by the new russian government headed by Boris Yeltsin and the
desire of president george h.W. Bush and the successor clinton administration to
support Yeltsin’s democratic reforms.

the united States was quick to recognize the changed situation. in 1992, the

united States and russia reached initial agreement to have the u.S. Space Shuttle
rendezvous with the Soviet mir space station; this initiative resurrected a cooperative
concept that had been agreed to 15 years earlier. then, in 1993, the White house
embraced a proposal suggested by the naSa administrator and the russian space
leadership to invite russia to join the space station program together with the united
States “friends and allies” that had been partners in the program since its inception. in

26. memorandum of conversation, “the president’s First one-on-one conversation with general

Secretary gorbachev,” 29 may 1988,

http://www.margaretthatcher.org/archive/displaydocument.

asp?docid=110610

(accessed 8 november 2006).

27. White house, office of the press Secretary, “Fact Sheet: presidential Directive on national Space

policy,” 11 February 1988, in Logsdon,

Exploring the Unknown

, p. 602.

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essence, the u.S. and the Soviet union merged their future human spaceflight efforts;
the activity which had been the central focus for competition for more than 30 years
became a highly visible arena for post-cold war cooperation.

a more fundamental impact of the end of the cold war was the need for a

redefinition of the meaning of space leadership, from being superior in space to
the Soviet union in all or most areas, to some other definition. the 1992 report
“a post cold War assessment of u.S. Space policy” recognized this need. it noted
that “[W]ith the end of the cold War . . . the term ‘space leadership’ takes on new
meaning.” it suggested that “[t]o remain a leading nation in space continues to be
in the u.S. interest.” the report also recognized that “[S]pace leadership must be
earned. By maintaining unsurpassed technological capabilities in key areas and using
those capacities effectively and efficiently, the united States will have the capability
to act independently, visibly, and impressively when and where it chooses.”the task
group concluded that

Future  space  leadership,  then,  requires  combining  challenge,
openness, quality  of  execution, and  productive  application  of
results. proceeding  ahead  with  a  well-conceived, successfully
executed national space program aimed at concrete objectives
that are scientifically, economically, and socially beneficial, and
that  serve  important  u.S. interests, is  the  best  way  to  ensure
leadership  in  space. Leadership, in  this  sense, becomes  both  a
goal in itself and the result of excellence in formulating goals for
space and achieving them as planned.
it  is  this  concept  of  leadership  that  should  guide  future  u.S.
activities in space.

although there had been a growing emphasis on u.S. leadership in cooperative

space activities beginning with the 1969 Space task group report, which increased
with the 1984 decision to make the space station a cooperative undertaking, the 1992
report suggested that the u.S. develop a “cooperative strategy” as a “central feature of
its future approach to overall space policy.”the panel recommended that

the united States should take the initiative in shaping a common
international  agenda  in  selected  areas  of  civilian  and  national
security space activity . . . . enhanced international cooperation
should  be  sought  not  only  for  its  programmatic  benefits, but
also  because  it  is  the  preferred  way  for  the  united  States  to
influence  the  direction  of  future  space  undertakings  around

28. For a discussion of the evolution of u.S.–russian cooperation in human spaceflight, see John

m. Logsdon and James millar, “u.S.–russian cooperation in human Spaceflight: assessing the
impacts,”

Space Policy

(august 2001).

29. Vice president’s Space policy advisory Board,“a post cold War assessment,” pp. 13, 15.

101

Space in the Post–Cold War Environment

the world. Broader national security, political, technological, and
economic benefits for the united States can flow from a carefully
crafted ‘cooperative strategy’ . . . .

in the 15 years since these words were written, they appear to have been

reflected in the u.S. strategy for space. a statement of national space policy issued
in 1996 reflected a definition of leadership as both a desirable goal and a product
of excellence in formulating and executing the nation’s space program. that
policy noted that “[F]or three decades, the united States has led the world in the
exploration and use of outer space” and that “[W]e will maintain this leadership
role by supporting a strong, stable, and balanced national space program.”the 1996
policy also recognized the desirability of enhanced international cooperation, saying
that “[t]he united States will seek greater levels of partnership and cooperation in
national and international space activities.”

Whether the u.S. civilian space program has over the past 15 years been

implemented at the level of excellence that translates into recognized leadership is,
at minimum, questionable, but that is a topic for a different paper.the u.S. approach
to fulfilling its leadership role in the partnership now known as the international
Space Station has also had its ups and downs. in recent years, the national and naSa
leadership appear to have recognized the importance of getting the space program
back on a positive track if the united States is to be more than a leader in rhetoric.
the most important step in this direction, of course, was the White house decision
to make human and robotic exploration of the solar system the overriding goal of the
u.S.civilian space program.international participation in space exploration under u.S.
leadership was an important element of that decision.theWhite house also made the
tough decision that its leadership role in space required the united States to honor
its international commitments with respect to the space station, even as pressures
to retire the Space Shuttle and accelerate progress in space exploration argued for a
different decision.as the 1992 report suggested, naSa has taken the lead in crafting
a “cooperative strategy” with respect to space exploration, and space agencies from
around the world are working with naSa to flesh out the substance of that strategy.

recent events, then, suggest that the 1992 assessment of what actions would

best serve u.S. interests with respect to the contributions of its space efforts to broader
national goals is now being pursued.theVice president’s Space policy advisory Board
concluded that the end of the cold war called for a u.S. space program based on
excellence in formulation and execution, one which was carried out in concert with
other nations. the most recent national space policy, approved on 31 august 2006,
states that the first priority goal of the u.S. in space is to “strengthen the nation’s

30. ibid., p. 42.
31. the White house, national Science and technology council,“Fact Sheet: national Space policy,”

19 September 1996,

http://history.nasa.gov/appf2.pdf

(accessed 9 november 2006).

102

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space leadership.” the policy also states that it is in the u.S. interest to “encourage
international cooperation with foreign nations and/or consortia on space activities that
are of mutual benefit and that further the peaceful exploration and use of space,as well
as to advance national security, homeland security, and foreign policy objectives.”

Leadership in space has been an important goal for the united States for almost

50 years. the path to that leadership for the first 30-plus years of the Space age,
during the cold war, was primarily by besting the Soviet union in visible space
achievements. even so, from at least 1969 on, there has been a cooperative aspect
to u.S. space strategy.With the end of the cold war, leadership in space cooperation
became the primary path to leadership overall.that shift in focus, from competition
to cooperation, is the primary space impact of the end of the cold war.

32. the White house, office of Science and technology policy,“Fact Sheet: national Space policy” 6

october 2006,

http://www.ostp.gov/html/US National Space Policy.pdf

(accessed 13 July 2007).

hapter

The

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as Icon: the Cultural and

Political Significance of Yang Liwei,

China’s First Space Traveler

James r. hansen

n 2005 the government of the people’s republic of china (prc) sponsored the
development of a new video game featuring heroes from chinese history. the

plan was to wean chinese young people off their growing addiction to Western
video games and replace it with something appropriate to chinese values. unlike
american video games in which players slay dragons, fight aliens, beat up bad guys
(or, more likely, be the bad guys themselves), in the new game “chinese heroes”
players click on icons of select chinese heroes to learn about their noble experiences
and carry out healthy and constructive tasks like moving bricks and darning socks.
an official with china’s general administration of press and publication, which
sponsored the game’s development by a Shanghai gaming company, hoped the game
“will teach players about chinese ethics.”

Five heroes are featured in the video game:

• Bao Zheng: an eleventh century statesman renowned for his battle against

government corruption, strong sense of fair play, ability to tell truth from
falsehood, and determination to mete out justice without fear or favor;

• Yue Fei, a twelfth century general who, with only 800 soldiers, defeated an

invading army 500,000-strong.Before he left home to join the army at age 18,
his mother allegedly tattooed four characters on his back which meant “Serve
the country loyally,” a constant reminder to protect china at all costs;

• Zheng he, the eunuch admiral of the ming dynasty whose “treasure ships”

sailed across the indian ocean to africa in the early fifteenth century;

1. Kou Xiaowei,an official with china’s generaladministration of press and publication,quoted in“game

on for chinese heroes,” 29 august 2006,

http://english.aljazeera.net

(accessed 12 June 2006).

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• Zheng chenggong, a pirate who seized taiwan from Dutch colonial rule in

1661; and

• Lei Feng, the people’s Liberation army soldier and faithful party member

credited by chairman mao for his cheerful selflessness and modesty.

how popular the game “chinese heroes” will become for the estimated

20 million chinese now playing video games daily is questionable. it may not
be serious competition for american video games such as “grand theft auto,” in
which the starring role is played by an “unstoppable bad-ass” who wreaks havoc
in a gritty miami Vice-like environment and where the player can customize his
character with every manner of tattoo,“jack” a cop’s car, watch a pimp “beat down”
a prostitute, and start an epic gun battle using a flamethrower, grenades, sniper rifle,
colt-45 pistol, aK-47, or sawed-off shotgun.the director of the Beijing internet
addiction treatment centre, tao ran, has expressed doubt that chinese heroes
will appeal very much to china’s youth, saying, “teenagers seek adventure and
fulfillment in dramatic and skill-demanding games. if hero games do not focus on
killing and domination, gamers will definitely not play them.”

one very powerful way that china has successfully combined graphic violence

with its traditional appreciation for certain select types of heroes is in its martial arts
movies. notable within this extremely popular genre is the 2003 oscar-nominated
film,

Hero

, the most expensive chinese film ever made. Set during the Warring

States period (shortly before the unification of china in the third century Bc), the
film tells the story of assassination attempts on the king of chin by three legendary
warriors who seek revenge for chin’s subjugation of their lands.the king justifies
his actions as necessary for the peace of china, a justification that the sole surviving
assassin (played by actor Jet Li) ultimately understands and accepts. only a strong
leader, the first “emperor,” can unite all of china, and only through unification can
the chinese people ever escape civil war and find peace.

Western critics assailed the film’s message as “totalitarian” and “pro-chinese

reunification” (vis-à-vis taiwan), and for promoting a “sinister ethic that blatantly
justifies the murder and repression of political opponents.”that is why, critics said,
the Beijing government so strongly endorsed the film—because the chin emperor
stood for today’s rulers.

But other observers viewed the film differently, saying

that it was a tale of sacrifice and love, one that embraced confucian values and the
ancient chinese ethic that the very best people in society must care for the people
first. as director Zhang Yimou said about his film, “the final assassin understands

2. ibid. See also “a clash of cyber cultures,”

The Standard: China’s Business Newspaper

, 24 September

2005,

http://www.thestandard.com.hk

(accessed 12 June 2006).

3. See, for example, Shelly Kraicir’s review of the film,“absence as Spectacle: Zhang Yimou’s ‘hero,’”

Cinema Scope Magazine

5 (Spring 2003): p. 9.

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that if he doesn’t kill the emperor, it’s better for the people, because the civil war
will end.the number one martial arts fighter decides not to kill the king, for the
sake of peace.”

ten months after the film opened in hong Kong, the chinese launched

another “hero,” this time in the form of 38-year-old Yang Liwei. the rocket
carrying the

yˇuhángyuán

(or chinese word for astronaut) was a Long march 2F,

one in a series of guided missiles named after the historic journey of 6,000 miles of
1934–1935 in which an army of 80,000 soldiers led by mao Zedong, surrounded
by the nationalist army of chiang Kai-shek, fled their bases in south china and
escaped to the north, with only some 8,000 surviving the trek. the Long march
became the central metaphor of chinese revolutionary mythology and a source of
inspiration for all subsequent red guards.

after several years of speculation about the possibility of a piloted spaceflight

by the chinese, the launch finally came on 15 october 2003, 56 years to the month
after the launch of the world’s first satellite, the Soviet union’s Sputnik (4 october
1957), from Jiuquan Satellite Launch center on the high gobi Desert, some 1,600
kilometers northwest of Beijing—about as far off the beaten path as one can find
even in a country as large as china.Yang Liwei’s spacecraft, the

Shenzhou V

(Divine

Vessel V), closely resembled the russian

Soyuz

, which hardly surprised Western

observers given that chinese engineers had been working closely with the russians
since 1994 and had benefited from access to complete blueprints and the full-scale

Soyuz

spacecraft.

4. Zhang Yimou, quoted in Liza Bear,“Fighting for peace (and art Films), Zhang Yimou on ‘hero,’”

27 august 2004,

indieWIRE, http://www.indiewire.com

(accessed 12 June 2006).

5. on the Long march of 1934–1935, see harrison e. Salisbury, t

he Long March: The Untold Story

(new York: harper & row, 1980); Jean Fritz,

China’s Long March

(new York: putnam, 1988); and

Benjamin Yang,

From Revolution to Politics: Chinese Communists on the Long March

(Boulder, co:

Westview press, 1990). For a firsthand chinese account of the Long march, see changfeng chen,

On the Long March with Chairman Mao

(Beijing: Foreign Language press, 1972.) on the Long

march family of rockets, see hormuz p. mama,“china’s Long march Family of Launch Vehicles,”

Spaceflight 37

(September 1995).

6. the best overview of the chinese space program can be found in Brian harvey,

China’s Space

Program: From Conception to Manned Spaceflight

(chichester, u.K.: Springer, 2004). harvey also

provides a good bibliography. one of the most active publishing analysts of the chinese missile
and space programs is great Britain’s philip S. clark. in the u.S., James r. oberg follows chinese
developments closely; several of his papers have appeared in ieee

Spectrum

. See also “testimony

of James oberg: Senate Science,technology, and Space hearing: international Space exploration
program, 27 apr. 2004,”

http://www.spaceref.com

. See also chen Lan,“Dragon in Space:a history of

china’s Shenzhou manned Space programme,”

Spaceflight

46 (april 2004): pp. 137–144.

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inside the

Shenzhou V

spacecraft, the

taikonaut

, as Western journalists had come

to call a chinese astronaut,

spent a little more than 21 hours in space, orbiting earth

14 times before reentering the atmosphere and parachuting down onto the steppe
of central inner mongolia. the instant Yang Liwei made orbit over the pacific at
9:10 a.m. Beijing time on october 15, the chinese knew they had accomplished
something remarkable: their countryman,Yang Liwei, had made the history books,
joining the elite company of russia’s Yuri gagarin and america’s alan Shepard as
“first men” into space.

Who was Yang Liwei? What was his background and training? Why was he

selected for china’s pioneering mission? how did chinese society react to the
news of his spaceflight? What sort of icon did Yang become; what sort of hero
did he represent? Just as there is no way to fathom what the u.S. space program
has meant to america without understanding what americans wanted from their
heroes—what they projected onto their heroes over the past 45 years—there is also
no way to understand what the chinese are after in space, or here on earth, without
understanding the iconography that has developed around their astronauts.

What is known about Yang Liwei in the West is what official chinese sources

have told us.

Yang was born on 21 June 1965,in northeast china’s Lioaning province,

a major industrial region not far from the Yalu river that forms the chinese border
with north Korea.Yang’s mother was a teacher and his father an economist,meaning
that his family, by chinese standards, was by no means humble or poor. according
to official biographies,Yang had a “happy and tranquil childhood” and was “very
intelligent and a good team leader of his playmates.”

excelling in mathematics

and math competitions,Yang scored high on entrance exams and went to the best

7. the Western term taikonaut blends the chinese word for outer space (taikong) with the english

word “astronaut.” the term is not used by the chinese themselves. apparently the term was coined
in may 1998 by a malaysian journalist, chiew Lee Yih, who first used it in newsgroups.the chinese
word term for space, taikong, literally means “great emptiness.” in the chinese language itself, the term

yˇuhángyuán

(“universe navigator”) has long been used for“astronaut.”official english texts issued by the

chinese government actually use the term “astronaut.”

8. “china puts its First man in Space,” BBc news (15 october 2003),

http://www.news.bbc.co.uk

;

“World acclaims Launch,” china Daily, 13 october 2003,

http://www.chinaembassy.org

; John

pomfret,“china Launches its First manned Space mission,”

The Washington Post

, 15 october 2003:

p. a1; Brian Berger, “Shenzhou 5 Launch introduces new Dynamic in Space,”

SPACENEWS,

20 october 2003: p. 6; Deborah Zabarenko, “united States Shrugs off china Space Launch,”

Reuters English News Service

, 22 January 1999; philip S. clark,“Shen Zhou 5—Flying the red Flag,”

Spaceflight

46 (February 2004): pp. 54–60; tim Furniss, “china celebrates First manned orbital

mission,”

Spaceflight

45 (December 2003): pp. 488–489.

9. on what is known about the life of Yang Liwei prior to his

Shenzhou V

mission, see Brian harvey,

China’s Space Program

, pp. 2–14. See also “the making of china’s astronaut,” Xinhaunet, 17 october

2003,

http://www.chinaview.com

, and “First chinese astronaut talks about eight Years in training,”

24 July 2006,

http://www.spacedaily.com

(both accessed 12 June 2006).

10. “the making of china’s astronaut,” 17 october 2003,

http://news.xinhuanet.com

(accessed 12 June 2006).

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middle school in his county. Joining the people’s Liberation army at age 18,Yang
was recruited by one of the chinese air Force’s top aviation colleges, where he
earned the highest grade in every class he took. upon graduation, he became a
fighter pilot and was rated as an “elite” member of his air Force division.

if there is a chinese equivalent to “the right Stuff,”Yang Liwei had it. as an

attack aircraft pilot, he demonstrated his crisis management during a very low-
flying exercise over northwest china’s barren Xinjiang region. Losing one of his
jet engines,Yang, “with great calmness,” radioed his situation, skillfully climbed to
4,921 feet (1,500 meters), managed to get his plane over snow-covered mt.tien
shan, and landed “without hesitation”

even after his other engine had flamed

out. climbing out of the cockpit, dripping wet with sweat, amid cheers from his
colleagues,Yang was greeted by his division commander who awarded him with an
on-the-spot promotion.

in all, Lt. col.Yang accumulated more than 1,350 hours of flying time in the air

Force. in 1996, from a pool of 1,500 candidate pilots, he was chosen for spaceflight
training along with 12 others, and went to a special institute in Beijing where he
passed a rigorous 30-course curriculum.“to establish myself as a qualified astronaut,”
Yang was later quoted as saying,“i studied harder than even in my college years and
received tougher training that even that which made me a fighter pilot.”

During

the first two years of training, he reportedly never went to bed before midnight
and rarely even left the training center. in a bid to improve his english, he often
called his wife from his apartment in Space city, asking her to help him practice.
So dedicated was he to training that his wife once found him moving rapidly in
circles at home on a swivel chair. his training directors described him as “a sober-
minded person with a superb capability for self-control.” in a critical series of final
simulations leading to his selection for

Shenzhou V

,Yang identified and remedied all

the “faults” his instructors had set up for him.after each, when the instructor asked
him whether he had made any errors,Yang confidently replied,“no errors at all!”a
psychologist who asked him how he would feel if he were to fly a real spacecraft got
the answer,“i’ll be more relaxed than talking to you, so let me go for the flight!”

the chinese government tried to keep the identity of its first taikonaut a

secret, but a few days before the launch Yang’s identity was discovered and his picture
published in the hong Kong newspaper

Wen Wei Po

originally, Beijing agreed to

a live broadcast of the launch, but apparently lost its nerve at the last minute.thirty
minutes after

Shenzhou V

successfully reached orbit, the government’s flagship

11. ibid.
12. ibid.
13. ibid.
14. harvey,

China’s Space Program

, p. 2.

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television station cut into regular programming to make the proud announcement.
televised  replays  of  the  launch  quickly  followed, beginning  a  day  of  saturation
coverage  in  the  chinese  media. Yang  was  shown  walking  out  of  his  quarters  in
his flight suit and getting on a bus taking him to the launch pad.Waiting for him
at the bus was the president of china, hu Jintao, who made a few remarks about
the great significance of the mission for china. in the u.S. space program, remarks
made by astronauts at launch and during their missions—such as “Light this candle,”
“the  clock  has  started,” and “godspeed, John  glenn”—became  colloquial. the
most widely reported remark made by Yang Liwei came when he met his president
at the bus. “i will not disappoint our motherland,” he said. “i will complete each
movement with total concentration,and i will gain honor for the people’s Liberation
army and for the chinese nation.”

What the chinese people seem to have appreciated most during the flight of

ShenzhouV

wereYang Liwei’s communications with his 8-year-old son, ningkong.

in a confucian society (which,of course,china has remained despite its communism),
the father–son relationship is fundamental not only for the family but for all society
and politics.

Whereas in the u.S. the most memorable in-flight comments from

america’s astronauts have rarely had much to do with children or family, in china a
great emphasis was placed onYang talking lovingly while in space to his “dear wife”
and “dear son.” What americans seemingly most remember have been the vintage,
off-color vernacular of our “space cowboys”—comments like gus grissom’s “no
bucks, no Buck rogers” or “the issue here is not pussy; the issue is monkey,” or alan
Shepard’s “please, dear god, don’t let me f*** up.”these earthy types of american
expressions, it seems clear, will never pass from the lips of any

taikonaut

15. Quoted in pomfret,“china Launches its First manned Space mission,” p.a17.
16. on the celebrity ofYang Liwei’s son ningkong see Joe mcDonald,“chinese astronaut an instant hero

But Where is he?”

Associated Press

, 22 october 2003,

http://www.space.com

(accessed 12 June 2006).

17. on confucian values in modern china, see thomas a. Wilson, ed.,

On Sacred Grounds: Culture,

Society, Politics, and the Formation of the Cult of Confucius

(cambridge, ma: harvard university asia

center, 2002); honghe Liu,

Confucianism in the Eyes of a Confucian Liberal: Hsu Fu-kuan’s Critical

Examination of the Confucian Political Tradition

(new York: p. Lang, 2001); howard giskin and Bettye

S.Walsh, eds.,

An Introduction to Chinese Culture through the Family

(albany, nY: State university of

new York press, 2001); and theodore huters, r. Bin Wong, and pauline Yu, eds.,

Culture & State in

Chinese History: Conventions,Accommodations, and Critiques

(Stanford, ca: Stanford university press,

1997). on the persistence of confucianism within communist china, see Zongli tang and Bing
Zuo,

Maoism and Chinese Culture

(new York: nova Science publishers, 1996); edward Friedman,

National Identity and Democratic Prospects in Socialist China

(armonk, nY: m. e. Sharpe, 1995); and

Deborah Davis-Friedmann,

Long Lives: Chinese Elderly and the Communist Revolution

(Stanford, ca:

Stanford university press, 1991).

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in the chinese press, a great deal was made about Yang as husband and family

man.according to his wife, Zhang Yumei,

a middle-school teacher,Yang is a caring

husband, and to his son, a hero. Following the launch, his wife said she would never
forget the expression in her husband’s eyes when she was about to be carried into
the operating room for a kidney biopsy in 2001:“Just at the moment when i was to
enter the operating theater, i saw the expression of extreme care, love, and regret like
i’ve never seen. i felt as if a knife had pierced my heart.”

During her recovery,Yang

sat constantly at her bedside—that is, until time came to leave for more

taikonaut

training when, as a supremely dedicated member of the people’s Liberation army,
he declined an offer from his commander to postpone it. Following his return from
space, a picture showing Yang and his wife embracing appeared in virtually every
chinese newspaper. its caption said that his wife asked her husband what wonderful
things he saw in space.“i saw our planet,” he told her.“it’s so beautiful, like you.”

From all across china came an outpouring of national pride over the spaceflight

of Yang Liwei.

The People’s Daily

, the official newspaper of the chinese communist

party,ran 100,000 extra copies that were quickly snapped up.in some towns,there were
spontaneous parades and demonstrations. Schoolchildren exhibited their pictures of
spaceships and astronauts. hundreds of wall posters appeared, many of them combining
themes of twenty-first century technology with more traditional styles of socialist
realism. postage stamps were printed inYang’s honor.

The People’s Liberation Army Daily

trumpeted:“For china this is the beginning and there will be no end.”

a week after this flight,Yang, accompanied by his son ningkong, opened an

exhibition in Beijing of his

Shenzhou V

capsule, spacesuit, and parachute—an exhibit

that subsequently made a road show across china.Yang’s immediate political value lay
in hong Kong, where his visit, at the special invitation of the regional government,
lasted a full six days.

For 155 years hong Kong had been a British colony, until its

sovereignty transferred in 1997 and it became a “special administrative region” of
the prc. under the terms of the Sino-British Joint Declaration, china promised
that hong Kong with its 6.8 million people would enjoy a relatively high degree
of autonomy until at least the year 2047. under the “one country,two Systems”

18. it is curious (though not in the least significant) that the name ofYang Liwei’s wife, ZhangYumei,

is so close to the name of the director of the film “hero” (and other celebrated chinese films),
Zhang Yimou.

19. Quoted in pomfret,“china Launches its First manned Space mission,” p.a17.
20. Quoted in John pomfret, “china’s First Space traveler returns a hero,”

The Washington Post

, 16

october 2003: p.a22.

21. andrew Brown, “china astronaut on charm offensive,” 1 november 2003,

http://www.cnn.com

;

Joe mcDonald, “china’s First man in Space going public,”

Associated Press

, 24 october 2003,

http://www.space.com

;“hK newspapers hail Space hero Yang Liwei,”

Xinhaunet

, 1 november 2003,

http://news.xinhaunet.com

(all accessed 12 June 2006).

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policy, hong Kong would retain its own legal system, currency, customs policy,
cultural delegation, international sport teams, and immigration laws. Late into 2003,
however, the issue of unification remained deeply troubled. morale in hong Kong
was low; its economy weak due to perceived government meddling; and officials
of the new regime were so unpopular that the city had been hit by unprecedented
antigovernment protests, not to mention an outbreak of severe acute respiratory
syndrome (SarS) that in one stretch had attacked 685 and killed 116 people.

colonel Yang’s visit was widely interpreted—more before it

began

than after

it ended—as a cynical bid to promote chinese nationalism by elevating hong
Kong’s confidence and restoring the city’s image. Several hong Kong and taiwan
newspapers criticized the

taikonaut

’s visit as a thinly veiled attempt to boost pro-

Beijing political parties in the region’s upcoming elections.correspondents reported
that many hong Kong residents were indifferent to Yang’s feat.

“it’s nothing

new—america did it years ago,” a local businessman was quoted as saying.“i won’t
feel anything just because of his visit,” admitted a downtown shopkeeper.

“it’s just

a gimmick,” declared an accounting clerk. a 21-year-old female university student
stated,“i always liked Britain better.” as for Yang’s spaceflight, she said it was being
“blown totally out of proportion.”

But even before Yang arrived, there were signs that many people in hong

Kong were not so jaded. a survey by the hong Kong Federation of Youth groups
showed that 71 percent of hong Kong young people felt excited and more proud
of being chinese by the news of the

Shenzhou V

flight. Support for his visit came

from nearly 50 organizations in hong Kong, not all of them so pro-Beijing, and
his itinerary attracted people of all ages and from walks of life. For the first time
in the history of hong Kong’s Science museum, an exhibit was kept open around
the clock, for four straight days, to meet the popular demand.When the

taikonaut

arrived, several thousand people waving chinese and hong Kong flags lined the
streets.“it’s worth the wait,” said a 73-year-old man.“i never thought i would live to
see the day that china could proudly stand alongside the united States and russia
as nations that sent a man into space!”“i think they should make a cartoon strip of
Yang,” said an 11-year-old boy.

“i just want to shake hands with uncle Yang,” said

an elementary school student. a young female student picked by her schoolmates

22. “hong Kong ho-hum over chinese astronaut’s Visit,”

Taipei Times

, 1 november 2003: p. 5;“Kids

and Flags but Still no genuine cheer for astronaut,”

Taipei Times

, 2 november 2003: p. 5.

23. Quotes in “hK Welcomes china’s Space hero,” BBc news, 31 october 2003,

http://news.bbc.co.uk

(accessed 12 June 2006).

24. Quotes in min Lee,“First chinese taikonaut Visits hong Kong,”

Associated Press

, 31 october 2003,

http://www.space.com

(accessed 12 June 2006).

25. Quotes in alan Low, “Spaceman Yang gets Star treatment,”

The Age

, 2 november 2003,

http://

www.theage.com.au

(accessed 12 June 2006).

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to ask a question of Yang explained to a tV reporter,“i know it will be difficult, but
i want to be the first woman astronaut of the nation.”

chinese authorities hoped that the taikonaut would be an inspirational force for

all chinese—especially in hong Kong, where the recent mood had been downbeat.
“the moral encouragement that you have brought to the hong Kong people is
enormous,” declared hong Kong’s chief executive,tung chee-hwa, at the Science
museum’s ribbon-cutting.at hong Kong Stadium, a capacity crowd of 40,000 gave
Yang a standing ovation as he entered and was driven around the stadium in a golf
cart. inside was a party of local pop celebrities and movie stars, including Jackie
chan, with whom he sang a song. Jackie chan asked the children of hong Kong
to take Yang as their model, stressing that success in life depended upon dedication
and heartfelt effort.

Yang did not make a speech at the stadium, but the crowd was

pleased just to see him in the flesh.“i’m just happy he is here,” said one young man,
“because he was brave enough to fly into space, and that courageous act has brought
prestige for chinese everywhere.”

in a country where the concept of celebrity was relatively new but quickly

growing—including the likes of pop singer gao Feng, nBa basketball player Yao
ming,

Crouching Tiger, Hidden Dragon

film star Zhang Ziyi, fashion model Sun na,

olympic diving star guo Jinjing, and badminton superstar Lin Dan—it was clear
inside the stadium that the people saw in the

taikonaut

not just celebrity but a man

with a special aura or mystique.“uncle Yang looks more handsome in person than
on the tV screen,” said a primary school student who came to the stadium with
her father.

Following the event, the

Chinese Language Daily

commented,“Yang is

not just a star.the welcome he received from hong Kong residents exceeded that
of any star. he is the superstar supported by hong Kong residents of different age
groups and different walks of life.”

interestingly, the qualities of Yang’s character that appealed most to the chinese

were not those connected to the glamour and glitz of the silver screen or pop music,
but to characteristics more essentially chinese. one hong Kong schoolteacher said,

26. Quoted in “hong Kong people greet hero Yang Liwei,”

People’s Daily

, 1 november 2003,

http://

www.english.people.com.cn

(accessed 12 June 2006).

27. immediately afterYang Liwei’s visit to hong Kong, hong Kong’s moral and civic education Section

of the education and manpower Bureau made available on its Web site a battery of teaching resources
based onYang’s

ShenzhouV

flight.the title of theWeb site material was“perseverance and commitment:

Space mission ofYang Liwei.” See also “Yang Liwei’s Space mission online for moral education,”

The

People’s Daily

, 8 December 2003,

http://www.china.org.cn

(accessed 12 June 2006).

28. Quote in Low,“Spaceman Yang gets Star treatment.”
29. Quoted in “Yang Liwei meets hK community,”

Chinese Language Daily

, 2 november 2003,

http://

www.chinadaily.com.cn

(accessed 12 June 2006).

30. See Low,“Spaceman Yang gets Star treatment.”

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“it is really an unforgettable experience to see Yang in hong Kong, and i admire his
modesty and calmness very much.” newspaper article after article described Yang
as “looking healthy and respectful and speaking in appropriate terms, with honest
and cordial attitude.” in return,Yang spoke very gently and respectfully about his
hosts. in brief remarks at the museum exhibition, the

taikonaut

said he was “deeply

moved” by the warmth of his reception from the “big chinese family.” at another
event, he stated that “the hong Kong compatriots make me feel at home. their
enthusiasm has made my heart beat faster than when i was in the spacecraft.”

Leaving the city after six days, he paid his final respects,“hong Kong is much more
beautiful than i had imagined. it is like a pearl.”

Before he left,Yang visited the Bank of china tower, in the central city, where

the bank president presented a check of a half-million hong Kong dollars (about
$64,000 uSD) to the china Space Foundation, in support of china’s research and
development of space technology. Yang also went on a sightseeing visit to tsing
ma Bridge, the world’s longest road-and-rail suspension bridge, which links the
new hong Kong international airport to Kowloon and hong Kong island.

both places, people saw the human embodiment of the chinese space program
juxtaposed with other vital symbols of china as a progressive force in the world.

Leaving hong Kong, Yang Liwei next traveled to macao, china’s second

Special administrative  unit, whose  sovereignty  had  transferred  from  portugal  to
Beijing  in  1999. Some  of  macao’s  problems  in  2003  were  different  from  hong
Kong’s—notably  involving  labor  unrest  due  to  economic  transformations  that
had transformed the oldest european colony in china from a tiny fishing village
with gambling dens into a well-established tourist spot with huge, modern casinos.
But, as with hong Kong, national unification under Beijing’s leadership was the
overarching concern.a visit from the new chinese hero might help.

During a two-day visit, Yang visited several of macao’s historic landmarks

and then met for an entire afternoon with 1,000 students and teachers, answering
questions. he visited the recently installed macao garrison of the people’s
Liberation army and attended a luncheon hosted by the garrison. as a result of
those two days, an ad hoc consortium in macao raised more than 14 million

patacas

(about $1.75 million uSD), for the china Space Foundation—an organization that
promotes china’s space industries but which is not to be confused with the china
national Space administration, the counterpart to america’s naSa. most of this
money came from “political and business dignitaries” (macao’s chief executive was
reported to have made a personal contribution of 300,000 patacas), but some of it
(how much was not reported) came from students and common folks. according

31. Quoted in “Yang Liwei meets hK community.”
32. “china’s First Spaceman tours hong Kong,”

Xinjuanet

, 2 november 2003,

http://www.pladaily.com.

(accessed 12 June 2006).

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to Beijing, this sizeable donation from the 450,000 people residing in the macao
Special administrative region “embodied a strong sense of patriotism of the macao
compatriots.”on a per capita basis,the gift represented a donation of 31 patacas (or $4
uSD) for every resident.to put that into perspective, if every american today gifted
$4 to the u.S. space agency, naSa would cash a check for some $1.2 billion.

Leaving macao,“great heroYang”next stopped in the northern coastal metropolis

of tianjin, the largest open-water seaport in north china, which, along with Beijing,
Shanghai,and chongqing constitutes one of the prc’s four administrative municipalities.
Whytianjin after hong Kong and macao? perhaps it was becausetianjin had been one
of the places slapped with a travel advisory by the World health organization for its
SarS outbreak a few months earlier. Some of the most violent protests against locating
SarS clinics in local communities had taken place intianjin,and it may have been that
Beijing wanted a visit from the

taikonaut

to rejuvenate the city’s spirit. it may also have

had something to do with the fact that tianjin is the center for many of china’s pillar
industries: machinery, electronics, chemicals, and metallurgy.

the impact ofYang Liwei’s historic spaceflight ranged far beyond the first three

spots strategically selected for his immediate post-flight tour. it triggered nothing less
than a nationwide frenzy—what oneWestern observer called a “flowering of patriotic
kitsch.” in Shanghai, an estimated half-million people queued in freezing conditions
to see china’s first astronaut. at a high profile rally in Beijing,Yang was conferred
the title of “Space hero.” a decree issued by the general political Department of
the chinese people’s Liberation army instituted Yang as a “model” for all chinese
soldiers.the decree ordered all members of the pLa and the chinese people’s armed
police to learn fromYang and his “heroic achievement.”“military activities in various
forms should be conducted to study the spirit of the astronauts,” the decree said.

one of the most interesting things that happened after the

Shenzhou V

flight

was the immediate commercialization of Yang’s name. everything from rice to milk
to action figures quickly bore the taikonaut’s image, name, or title.

the chinese

government tried to put a stop to this by trademarking and copyrighting Yang’s
name and likeness, but with limited effect.

even Yang’s home county in northeast

china got into the act. trying to cash in on his fame, Suizhong county leaders
registered his name as a trademark for local produce, selling “great hero Yang”
lettuce and cabbage and renaming a special white pear after him.

33. “china’s Space heroVisits hong Kong garrison,”

PLA Daily,

5 november 2003,

http://www.english.

chinamil.com

(accessed 12 June 2006).

34. “china’s First astronaut crowned ‘Space hero,’”

Xinhaunet

, 7 november 2003,

http://www.chinaview.

com

(accessed 12 June 2006).

35. Sangwon Suh, “hong Kong: Selling chinese milk and patriotism,”

International Herald Tribune

, 9

march 2004,

http://www.iht.com

(accessed 12 June 2006).

36. Barry gottlieb,“Don’ttouchthat name,”

Alternet

, 28 october 2003,

http://www.alternet.or

g (accessed

12 June 2006).

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at one point Beijing felt it had to put him on ice for a while, to temper the

individual side of the achievement which it at first had been aggressively promoting.
commenting on Yang’s public absence, a professor of public policy at Qinghua
university in Beijing said,“it is normal thatYang Liwei has been regarded as a national
hero and a good example for the young to learn from.” however,“[t]he government
should make sure there aren’t excessive reports about one individual, because behind
the success there was a whole project and system supporting the mission.” “Yang
Liwei’s name will long be recalled,” said a message posted on a Web site run by the
party newspaper,

People’s Daily,

“while nobody will talk about the politicians!”

But in the spring of 2004 the attention on “great hero Yang” again heightened

when the

taikonaut

toured the u.S. in new York, he met with Secretary-general

of the united nations Kofi annan and presented two u.n. flags he had carried
with him on

Shenzhou V

. in Washington,Yang visited the office of Florida Senator

Bill nelson, the only serving member of congress to have flown in space; while
there, he also met apollo 11 astronaut Buzz aldrin.Yang toured the Kennedy Space
center, met mickey mouse at Disney World,

and got a Vip’s view of the Johnson

Space center in texas.Yang’s american tour was widely reported in the chinese
press and was even shown on chinese television.

What seems clear is that Yang’s hero status signified some sort of sea-change in

chinese society and politics,because such publicity for a living person had been almost
unknown in china’s communist system prior to Yang. china had lauded “national
martyrs” such as Wang Wei, the fighter pilot who died in a 2001 collision with a u.S.
navy plane, but when looking for people to serve as communist “models,” the party
usually picked plumbers and bus drivers for brief fame as “model workers.” it has tried
hard not to celebrate the cult of any individual other than leaders of the regime.

But there was Yang after his spaceflight, an instant hero, an icon, lionized in

the state-run press not only as the country’s first person in space but also as an elite
pilot, a star student, communist party member, devoted family man, and national
treasure.Yang’s was an image crafted seemingly for a ruling party in need of a high-
tech hero to bolster chinese nationalism and pep up its own reputation—the same
party whose very existence depended on the

group

being more important than any

individual

, and whose power often depended on its leaders hogging the spotlight.

compared to china’s bland,group-oriented leadership,Yang apparently had struck

an extraordinarily responsive chord.even his 8-year-old son became a celebrity,showing
up over and over again in the chinese media.on one occasion,party officials visited his
school and honored his class with the honorary title “Space Squadron.” Standing beside

37. Quoted in mcDonald,“chinese astronaut an instant hero But Where is he?”

Associated Press

, 22

october 2003.

38. “china’s First ‘taikonaut’ rides mission Space at epcot,Walt Disney World in Florida,” Disney

press release, 28 may 2004,

http://www.hongkongdisneyland.com

(accessed 12 June 2006).

39. Quoted in mcDonald,“chinese astronaut an instant hero,”

Associated Press

, 22 october 2003.

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a model rocket, young ningkong gave a speech praising his father’s accomplishment.
“people asked me if i was afraid about Daddy going into space and i said ‘not a bit,’
because i knew that china’s space technology was very advanced and Daddy was really
awesome,” he said.“i want to be like Daddy and travel to outer space some day.”

Whether or not Yang Liwei’s son ever travels to space, it seems more and more

clear that other chinese youth of his generation will be doing exactly that—to orbit,
to a chinese space station, and perhaps to the moon and to mars.though impossible
for any Western analyst to predict with confidence what the chinese will do next in
space, or when they will do it, it seems clear from the public reaction to the october
2003

Shenzhou V

flight that the chinese people are excited by their prospects in

space—excited in some ways that Beijing did not fully anticipate and could not fully
control. interestingly, when the two-man crew of

Shenzhou VI

flew into space in

october 2005, the government essentially hid those

taikonauts

from view.there were

a few celebratory events in hong Kong and china, but nothing likeYang Liwei’s road
show, over which the government felt for a time that it had lost control.

WhetherYang’s visits to hong Kong and macao effectively served the nationalistic

and political purposes Beijing had in mind is not so certain.chinese officials commented
at the time that they hoped his visits would instill pride for the larger “motherland”
among the residents of china’s two Special administrative regions, but although the
events with Yang sold out and were hugely popular, they do not seem to have had
exactly the desired effect.indeed,people living in those recently transferred sovereignties
celebrated the

taikonaut

but without associating him all that much with the Beijing

government or by warming to the mainland’s way of life.

evidence of this dissonance can be seen in the reaction to the subsequent

announcement that the chinese national anthem and a 45-second video featuringYang
and olympic diving star guo Jinjing were to be broadcast on hong Kong’s chinese
language tV stations every night. co-produced by hong Kong’s committee on the
promotion of civic education and its commission onYouth,the video (the soundtrack
of which was

The March of the Volunteers

, the chinese national anthem) aimed at

“enhancing the sense of national unity.” But critics in hong Kong asked, “Does the
government really believe that civil awareness can be raised by broadcasting the national
anthem? Following this logic, will the government increase the number of times the
video is shown if they believe people’s civil awareness is not high enough?” one hong
Kong political commentator remarked,“people will only treat it as propaganda.”

40. on

Shenzhou VI

, see edward cody, “china Sends 2nd. manned Spacecraft into orbit,”

The

Washington Post

, 12 october 2005: p.a2; guy gugliotta,“china Keeps reaching for the Stars,”

The

Washington Post

, 15 october 2005: p. a12; and “astronauts’ Safe return Sparks Big celebrations,”

China Daily

, 17 october 2005,

http://english.sina.com/china

(accessed 12 June 2006).

41. Quotes in martin Wong,“hong Kong: national anthem to be Broadcast Before news,”

South China

Morning Post

, 1 october 2004,

http://www.asiamedia.ucla.edu

(accessed 12 June 2006); “hong Kong:

chinese national anthemVideo Draws Fire,”

South China Morning Post

, 7 october 2004: p. 1.

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the effects of Yang’s visits, then, were not exactly what Beijing was after;

rather, the effects are best understood as a cascade of unintended consequences that
may, if examined carefully, tell us something very important about how china has
been changing, and will continue to change, as the twenty-first century heirs to the
“middle Kingdom” move out slowly but surely into exploring the universe.

it would be prudent, especially for those whose heritage is not chinese, to

be extremely cautious in drawing conclusions about what the prc might do in the
future in terms of space exploration, based on what we think we know about china’s
past. one of the principal lessons of chinese history that has been related over and
over again in theWest concerns the overseas voyages of admiral Zheng he, one of the
heroes of the prc’s new video games.as the lesson goes, a confucian faction, after
gaining control over the ming court in the early fifteenth century, put an abrupt halt
to the grand naval expeditions.the conservatives felt that “barbarian” nations offered
little of value to add to the prosperity already present in the middle Kingdom, and,
anyway, it was improper for decent chinese to go abroad while their parents were still
alive.Western historians have speculated on how differently world history might have
turned out had the ming emperors sustained a vigorous colonial policy instead.

advocates of a vigorous american human spaceflight program have made a

similar object lesson of china’s turning away from foreign ventures: by withdrawing
from exploration, american society, too, will stagnate and open itself to exploitation
by others. Space enthusiast robert Zubrin, in his 1999 book

Entering Space

, declared:

By  accepting  the  challenge  of  the  outside  world,  Western
civilization blossomed outward to dominate the globe.in contrast,
the grand chinese civilization grew demoralized in its stagnation
and  implicit  acceptance  of  inferior  global  status  and  decayed,
ultimately to be completely disrupted and remade by expansive
Western influences.
only twenty-five years ago, the united States, following in the
footsteps of the ming emperors, abandoned its own pioneering
program  of  space  exploration. at  that  time, american  leaders
could console themselves with the equivalent of the advice of
the ming court bureaucrats—exploration is too expensive, and
nothing of value exists beyond what is familiar.

42. another bellwether of the underlying changes taking place in china today may be seen in the

newest  chinese  history  textbooks  being  introduced  into  some  schools  in  Shanghai. instead  of
straight-jacketing students with texts based in communist ideology and the teachings of mao, the
emphasis  of  the  new  textbooks  is  on  producing  innovative  thinking  and  preparing  students  for
global discourse. not that history and politics have been completely disentangled; far from it. But
the  new  textbooks  reflect  a  new  emphasis, one  that  is  indicative  of  what  one  of  its  authors, a
Shanghai  scholar, calls  a  sea-change  in  thinking  about  what  students  need  to  know. See  Joseph
Kahn,“Where’s mao? chinese revise history Books,”

The New York Times

, 1 September 2006.

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“now we know better,” Zubrin has insisted. “the universe has presented us

with its challenge.to remain who we are, we must accept.We must enter space.”

But Zubrin’s analysis and others like it, which suggest there is something

implicit

in the confucian mindset and within the social order of china’s “inner

space” that ultimately works against exploration of “outer space,” may be fallacious.
rather than any inherent chinese cultural inertia favoring the familiar and avoiding
the unexpected, perhaps the underlying factor forcing china’s ming emperors
to withdraw from their foreign ventures was something quite different, and very
particular, historically speaking. For example, in his 2005 book,

Why Geography

Matters

, michigan State university geography professor harm de Blij argued that,

just as the ming were poised to round the cape of good hope and enter the
atlantic, “disaster struck at home.” a geological event, a “Little ice age” in north
china, resulted in major famine and social disorder.the ming rulers were forced
to end their maritime expeditions, ordering the country’s shipyards to build only
barges that could navigate china’s internal waterways with cargoes of rice. if the
environmental crisis had not occurred, china might very well have become the
world’s dominant colonial power.

it thus seems inappropriate, if not foolish, to believe that anything innate in

the country’s historical character will stop china from becoming one of the world’s
predominant space powers. if the iconography surrounding

taikonaut

Yang Liwei

is any sort of reliable indicator, chinese society is already well on its way toward
successfully mixing its traditional confucian values, communist ideology, and drive
for economic and high-tech industrial competitiveness into an effective recipe for
an expansive program of human spaceflight.

43. robert Zubrin,e

ntering Space:Creating a Spacefaring Civilization

(newYork:tarcher/putnam,1999),p.xi.

For more from Zubrin on the mings’ turning away from overseas exploration, see pp. 18–20.

44. harm de Blij,

Why Geography Matters:Three Challenges Facing America: Climate Change, the Rise of

China, and Global Terrorism

(new York: oxford university press, 2005), pp. 78–79.

hapter

Commercial and Economic

Impact of Spaceflight: An Overview

philip Scranton

“p

resent efforts to accelerate the transfer of military/
space technologies to commercial application appear

handicapped by insufficient knowledge of how technology is
applied at the level of the firm . . . most contributions [do not]
come in the form of direct and readily identifiable results of
a particular effort.” denver research institute,

The Commercial

Application of Missile/Space Technology

(denver, co: dri,

September 1963), vi, p. 1.

“over the past quarter century, two-thirds of our space

dollars have been invested in manned spaceflight, with little to
show for the investment save circus. By and large it has been
wonderful circus, just as the [early aviators’] barnstorming was,
but hardly more productive . . . the real payoff in space—the
work of the communications satellites, the weather and earth
resources  satellites, the  scientific  probes—has  been  funded  by
the  remaining  one-third  of  the  civilian  space  budget.” alex
roland, “Barnstorming  in  Space,” in

Space Policy Reconsidered

radford Byerly, ed. (Boulder, co:Westview press, 1989), p. 42.

apart from wowing the public and energizing thousands of american engineers

and scientists,what is spaceflight actually

for

? apart from creating platforms for military

surveillance and intelligence functions, what is spaceflight actually

for

? apart from

sustaining layers of enterprises and competencies in the aerospace, instrumentation,
electronics, materials, project management, and consulting segments of the
economy (along with a modest cohort of university-based researchers, including
some historians), what is naSa’s work actually

for

? if not articulated in just this

fashion, similar questions about the private sector payoffs of public sector spending
on space have persisted from the agency’s earliest years. By 1962, naSa had created
a “technology utilization program” in response to congressional sniping, and soon

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began releasing annual reports of technology spinoffs.

Yet recently an economist

argued that neither naSa’s direct or indirect impact on the economy (in terms
of employment, multiplier effects, spinoffs, or statistically-estimated influences on
growth) could be established as sufficiently sizable to justify ongoing costs.

even

so, from naSa’s earliest years, observers have argued that there is no effective way
to reach quantitatively sound answers to questions about economic impact and
the effective use of public funds for aerospace. instead, as roger launius suggested
in a recent historiographical study, settled camps of celebrants and critics seem to
commence with their conclusions and search about for evidence to support them.

this is not likely to change, but i hope not to reinforce that practice here.

like many public programs, naSa’s work has been expected to be productive

not simply in terms of internal criteria (setting and reaching goals, effective
management, etc.), but also in terms of wider contributions to society and the
nation. one persistent strain in the calls for this broader influence and performance
has been the expectation that naSa’s work will generate substantial and substantive
commercial and economic innovations and opportunities. the folkloristic notion
that the main thing spaceflight delivered to american consumers was the powdered
breakfast drink tang

evokes the narrow domains in which such expectations have

often been defined and the relatively unsystematic way in which actual contributions
have been gauged in differently positioned literatures.

this essay, which introduces a group of more tightly focused and empirically

rich studies, will undertake to outline a framework that may help situate the economic
and technical contributions that naSa’s work provided to american business and
thereby to the nation’s citizens. contrary to consumer expectations, virtually all these
contributions have been indirect, as a denver research institute (dri) study explained
in the early 1960s, and hence imperceptible to most observers. Second, as alex roland

1. alfred alibrando,“naSa technology Utilization Scrutiny due,”

Aviation Week and Space Technology

79 (5 august 1963): pp. 28–29. See also “aerospace in perspective: Utilization,”

Space/Aeronautics

43 (January 1965): pp. 80–87, and

NASA Spinoffs:Thirty Year Commemorative Edition

, Sarah gall and

Joseph pramberger, ed. (Washington, dc: naSa technology transfer division, 1992).

2. molly K. macaulay,“the economics of Space,” in

Space Politics and Policy:An Evolutionary Perspective,

eligar Sadeh, ed. (dordrecht,the netherlands: Kluwer, 2002), pp.181-200, see esp. pp. 183–185. of
course, economic justification is constrained by seriously imperfect quantification and measurement
issues, and cannot reach economic dimensions of spacefaring that are not quantifiable, such as
enhancing the climate for or urgency of innovation, except through dubious proxies (e.g., r&d
spending) whose limited utility, though long recognized, has not undercut their wide use.

3. roger d. launius,“historical dimensions of the Space age,” in ibid., pp. 3–26, esp. 4–11.
4. indeed, this association is erroneous in the specifics as well, in that tang was used in but not

developed for naSa flights. See

http://en.wikipedia.org/wiki/Tang_(drink)

(accessed 11 July 2006).

general foods created tang circa 1957, but it became famous when used in the gemini program
in 1965. Similar delusions about the naSa origins of teflon

and Velcro

abound, but frame the

popular expectations for space outcomes—consumer goods as economic spinoffs.

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Impact of Spaceflight: An Overview

has grumbled, it does seem that our obsession with human flights, along with their
vast expense, has overshadowed efforts at communications exostructure building which
have had long-term significance—notably, as almost all parties agree, multiple satellite
networks (agency, private, and military), the subject of another section in this book.

two contextual claims lead off my discussion. first, spacefaring innovations

were embedded in a more complex, indeed transnational, culture of technological
experimentation that intensified in the early years of the cold war. as a result,
explained the dri report,“[n]o clear line can be drawn between space and non-
space knowledge [bases] because the two are closely interwoven.”

thus, identifying

the space program’s “firsts” is a rather inconsequential exercise. instead, it makes
more sense to highlight those situations where naSa projects added critical
momentum and capability to nascent innovations, providing essential test-beds for
them (and the funding for revision and redesign), and to explore projects where
the complexity of naSa-posed problems galvanized cross-disciplinary amalgams
of technique and materials, with implications for the industrial world outside. for
example, the dri’s research identified 185 spaceflight spinoffs by 1962, including
plastic coatings, microminiature welding devices, and high-capacity infrared sensors
already installed in manufacturing facilities.

thus, one key background argument

here is that a sizable share of naSa undertakings can plausibly be described as
“experimental development” projects, in which exploratory engineering, risk-laden
fabrication and testing, and integrative scientific practices strove to overcome the
liabilities inherent in complexity, incomplete information, inhospitable conditions
of human work and artifact usage, and the necessity of customized production.

Second, though we still have inadequate information regarding many of its

dimensions, the military’s role in space projects and technologies enlarged naSa’s
programs,such that naSa-anchored innovations had an impact on the development
of defense and intelligence capabilities (and the hardware and software behind

5. denver research institute,

The Commercial Application of Missile/Space Technology

(denver, co: denver

research institute, 1963), p. iv. for a contemporary appreciation of the dri study, see “Scientific
horizons toWatch,”

Factory

122 (february 1964): pp. 88–91. for a later, detailed analysis by dri staffers,

see robert h. Waterman and lloyd g. marts, “Space-related technology: its commercial Use,” in

Advances in Space Science andTechnology

,Vol. 6 (newYork:academic press, 1964), pp. 173–244.

6. “hitchhiking on Space technologies,”

Steel

153 (23 december 1963): pp. 26–30. naSa’s louis

fong then estimated that the space effort had yielded some 850 “innovations thought to have
industrial potential.” among the 185 that had been utilized,

Steel

reported specifics on 22 items.

Sundstrand had found oil field applications for a low-speed pump “originally designed for missiles,”
hills-mccanna was selling a commercial version of an aerospace ball valve, and general dynamics
had already sold 5,000 units of a mechanical warning device indicating shock levels on packages,
created for missile shipment containers.

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them) and, by extension, on the enterprises designing and fabricating such devices.

as researchers noted more than 40 years ago: “Because of the interaction among
[the military, naSa, other agencies, industry, and universities], attribution of a given
technological advance to a particular source is often impossible.”

the idea for military uses of space evidently arose in the immediate postwar

years, as the douglas aircraft company’s research and development division (which
soon  became  rand)  informed  the army air  forces  that  it  might  be  possible
to  create  and  launch  a “world-circling  spaceship,” which  could  play  a  role  in  the
technology-intensive  wars  of  the  future. the  proposal, filed  away  for  more  than
a  decade, resurfaced  after  Sputnik  and, much  altered, laid  the  foundations  for  the
military satellite command and control networks “designed specifically to support the
nation’s top secret national reconnaissance program [nrp].”

operated in parallel

with naSa satellite projects, the nrp was another element in the rivalries between
the air force and the spaceflight agency.the question of space weapons is outside our
scope here, but “the non-weapon military uses of space,” as colin gray termed them,
have been diverse and significant.from early,high-resolution film canister devices and
the Vanguard/minitrack system of the 1950s

through the fourth-generation, ten-

ton Big Bird satellite in the 1970s, surveillance, missile tracking, and data gathering
from space were clear military priorities, along with advance warning capabilities
of attack, assessment of Soviet bloc activity, secure communications, navigation
assistance, weather monitoring, extensive mapping, and continuing “measurement of
the [e]arth’s gravitational and magnetic fields (essential for the accuracy of inertially-
guided missiles).”

Both naSa and military agencies engaged much the same set of

7. See peter l. hays,“naSa and the department of defense: enduring themes in three Key areas,”

Critical Issues in the History of Spaceflight,

Steven J. dick and roger d. launius, eds. (Washington,

dc:naSa Sp-2006-4502,2006),pp.199–238.in discussion after his presentation at the conference
this volume reprises, hays suggested that the military (nonpublic) segment of naSa budgets was
as large or larger than the civilian segment in many years following the end of the apollo era. for
another hays analysis of these issues, see peter l. hays,“Space and the military,” in Sadeh, ed.,

Space

Politics and Policy

, pp. 335–369.

8. denver research institute,

Commercial Application of Missile/Space Technology

, p. vi.

9. david christopher arnold,

Spying from Space

(college Station, tX: texas a&m University press,

2005), p. 7. for a contemporary overview of military space activity, see “aerospace in perspective:
control,”

Space/Aeronautics

43 (January 1965): pp. 88–101.

10. the first recovery of a photographic capsule was reportedly from discoverer 13 in august

1960. See colin gray,

American Military Space Policy

(cambridge, ma:abt Books, 1982), pp. 23–25.

11. ibid., p. 35.

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Impact of Spaceflight: An Overview

prime and subcontractors for satellite projects,which created opportunities for,but not
guarantees of, technical cross-fertilization between public and classified initiatives.

in consequence, it may be crucial, in thinking about commercial/economic

impacts of spaceflight, to posit naSa as the globe’s largest dispersed technology-
development unit, inextricably blending national security concerns, engineering
ambitions, policy negotiations, and scientific aspirations into projects that energetic,
at times urgent, collaborators shaped into material forms and functions. from this
perspective, in the long run counting spinoff items may be less rewarding than
recognizing naSa’s historic role as the hub of Big engineering in america,reshaping
the model for high-tech contracting (and subcontracting), and as the nation’s public
research and development (r&d) division, taking on challenges and complexities
that no corporate enterprise would or could have shouldered during the cold war.

in the remainder of this discussion, i will sketch three domains where

spaceflight’s nonsatellite commercial and economic impacts can be situated, then
will focus briefly on three of the third domain’s components and add a fourth. in
considering areas where spaceflight has economic implications, we may loosely
divide this terrain into segments which attend to (1) the impact of

operations in space

;

(2) the impact on

enterprises

of producing and managing space projects; and (3) the

impact of operations derived from

experimental development for space

the first segment represents the realm of “space commerce,” dominated by

satellite capabilities and the information and revenue streams they generate. in
addition, commercial users must cover transportation charges for putting artifacts in

12. the technical press was intensely interested in the components manufacturing potential for

satellite operations. exemplary articles from the early 1960s include “future Space Satellites and
missions,”

Electronic Industries

21 (June 1962): pp. K12–K16, and “how to get Your products into

orbit,”

Steel

153 (29 July 1963): pp. 79–84, with specifications on satellite components at pp. 82–

83. See also octave romaine, “oao: naSa’s Biggest Satellite Yet,”

Space/Aeronautics

37 (february

1962): pp. 54–58; and donald fink, “ge designs navigation Satellite network,”

Aviation Week &

SpaceTechnology

80 (30 march 1964): pp. 49–51.the substantial earth-based tracking and monitoring

systems that had to be built in tandem with satellite launches received equal attention,not least because
they involved, in some measure, familiar construction tasks. See “Space tracking is Big Business,”

Electronics

32 (6 march 1959): pp. 24–25;“earth Based electronics,”

Electronics

34 (17 november 1961):

pp. 108–118. for satellite manufacturing, see h. l. Wuerfel and r. p. dunphy [rca], “the relay
communications Satellite:a Study in the achievement of high reliability,”

Industrial Quality Control

22 (January 1966): pp. 355–368. for a British view stressing the need for european satellites with
applications different from those envisioned by the U.S., see alan h. Stratford, “the economics of
telecommunications Satellite Systems,”

Journal of the Royal Aeronautical Society

66 (June 1962): pp.

364–370. for a later naSa overview, see edgar cortright,“Space Science and applications:Where
We Stand today,”

Astronautics & Aeronautics

4 (June 1966): pp. 42–48. (By 1966, naSa’s cortright

explained,“more than 60 successful satellites and deep-space probes” had been launched [p. 42].)

13. for a sense of the speed and uncertainty of technological development at this time, see ronald

Kohl, “technology in turmoil,”

Machine Design

38 (29 September 1966): pp. c1–c20. arguably,

the U.S. air force pioneered Big engineering in and after World War ii in aircraft, propulsion, and
avionics. nuclear submarine work brought the navy alongside before naSa was created.

126

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space, most of which appear to accrue to government units, some in partnerships with
private sector organizations.We also have had the recent appearance of individual space
travel (ballistic launches only, i believe), though again with the revenues flowing from
private to public coffers, usually inadequate to cover costs and not as yet generating
anything like nodes of investment opportunity. as political scientist James Vedda has
pointed out: “in space commerce, the quest continues for affordable, reliable, and
flexible access to space.” here we find “the slowest rate of improvement of all space
technologies,” even as the sophistication and significance of satellites has soared.

outside of communications, where waves of innovation have followed

like clockwork, notions that commercial materials processing, pharmaceutical
development, or crystal growing would become the base for space manufacturing
never got past the experimental or prototyping phase. in the early 1980s, Johnson &
Johnson partnered with mcdonnell douglas to attempt purifying a drug component
in space, while 3m and John deere arranged materials testing studies and fairchild
laid plans for an industrial space platform.these schemes vaporized even before the

Challenger

accident in 1986, as markets had been substantially overestimated and

costs severely underestimated. in 1984 the annual market for space materials testing
or production had been gauged at $40 billion or more; a few years later that number
shrank to $2 billion, but realistically was closer to zero. Beyond the stunning costs of
getting into space with appropriate materials and tools lay the challenges of creating
human-free operations (as peopled production in space added orders of magnitude
to costs) and of dealing with the narrow range of products that could be sold at
prices which could realize profits. nor were questions of quality and reliability
easily solved. in the late 1980s, drug-industry consultant John naugle judged that
only goods priced above $2,000 per pound could be economically manufactured
in space, and only if there was a $500 million annual market awaiting them (to help
offset operating costs of $100–$200 million).as he summarized:

a space manufacturer thus must pay for a long, costly r&d
process, make a large initial capital investment, and wait a long
time for a return on his investment. during the r&d process,
his ground-based competitors will be hard at work to produce
the product more cheaply . . .these factors combine to suggest
why pharmaceutical manufacturers have not leaped to enter the
market in space processing.

14. James Vedda, “Space commerce,” in Sadeh, ed.,

Space Policies

, pp. 201–227, quote from p. 210.

Stephen Johnson orally confirms government losses in providing commercial launch services.

15. John naugle, “a manufacturer’s View of commercial activity in Space,” in

Economics and

Technology in US Space Policy,

molly K. macauley, ed. (Washington, dc: resources for the future, 1987),

pp. 70, 76. for satellite innovations, helpful sources include office of technology assessment,

Civilian

Space Policy and Applications

(Washington, dc: U.S. congress, office of technology assessment, 1982),

especially chapter 8, and Stephen Johnson,“Space Business,” in Sadeh, ed.,

Space Politics and Policy

127

Commercial and Economic

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naugle also argued that three situational shortcomings further hampered

planning for the industrialization of space: the lack of “assured transportation” up
and back; the problem of “launch insurance”; and the absence of a spacelab where
firms could “conduct proprietary experiments.”

two decades down the road it

does not appear that space-based processing is much nearer to being realized.

Second, spaceflight has had durable, creative impacts on corporations that secured

prime and subcontracts for vehicles, craft, components, instrumentation, engines, et al.
not only did serving naSa invite key cold war technology-intense firms to diversify
beyond weapons systems—creating new divisions and goals, space demand also played
a role in building markets for design and program management specialists ( e.g.,trW’s
Systems technology division and intellitronics laboratories)

and for technology/

innovation consultants. as Stephen Johnson is focusing on business in considerable
detail, a quick view of mcdonnell in 1959 and 1966 will offer a snapshot of one firm.

in the 1959 fiscal year, mcdonnell aircraft company (mac), a St. louis

powerhouse, recorded sales of $436 million, with an orders backlog of $650 million.
it had just undertaken its first mercury spacecraft contract for a modest $20 million,
less than 5 percent of the firm’s annual turnover. at the time, mac’s space efforts
were confined to the Quail decoy missile and the talos ramjet (subcontracted from
Bendix), whereas its core competencies lay in jet aircraft design and assembly—the
f4h phantom ii, the rf-101cVoodoo for reconnaissance photography, the f101B
interceptor, and the f3h demon series of all-weather fighters.

Seven years later, mac was winding up its role in the gemini program (5

successful  flights  in  11  months)  and  had  adapted  a  gemini  capsule  for  use  with
the planned air force manned orbiting laboratory (which never flew; cancelled
in 1969). it also had undertaken extended, self-financed research into “advanced
orbital  spacecraft, laboratories, [and]  military  systems  in  space,” investing  another
$1.3 million in “studies related to mars exploration.” if mac’s aircraft backbone
remained the phantom (seven models in production, 99 units contracted in 1966
for the USaf [$272 million]), the company had branched out into work on navy
surface-to-surface missiles, hypersonic air-breathing planes (with naSa), an aircraft
collision-avoidance  instrumentation  system,

and a critical-patient monitoring

system for hospitals (derived from piloted flight instrumentation).at least two dozen
additional projects were being researched, ranging from special materials to human

16. naugle, in

Economics and Technology

, p. 78.

17. aerospace industries association of american,

Aerospace Year Book 1960

(Washington, dc:

american aviation publications, 1960), pp. 191–192.

18. ibid., pp. 129–131. See also “mcdonnell is optimistic on future,”

Aviation Week

72 (9 may

1960): p. 103.

19. the 1992

NASA Spinoffs

, 61, volume credits collision avoidance instrumentation to an

ames-faa collaboration in the 1980s and does not mention mac’s earlier effort.

128

ocietal

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paceflight

performance simulation and plasma physics.

put simply, spacefaring transformed

mac from a military hardware builder into a multidimensional, edge technology
developer. as i have argued elsewhere, to date historians have underinvested in
examining the business trajectories of major aerospace manufacturers and the
industrial districts they often anchored.

the impacts of

experimental development

for space are more distributed and

perhaps  diffuse,  but  they  were  extensive. this  refers  to  the  transformations  of
materials, processes, and instruments that aerospace design and fabrication triggered
for  particular  purposes,  but  which  were  available  for  adoption  and  adaptation
throughout  industry. the  1963  denver  team  identified  six  areas  of  transfer  from
space  to  commercial  sectors:  stimulation  of  research;  improved  processes  or
techniques; improved products; new products; increased availability of materials and
instrumentation; and cost reductions. one of these was speculative and ultimately
marginal  (cost  reductions), and  one  was  obvious  (stimulating  research), whereas
products, new or improved, have often become the focal point of commercialization
arguments. in general, criticism focused at the product innovation dimension has
paid considerable attention to issues of technical complexity and ostensibly narrow
markets, but the sheer volume of the spinoffs that naSa publications have heralded
may  suggest  that  the  durable  impact  here  was  through  extensive, cross-sectoral,
technical fertilizations, rather than in delivering market blockbusters.

here we will follow dri’s concern for novel or improved processes, techniques,

materials, and instrumentation, innovation efforts that commenced at the outset of

20. aerospace industries association of america,

The 1967 Aerospace Year Book

(Washington, dc:

Spartan Books, 1967), pp. 131–133. for complementary, contemporary views of this process, see
‘“arms makers” reshuffled by Shift to missiles,’

Financial World

113 (3 february 1960): pp. 3, 27;

“new Business from Space age,”

116 (15 february 1961): pp. 4–5; and “air force contractors:

Who’s tending the Store,”

Forbes

85 (1 June 1960): pp. 25–28. for similar portraits of individual

firms, see “profitable plain Jane” [northrop],

Forbes

88 (1 September 1961): pp. 26–27, and “martin

marietta—Space leader,”

117 (6 april 1962): pp. 8, 24.

21. for a challenging policy perspective on this issue, see robert Butterworth,

Growing the Space

Industrial Base: Policy Pitfalls and Prospects

, air War college, maxwell paper no. 23, (maxwell afB,

September 2000).See also Joan Bromberg,

NASA and the Space Industry

(Baltimore:the Johns hopkins

University press, 1999).a well-known and crucial liability in the economics of space business was the
unreliability of the monopsonistic market (there being only one buyer) and persistent uncertainties
about whether unplanned costs necessary for redesigns and fixes in experimental development
would be covered by naSa. note that mcdonnell (above) spent its own funds on preliminary
experiments regarding future aerospace projects in the 1960s; this, of course, affected the bottom
line and aerospace stock prices were mercurial throughout this era.

22. the institute noted that “the more subtle forms of technology transfer have had and will

continue to have the greatest impact—not the direct product type of transfer which is most often
publicized.” (

Commercial Application

, p. 5) See also

NASA Spinoffs

, 1992, and Sean o’Keefe,

Spinoff

2002, 40th Anniversary

(Washington, dc: naSa technology Utilization program, 2002). one

Web site visited in July 2006 indicates that something on the order of 1,400 spinoffs have been
documented in its publications:

http://www.sti.nasa.gov/tto/shuttle.htm

(accessed 16 July 2006).

129

Commercial and Economic

Impact of Spaceflight: An Overview

space initiatives and continue to influence present practice. from day one, operational
requirements for spaceflight components were sufficiently demanding that both
new materials and revamped processes for fabrication had to be devised. in addition,
challenges on the organizational side of project efforts promoted a variety of managerial
techniques, some new, some solidified after earlier cold war experimentation, and
some whose limits naSa work suggested.these will be briefly highlighted.

on the

manufacturing process

front, we can note innovations such as chemical

milling and high-energy forming (cited in the 1963 denver assessment referenced
in the epigraph of this chapter), as well as electron-beam, thermal, numerical control,
ultra-cold, and electrical discharge machining; electrolytic grinding; plasma and
induced magnetic field welding; plus stretch, magnetic, and shear forming.

chemical

milling initially proved valuable in shaping large components (such as missile
bulkheads) to close tolerances. regarded in 1961 as a “recent development,” it would
shortly become a major element in fabricating computer components, for it involved
protecting part of a surface with a masking agent, immersing the object in “an etching
bath,which may be acidic or basic,to remove [material] from specific areas to produce
the desired configuration,” then stripping off the masking agent.this technique was
particularly suited to “[d]esigns normally not considered producible by mechanical
means,” and could serve as an alternative to “mechanical milling [for] complicated
shapes.”

according to J. B. mohler, the Boeing engineer who outlined the process

and offered a dozen pointers for implementation,“all the common metals and most of
the less common” had been successfully shaped through chemical milling, though he
did not anticipate its use with semiconductors in integrated circuit production, which
soon overshadowed its relevance to aerospace components.

more dramatic, though likely having a narrower impact, was high-energy

rate forming (herf, also known as explosive forming), again initially connected

23. W. d. nelson et al., “trends in aerospace manufacturing,”

Metal Progress

79 (april 1961): pp.

106–110; “technology review, State of the art: production engineering,”

Space/Aeronautics

[r&d

handbook] 38 (1963): pp. i-3 to i-10; leo gatzek [north american],“fabricating metals for Space
Vehicles,”

Mechanical Engineering

87 (october 1965): pp. 46–49;“how manufacturing methods cope

with future Space projects,”

IronAge

184 (1 october 1959):pp.86–88.for recent assessments of several

of these innovations, see a. g. mamalis et al., “electromagnetic forming and powder processing:
trends and developments,”

Applied Mechanics Reviews

57 (July 2004): pp. 299–324; K. h. ho et al.,

“State of the art in Wire electrical discharge machining,”

International Journal of Machine Tools and

Manufacture

44 (2004): pp. 1247–1259; and J. c. rebelo et al,“an experimental Study on electro

discharge machining,”

Journal of Materials Processing Technology

103 (2000): pp. 389–397.

24. J. B. mohler [Boeing], “introduction to chemical milling,”

Materials in Design Engineering

53 (april

1961): pp. 128–132. Quotes from pp. 128–129.

25. ibid., 129. mohler listed “aluminum, magnesium, titanium, tool steels, stainless, steels, monel,

inconel, and various superalloys” as ready targets, with less experience as yet in chemically milling
“molybdenum, tungsten, beryllium, and tantalum.” on chemical milling and electronics, see William
t. harris,

Chemical Milling:The Technology of Cutting Materials by Etching

[oxford Series on advanced

manufacturing] (oxford, U.K.: oxford University press, 1976).

130

ocietal

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paceflight

with missile building. Used early on to create hemispheric domes for polaris and
minuteman missiles, explosive forming involves fashioning a die that mirrors the
shape desired, tightly fixing a component blank to the die, and evacuating air from
the space between the two pieces, lowering the apparatus into a large vat of water,
then setting off an underwater explosive charge just above the blank’s geometric
center.the water pressure blast at hundreds of feet-per-second (vs. roughly 5 fps [1.6
m/sec]for conventional forming) shapes the blank instantly to the die form and the
product needs little further machining. By 1961 ryan aeronautics had made domes
4.5 feet (1.37 m) across with this process, and the company’s James orr speculated
that dies 50 to 60 feet (15.2 to 18.3 m) in diameter could be constructed “in ground,”
like swimming pools, to create very large metallic components. explosive forming
was not a cost-saver, though; rather, it improved quality. aerojet-general estimated
that making 42-inch (1.07 m) missile domes by standard methods (welding smaller
pieces) cost $60 each, whereas explosive forming raised the per-item charge to $100.
the difference was that diameter, contour, and thickness tolerances were far closer.
an aerojet spokesman added: “[c]onventional methods simply aren’t satisfactory
for many of today’s missile requirements.” initially, the refractory metals (titanium,
molybdenum, et al.) could not be explosively formed except at high temperatures,
which made the water bath approach impossible; here ryan substituted sand
successfully, and fashioned a prototype titanium army helmet, using embedded
electric rods to heat both the die and blank. herf-work continues to the present,
though more often for complex, customized items than for serial production.

26. explosive forming was employed, confirming orr’s ambitions, to create the domes for the Saturn

rockets’ fuel tanks. photos in roger Bilstein’s

Stages to Saturn

(rep. ed., gainesville, fl: University press of

florida, 1996), p. 221, and mike gray’s account of fabrication, (

Angle of Attack

[newYork:W.W. norton,

1992], pp. 155–156) indicate that herfed “gores (curved, tapered wedges) were formed in a 60,000
gallon water tank,” then welded together. on explosive forming, see “naSa Studies high-energy
forming,”

American Machinist

105 (2 october 1961): p. 85; “herf: metalworking’s new frontier,”

American Machinist

101 (3 September 1962): pp. 93–104; James orr [ryan],“explosive forming”

SAE

Journal

69 (June 1961): pp. 57–59; floyd cox,“ryan’s experience in explosive forming,”

Metal Progress

80 (august 1961): pp. 71–73; “how explosives form Space-age parts,”

Steel

148 (5 June 1961): pp.

86–88; c.W. gipe [ryan], “high energy processes Shape Space-age parts,”

SAE Journal

69 (march

1961): pp. 44–45; l. c. Stuckenbruck and c. h. martinez [north american], “explosive forming in
the missile industry,”

Machinery

67 (november 1961): pp. 99–105; and r. gorcey et al. [rocketdyne],

“progress report on developments in explosive forming,”

Machine Design

33(13 april 1961): pp.

188–190. for a critical perspective, see “exploding the myths of explosive forming: Springback is Still
with Us,”

American Machinist

105 (26 June 1961): p. 79.“fabricating fuel tanks for the Saturn rocket,”

Modern Metals

18 (June 1962): pp. 46–48 is helpful on work in rocket building. for more on hot-

forming titanium, see c. f. morris, Jr. [convair],“titanium alloys hot-formed on gas-heated Stretch
press dies,”

Space/Aeronautics

34 (august 1960): pp. 117–118, 122, 126. regarding current uses, google

Scholar search using “explosive forming” and “high energy forming” turned up more than 700 books,
articles, and reports. for a comprehensive overview, see d. J. mynors and B. Zhang,“applications and
capabilities of explosive forming,”

Journal of Materials Processing

125/126 (2002): pp. 1–25.

131

Commercial and Economic

Impact of Spaceflight: An Overview

attending to other manufacturing process novelties must await a different occasion,

but it is worth noting that older industrial techniques also got spaceflight boosts and a few
twists:welding and metal spinning,for example.large,cylindrical rocket motor cases could
not be formed in one piece, and thus plates had to be welded into rings and the rings
had to be welded together (along with interconnecting forgings called Y-rings) to form
columns.this was a substantial fabrication challenge, asW. d.abbott noted in 1966:

all material and all welds must . . . be tough, ductile and free of

linear defects, particularly surface defects.the magnitude of the
problem is more apparent when it is recognized that there are more
than 3000 sq.ft.of surface and 500 ft.of weld on a 156 in.diameter
rocket motor case . . .all the material and every inch of weld must
be completely free of linear defects and gas holes or porosities no
larger than 0.04 in. in diameter to guarantee reliability.

the Saturn rocket case was 60 percent larger (260 inches [6.6 m] in diameter)

and a misery to weld. its tanks were a special nightmare:“at a time in history when
a flawless weld of a few feet was considered miraculous, the S-2 called for a half a
mile of flawless welds.”

Big artifacts, big fabrication problems.

moreover, what was being welded in many applications were not just standard

steels,but particularly challenging specialized alloys such as the “maraging”steel used
in rocket cases.the finished welds needed to have “essentially the same cleanliness,
mechanical properties and fracture toughness as the base material.” neither gas
metal-arc nor submerged-arc processes could handle these tasks. this triggered
refinement of plasma arc approaches to welding, which used an inert gas shield, a
“nonconsumable tungsten electrode” and a “constricting nozzle . . . to concentrate
the available thermal energy on a relatively small area of the workpiece.”the result
was faster, deeper welds with no contamination and remarkably few flaws.

further

27. W. d. abbott [excelco developments, inc.], “18% nickel maraging Steel fabrication application

to large rocket motor cases,”

Welding Journal

45 (July 1966): pp. 595–598, quote from p. 596.

28. gray,

Angle of Attack

, p. 154. on procedures for Saturn welding, see charles garland [Sun

Shipbuilding], “fabrication of 260 inch diameter rocket cases with maraging Steel,”

Welding

Journal

45 (January 1966): pp. 22–29.the alloy’s 18 percent nickel gave it “toughness,” which meant

stability under pressures of 200,000 psi and an ability at that strain to sustain cracks up to 1 inch long
without failure (p. 23). See also, for the atlas,W. p. mcgregor [convair], “inert-gas tungsten-arc
Spot Welding in missile production,”

Machinery

67 (december 1960): pp. 119–121.

29. l. J. privoznik and h. r. miller [Westinghouse],“evaluation of plasma arc Welding for 120 in. diameter

rocket cases,”

Welding Journal

45 (September 1966):pp.717–725,quotes from p.718;r.e.heise,“advanced

fabrication methods,”

Metal Progress

80 (July 1961): pp. 105–107. a titanium alloy liquid hydrogen testing

tank,built at Beech aircraft in 1962 (24 ft.long by 8 ft.diameter) involved several of the novel techniques. its
end closures were“stretch formed to contour,chemically milled and welded together”using an argon,plasma
welding technique.See“titanium liquid hydrogentank,”

Light MetalAg

e 20 (august 1962):p.7.

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ocietal

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paceflight

elaboration of precision welding has continued over the last four decades, widening
industrial practice and generating a considerable technical literature.

metal-spinning is an antique skill

in which a vertically rotating blank comes

in contact with a laterally moving bar, shaping the blank into a cone, a hemisphere,
or another three-dimensional curvilinear form. installed at Boeing to attack the
problems of shaping difficult-to-machine alloys and renamed “flowspinning,” it was
used to create nose cones, bulkheads, and rocket cases. for rocket cases, the spinning
lathe created a dome with vertical sides, then the top was cut off to leave a ring that
needed no welding and thus was stronger all around. (this worked only up to case
diameters of 50 inches [1.27 m].) here a traditional metalworking capability was
stretched in scale and range to new applications, including work with demanding
alloys and high-precision components.

new

materials

appropriate to space environments and launch stresses were

at the root of many process innovations and reorientations. as convair’s c. f.
morris explained:“By and large, conventional tooling and manufacturing methods
are inadequate for the high strength alloys—rene 41, Vascojet, titanium, various
stainless steels,etc.—that have recently come into use for high temperature aerospace

30. for a useful overview, see e. craig, “the plasma arc Welding process: a review,”

Welding

Journal

67 (february 1988): pp. 19–25. for the varieties of welding innovations, see patricio mendez

and thomas eagar,“Welding processes for aeronautics,”

Advanced Materials and Processes

159 (may

2001):pp.39–43.a google Scholar search for “plasma arc welding”turned up nearly 1,100 technical
papers and reports.

31. metal spinning was introduced in the United States by the 1840s and was used to make “gold,

silver and pewter hollowware and chalices” for generations. only after World War i were experiments
made with “tougher metals.” See

http://www.jobshop.com/techinfo/papers/metalspinpaper.shtml

(accessed

18 July 2006). it was used as well on nuclear submarine components (raymond Spiotta, “age-old
art helps Build nuclear Submarines,”

Machinery

67 (march 1961): pp. 102–105.

32. “Boeing flowspins the Superalloys,”

Steel

148 (february 20, 1961): pp. 62–64; “lockheed

Wheezey-gheezey Sizes missile Shells,”

Steel

148 (June 12, 1961): p. 145; lewis Zwissler [aerojet],

“Spinning makes Stronger rocket cases,”

Metal Progress

78 (december 1960): pp. 70–77. for more

recent applications,see e.Quigley and J.monaghan,“metal forming:ananalysis of Spinning processes,”

Journal of Materials ProcessingTechnology

103 (June 2000): pp. 114–119.another pre-World War ii process

given fresh impetus by space fabrication needs was powder metallurgy. See c. g. goetzel and J. B.
rittenhouse [lockheed],“powder metallurgy applications in Space Vehicle Systems,”

Journal of Metals

57 (august 1965): pp. 876–879 (with 30 citations to related studies). for more information, see gordon
dowson,

Powder Metallurgy:The Process and Its Products

(newYork:hilger,1990).a related manufacturing

dynamic which cannot be covered here is the creation of “clean rooms” for production and assembly
of delicate electronic and instrumentation components. a quick google and google Scholar search
turned up very little research on the history of the clean room, but Sandia labs claims it built one in
1960 as a weapons spinoff.a 1959 trade journal article documents a clean room at Kearfott, a subsidiary
of general precision, in little falls, nJ [“‘totally pure air’ required for plant,”

Air Conditioning, Heating

and Refrigeration News

88 (5 october 1959): pp. 6–7], and a 1963 essay in machine design pointed out

that beyond dust and particles, organic hazards to aerospace hardware also had to be attacked [“of mold
and missiles,”

Machine Design

35 (18 July 1963): pp. 146–150]. i am not aware of an integrated study of

the clean room’s history, but marshall University’s dan holbrook presented a preliminary inquiry into
this topic at the 2006 Society for the history of technology conference.

133

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Impact of Spaceflight: An Overview

structures.”

Yet beyond heat stresses, materials innovations also had to overcome

challenges presented by other conditions: very low temperatures, no atmosphere, zero
gravity, sudden shocks, cyclical stresses, and vibration in its varied forms. in 1960–
1961, hughes aircraft created test chambers to explore metals’ reactions to some of
these conditions, trying to anticipate space-based materials difficulties. at near zero
atmospheric pressure, they found “odd pits forming on the [metallic] specimen[s],” and
identified a phenomenon called “metal evaporation,” which could lead to unintended
metal plating as released molecules attached themselves randomly to other surfaces. for
hughes, the radical implication was that “whole sections of a vehicle can disappear
during an extended space voyage if the wrong metal is employed.”in addition,lubricants
vaporized in zero gravity and metals would “cold weld when . . . left in contact for a
few days.”Several“tough plastics,like vinyl ...get brittle and crumble in space,”hughes
found, butteflon was not among them, accounting for its utility.

Such environmental

conditions only added to the need for special materials that could stand heat, cold,
vibration, etc. hence, extensive trials of steel-based and nickel-chromium alloys were
fundamental, in tandem with work on refractory metal alloying elements, ceramic-
metal amalgams, honeycomb structures, and lightweight metal substitutes including
resins, ceramics, rigidified fabrics, fiberglasses, and space-stable polymers.

By the mid-1960s,concerns arose that metals and alloys were reaching their limits

of manipulability. in a 1966

Space/Aeronautics

state-of-the-art review, metallurgists and

technology managers noted the following:

regarding high-strength steel alloys,“lack of adequate fracture toughness, stress
corrosion and . . . stress cracking resistance, weldability [and] nondestructive
inspection techniques.”

33. morris, “titanium alloys,” p. 117. candidate materials were created at what seems a remarkable

rate in the early spacefaring years. one annual review in 1961 described 92 new materials, ranging from
alloys to lubricants to coatings, offered by 78 different firms, ranging from ge and crucible Steel to
rollway Bearing and Waimet alloys. “condensed review of Some recently developed materials,”

Machinery

68 (october 1961): pp. 115–124. See also Jack hauck and JohnVaccari,“aerospace materials:

today and tomorrow,”

Materials in Design Engineering

62 (august 1965): pp. 97–103.

34. “how metals react in Space,”

Steel

149 (2 october 1961): pp. 58–59. Zinc, cadmium, and

magnesium alloys evaporated (reducing light weight magnesium’s attractiveness), whereas iron, steel
alloys, titanium, platinum and tungsten did not show these patterns (adding to light-weight titanium’s
value). See also eric linden,“aerospace electronic materials,”

Electro-Technology

68 (1961): pp. 125–131,

esp. p. 128, and n. h. langdon, “polymers out in Space,” [two parts]

Rubber Journal and International

Plastics

(4 february 1961): pp. 174–178 and (11 february1961): pp. 210–213.

35. r. m. treco, “how Space-age energy Sources Spark rise of new materials,”

Iron Age

187 (2

march 1961):pp.87–89;a.hurlich and J.f.Watson [convair],“Selection of metals for Use at cryogenic
temperatures,”

Metal Progress

79 (april 1961): pp. 65–72;“Space:a galaxy of new materials concepts,”

Steel

153 (1 July 1963): pp. 32–39;“

Structures and Materials

,” Space/aeronautics 46 (mid-July 1966): pp.

80–92, 166, 168–169 (three pages of citations).this last article emphasizes the relationship between new
materials and structural dilemmas for launch, reentry, and space operations vehicles. See also “Bundled
into orbit,”

PlasticsWorld

20 (march 1962): p. 46 and “fabricating for planes and missiles,”

PlasticsWorld

20 (february 1962): pp. 50–51.

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regarding superalloys, “further increase in temperature limits . . . appears very
doubtful.” attempts to improve strength and stability by reducing chromium
content have “increased hot corrosion and oxidation problems.”

regarding critical light metal alloys, for aluminum, an “increase in strength
without decrease in ductility” was needed; for titanium, ductility at extremely
low temperatures was a problem; and for beryllium, brittle fracture issues had
not been resolved.

regarding the refractory metals, problems with “metallurgical stability and
preservation of mechanical properties in [a] variety of high-temperature
environments.”

in  consequence, designers  had  been  placing  increased  emphasis  on  coatings,
composites,  and  unconventional  materials.  for  example,  by  1963  aerojet
experimented  with  a  “filament-wound  fiberglas”  version  of  its  260-inch
diameter  (6.6  m)  rocket  case, but  encountered  substantial  problems, some  of
them with materials providers. charles Walance of hughes aircraft’s aerospace
group complained: “We don’t want to make materials and components.We’re
systems people. But we have found, in space-work, that we must do an alarming
number of jobs ourselves because industry is unable or unwilling to attempt to
meet our needs.”

the air force appears to have stepped in at about this time, creating its

advanced filaments and composites division in January 1965. general Bernard
Schriever argued for simultaneous efforts on multiple composite components and
formulations, looking for a “cascade” effect—“the extra performance gain which is
achieved when the many individual gains are examined all together.”the air force
estimated it had taken $350–$400 million to bring titanium from experimental
work to regular use in aircraft and aerospace devices, and believed “comparable
development of composites will cost at least as much.”

again,composites (particularly

resin-based ones and those using fiberglass) had been floating at the technological

36. “Structures and materials,”

Space/Aeronautics

91 (1966). on refractories, see “refractory

metals emerging as Structural materials,” Steel 148 (8 may 1961): pp. 115–130.

37. “Space: a galaxy,” pp. 32, 35. this doesn’t seem to square with the flood of new materials

(see note 31), though problems of communications and testing may have been involved. for a later
overview of advanced materials and aerospace initiatives, see “testimony of gregory eyring, ota,
July 7, 1988,”

National Critical Materials Policy

, hearing before the Subcommittee on transportation,

aviation and materials of the committee on Science, Space, and technology, hr, 100th. congress,
Second Session, no. 1241, gpo:Washington, dc, 1988, pp. 49–66.

38. michael l.Yaffee,“composite materials offer Vast potential for Structures,”

Aviation Week and Space

Technology

82 (3 may 1965): pp. 38–53, quotes from pp. 39, 46. for a brief look at the history of

industrial composites, see a. Brent Strong and michael miles, “metals vs. composites: Breaking
down the elements,” available at

http://mlf.byu.edu/pages/papers/files/metalPlastic.php

, and a. Brent

Strong,“history of composite materials: opportunities and necessities,” available at

http://mlf.byu.

edu/pages/papers/files/history.php

(both accessed 18 July 2006).

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Commercial and Economic

Impact of Spaceflight: An Overview

edges of engineering practice since just before the World War ii, but aerospace
demand proved propulsive through creating a renewed, complex environment of
experiment and application.

thus, the materials revolution percolated through

spacefaring initiatives and was partly propelled by them.

creativity in

instrumentation

is remarkably well documented as critical to

space project capabilities, though in my view the historical issues are relatively
under-conceptualized and have been researched in a rather scattered way. Similar
to composites, instrumentation advances got a big boost in the 1940s. two ge
engineers reported in 1947 that “the exacting requirements for electronic and other
control and measuring devices during the recent war stimulated rapid progress in the
improvement of electric instruments and associated components.”

Yet by the early

1960s,instrument builders were fretting over what they termed“the measurement gap,”
echoing the “missile gap” rhetoric of the late 1950s.their concern even had a cold
war resonance, when aerojet’sV. r. Boulton quoted a Soviet source approvingly:

it  is  known  that  the  uniformity,  correctness,  and  correct
employment of measures and measuring devices is a matter of
great  importance  for  the  national  economy, since  the  use  of
incorrect measures and measuring devices causes unproductive
losses,  leads  to  an  increase  in  production  rejects,  and  to  an
incorrect assessment of material values.

the U.S. industry had grown by 50 percent in four years since 1958 (estimated

sales rising from $4 billion to $6 billion),

spurred by the surge of aerospace

contracting, but the high-precision requirements of space projects forced a complex
problem to the surface. Boulton explained:

39. Brent Strong notes that “[i]n the frantic days of the war, among the last parts of an aircraft to

be designed were the ducts. Since all the other systems were already fixed, the ducts were required
to go around the other systems, often resulting in ducts that were convoluted, twisting, turning,
and place[d] in the most difficult to access locations. metal ducts just couldn’t easily be made in
these ‘horrible’ shapes. composites seemed to be the answer.the composites were hand laid-up on
plaster mandrels which were made in the required shape.then after the resin had cured, the plaster
mandrels were broken out of the composite parts. literally thousands of such ducts were made in
numerous manufacturing plants clustered around the aircraft manufacturing/assembly facilities.”
See “history of composite materials,” note 38.

40. d. B. fisk and J. m. Whittenton, “progress in instrument design,”

GE Review

50 (october 1947):

pp. 8–11, quote from p. 8.

41. orval linebrink [Battelle], “the measurement gap,”

ISA Journal

8 (february 1961): pp. 38–41;

V. r. Boulton, “economics of instrumentation precision for Space Vehicle development,”

Aerospace

Engineering

20 (march 1961): pp. 30–31, 64–67, quote on p. 30 from Soviet journal measurement

techniques. See also l. e. howlett, “the crisis in measurement,”

The Engineering Journal

44 (april

1961): pp. 73–76.

42. “instruments chart rapid growth,”

Iron Age

192 (19 September 1963): pp. 70–71. By 1966,

a technical journal estimated instrumentation sales for r&d alone (not counting production and
monitoring of installed systems) at $4.5 billion annually. See “instrumentation and the management
of r&d,”

Research/Development

17 (august 1966): pp. 23–36, data on p. 27.

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paceflight

ideally a measuring system should be an order of magnitude more
repeatable and accurate than the system under test . . . so that
variations in the results from test to test represent primarily the
variations in performance of the item being tested. realistically,
the repeatability of most measuring systems is hardly as good as
that of the systems they are used to evaluate—at least this is true of
present day rocket propulsion systems . . . .the uncertainty in [our]
evaluation results . . . is at present much too large.

measurement was the heart of instrumentation, of course, being concerned

with  mass, time, temperature, dimensions, force, stress, vibration, speed, altitude/
depth, volume, and  flow, gauged  through  devices  operated  electrically, optically,
physically, sonically, etc. Unsurprisingly, the  uncertainty  that  concerned  Boulton
also surfaced in defining the boundaries of instrumentation, as a function and as an
industry. during the 1950s and 1960s, monitoring and control technics, electric/
electronic information processing tools (computers),and simulators were all regarded
by insiders as elements of the burgeoning instrument family.

naSa’s Keith glennan nicely captured the broader situation as the transition

from mercury to gemini and apollo evolved in 1961:

proud as we are of our space technology, we must also be
sensible to its failings.the demand for precision measurements is
outstripping the best that U.S.science and technology can provide.
for upcoming space ventures, naSa needs to measure such
things as engine parts to one-millionth of an inch tolerance, and
rocket engine thrust to 0.5% accuracy at one million pounds.

devices for measuring and reporting spacecraft location through telemetry,

for  accurately  assessing  temperature, pressure, radiation, stresses  and  strains, and
a  dozen  other  dimensions  of  mission  artifact  conditions  before  and  after  launch
had to be created or adapted, then tested for precision, and evaluated to discern
whether what was being measured was directly salient to a critical factor.the rise
of  reliable, precise, and  speedy  instrumentation  as  a  key  dimension  of  technical
practice preceded naSa’s inauguration, but its momentum accelerated at a rapid
pace once piloted spaceflight became a national priority. in addition, the host of
biomedical spinoffs increasingly described in naSa’s publications has its origins in
space program monitoring and stressing of human subjects, commencing with flight
simulators in mercury’s early months and flowing through to biomedical testing

43. Boulton, pp. 30–31. Boulton observed that aerojet’s testing expenses (20,000 tests over five

years on 20 weapons systems) amounted to as much as 70 percent of project costs—a proportion
that could be reduced dramatically through improved instrumentation accuracy.

44. a. g. mcnish, “fundamentals of measurement,”

Electro-Technology

71 (may 1963): pp. 113–128;

“how We’ll measure tomorrow,” Steel 151 (31 december 1962): pp. 20–24.

45. .t. K. glennan,“taking the measure of Space,”

ISA Journal

8 (february 1961): p. 39.

137

Commercial and Economic

Impact of Spaceflight: An Overview

at Spacelab and during Shuttle flights. in naSa’s

30th Spinoffs Review

(1992),

instruments comprised a third of the items discussed (28 of 78), which suggests the
durable significance of innovation in this domain.

finally, naSa projects provided test platforms or incubators for a number of

managerial  techniques  as  well: project  management  and  team-tasking, high-level
quality control, reliability analyses, and handling concurrency/redesign challenges.
the  project  management  dimension,  building  on  air  force  and  navy  missile
development practices, is well known. general Sam phillips brought the program
evaluation and review technique (pert) to the latter stages of project mercury,
and  using  this  integrated  means  of  charting  interdependent  task  trajectories  was
significant  in  gemini’s  and apollo’s  ability  to  meet  deadlines, most  notably  the
end-of-decade moon landing target.along the way, naSa and the department of
defense (dod) devised a cost-sensitive upgrading of pert and a series of now
widely used protocols:Work Breakdown Structure (1962), the earned Value System
(1963), and the probabilistic graphical evaluation and review technique (1966).

perhaps equally important, aerospace initiatives presented unique management

problems, which reframed the notion of a project and the position of project
manager.two parameters dominated:

first, a  specific  performance  requirement  must  be  met  at  a
single point in time under conditions of substantial uncertainty
and high risk—from a technical as well as from a time-and-cost
point of view. Second, the project is large, urgent and important
enough  to  demand  the  concentration  of  company  talents  to
fulfill  contractual  requirements. the  project  manager  is  the
keystone of this pyramid of human and material resources.

alongside formalized techniques, effective project managers rapidly developed

ad hoc and temporary, informal lines of communication in order to tackle problem
solving, assembled special cross-disciplinary teams to attack bottlenecks, and limited
insertion of pert and related monitoring devices. as robert rados, who was
involved in the tiros weather satellite for naSa, explained, the project manager has

46. naSa’s

1992 Spinoffs

volume (note 1) addresses 22 biomedical technologies, 14 industrial

productivity,and 12 consumer/home/recreation devices,among the 78 spinoffs profiled.interestingly,
the 2002 40th anniversary

Spinoffs

list (note 22) reported just 10 biomedicals (perhaps reflecting

the reduction of piloted spaceflight), 6 industrial productivity enhancers, and 5 consumer/home
items. meanwhile, it and communications goods and capabilities numbered 14, while 7 safety and
security innovations made the list (some specifically referencing 9/11). interestingly, instruments
dropped to about one-quarter of the 50 spinoffs detailed in the 2002 volume. on simulators, see
melvin Sadoff and charles harper [naSa-ames],“piloted flight-Simulator research: a critical
review,”aerospace engineering 21 (September 1962): pp. 50–63.

47. grant cates, “improving project management with Simulation and completion distribution

functions,” ph.d. dissertation, industrial engineering, University of central florida, 2004, chapter 1.

48. george Steiner,“the project manager’s problems,”

Astronautics andAeronautics

4 (June 1966):pp.75–76.

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paceflight

to “program for success,” which involves securing the “material basis for continued
progress” on the work and “creat[ing] an atmosphere that favors ambitious, forward
looking decisions rather than restrictive and cautious ones.”

actualizing the concept

of the innovation manager was crucial, as lockheed head l. eugene root emphasized
in his 1962 presidential address to the institute of aeronautical Sciences.a key danger
in merging the engineer/scientist and the manager lay in the skeptical, analytical, and
conservative outlook which is the desired initial result of scientific training—question
all propositions,demand proof through more documentation,send back for future study.
this is a deadly trap for managers in a frontier technology.most great decisions have been
difficult to support by the facts available at the time. innovative project managers had
to “demonstrate the ability to make decisions” in the absence of “conclusive feasibility
studies,” in urgent, high-risk situations with multiple uncertainties.this problem set lay
well outside the terrain of routinized corporate management.

the importance of quality control and components reliability was evident to

all parties in aerospace manufacturing and spaceflight operations, but here naSa
practice soon indicated the limits of industrial approaches rather more than their
utility.three problems surfaced to bedevil projects: (1) insufficient numbers of units
or iterations in use to make statistically significant reliability or refined quality control
procedures effective; (2) complexity of devices which presented an “overwhelming
number of different possible modes of failure”;and (3) the persistent pattern of artifact
redesign which made it impossible to have a stable object for quality and reliability
testing.

as engineers from chrysler’s missile division recounted:

the  large  number  of  unavoidable  engineering  changes
superimposed on the 60,000 to 70,000 parts in a specific missile
system  would  make  it  virtually  impossible  to  cope  with  the
resultant complexities on a practical basis.experience has shown
that  engineering  changes  during  the  first  production  year  of

49. engelbert Kirschner, “the project manager,”

43 (february 1965): pp.

56–64, quote from 64.this is a remarkable review of work practice among three pms: rados on
the tiros satellite at naSa,abraham Schnapf at tiros-rca, and William chalmers on trW’s Vela
project. on integrative, task-based teams at rocketdyne, see “top-Speed technology puts ideas
into orbit,”

Factory

122 (September 1964): pp. 84–89.

50. l. eugene root, “our expanding Scientific and technological challenge,”

Aerospace Engineering

21 (december 1962): pp. 8–9, 68–70 (quotes from p. 68).

51. W. W. hohenner, “manned rocket flight requires a trade-off Between performance and

complexity,”

Westinghouse Engineer

20 (march 1960): pp. 54–58 (quote from p. 56); dorian Shainin,

“managing a reliability program,”

Aerospace Engineering

1 (december 1962): pp. 64, 92–93; e. J.

lancaster and r.e.Biedenbinder [USaf Ballistic Systems division],“a critique of Quality assurance
activity in air force Ballistic missile programs,”

Industrial Quality Control

18 (January, february, and

march 1962): pp. 9–13 (Jan.), pp. 5–9 (feb.), and pp. 5–9 (mar.). See also edward Sharp [naSa
lewis], “Quality to meet the demands of Space,”

IQC

16 (July 1959): pp. 9–11 and John condon

[naSa],“naSa’s reliability requirements,”

IQC

22 (december 1965): pp. 287–289

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Commercial and Economic

Impact of Spaceflight: An Overview

a missile weapon system average out at approximately 1,100
changes per week, resulting in as many as 800 modifications in
inspection and testing instructions.

at times like these, the commercial impact of space initiatives was to indicate

the limits of managerial practice and technique and the need, in complex task
environments, to combine personalized and detail-oriented management.

if we return at the close to the positions articulated in this essay’s epigraphs,

we may well agree with the denver team that the commercial impact of naSa
innovations was indirect and specialized, and that separating naSa contributions
from those of military technology projects fragments the web of connections and
exchanges that experimental development featured.to be sure, exploring aerospace
technology’s uses, plus the dynamics and constraints involved in its fabrication, can
help alleviate the handicap of “insufficient information . . . at the level of the firm.”
Yet, while recognizing how thin historical research still is into these applications,
we would surely be hard-pressed to concur with alex roland’s assertion that the
nation “has little to show for [its] investment save circus.” Beneath the satellites,
probes, and human spaceflights, for a generation or more extensive innovations in
process, materials, and instrumentation have flowed outward from naSa projects
and resonated through the industrial economy.their scope can more readily realized
than their scale can be measured, but their significance is evident.

52. J. f. patrick and f. g. Brune, “Quality instructions for missile production,”

Industrial Quality

Control

19 (September 1962): pp. 19–22 (quote from p. 19). patrick and Brune outlined a data-

processing approach to tracking revisions in “inspection and test instructions” but admitted that
“major problems of correlation, up-dating, recording, and distribution of information still remain.”

hapter

The Political Economy

of Spaceflight

Stephen B. Johnson

olitical economy has a long, distinguished history, going at least as far back as the
eighteenth century. adam Smith’s

Wealth of Nations

(1776) is the most famous

of these early works; it discussed the complex relationships between economic and
political activities while at the same time laying the foundation for classical economic
theory. at that time, and indeed continuing to this day, the question of appropriate
government policies to spur economic activity to national advantage has remained
of paramount importance to national leaders. Spaceflight is a prime candidate for
political-economic  analysis, largely  because  the  government-industry  nexus  has
remained  tightly  interlocked. free-market  or  laissez-faire  policies  have  seldom  if
ever applied to space activities, and the classical economic theories that assume the
existence  of  a  free  market  have  correspondingly  little  traction  in  describing  the
economics of spaceflight. By contrast, political economic approaches are directly
applicable, due to the continuous and intimate interactions of government, industry,
and academia in space activities.this essay offers a preliminary exploration of the
political economy approach to the subject of spaceflight, so as to provide a few paths
upon which future researchers may tread.

1. this approach has been tried at least once before. See m. a. holman,

The Political Economy of the

Space Program

(palo alto, ca: pacific Books, 1974). many things have changed since that time, most

prominently the massive growth of telecommunications and navigation, and the end of the cold war.

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Why Pay to Go into Space?

to begin to understand the political economy of spaceflight, investigators must

first understand the reasons why humans are willing to devote significant resources
to going into space. put another way, what do people “demand” that going into
space can “supply”?

rocketeers achieved the first trips into space with the german V2 ballistic

missile during World War ii. given that other weapons existed to deliver explosives
at  long  distances, what  characteristic  made  the  development  of  ballistic  missiles
appealing? it was not merely the ability to deliver at a long distance, because the
german  luftwaffe  had  bombers  for  that  purpose. rather, it  was  the  ability  to
do this automatically (without human pilots) and at such high speeds as to make
interception impossible (their relative invulnerability in flight) that made them of
such  great  interest. many  nations  realized  that  once  the V2  attained  operational
status a new and enormously destructive weapon now existed, one possessing great
speed and invulnerability.

immediately, space became the new “high ground,” coveted by military and

intelligence organizations for the same reasons they have always wanted to control the
high ground. from high locations, one can see for very long distances to monitor the
activities of adversaries.Vast resources have gone into the development of reconnaissance
satellites of various kinds.the very first satellite development program in the U.S. was
an air force reconnaissance program. although the military was the first to point
telescopes and cameras at earth, science too can take advantage of the high ground to
observe various natural and human-made changes to earth’s land, seas, and atmosphere.
Weather prediction is vastly improved by viewing the atmosphere from space.

finally, the sheer difficulty of going into space has posed a challenge and

an adventure, which makes for dramatic entertainment and, if successful, garners
respect.the space race between the U.S. and the Soviet Union had many facets, but
the human flight program in particular was significantly influenced by the challenge
and drama of putting and maintaining humans in space. launches have been and
remain a very dangerous affair; the space race in the 1960s put time pressures on
both sides to cut corners and try ever-more complex and risky activities, from

2. this is another way of looking at rationales for spaceflight, as in roger launius’ recent article on the

subject. this section differs from launius’ account in that i search for specific characteristics of the
space environment that make it useful, whereas launius’ article stresses the reasons typically given by
politicians, leaders, and others.those reasons and rationales often simply assume, without any discussion
or direct statement, the characteristics i discuss here. See roger d. launius,“compelling rationales for
Spaceflight? history and the Search for relevance,” in

Critical Issues in the History of Spaceflight,

Steven J.

dick and roger d. launius, ed. (Washington, dc: naSa Sp-2006-4702, 2006), pp. 37–70.

3. Benjamin King and timothy Kutta,

Impact: The History of Germany’s V-Weapons in World War II

(rockville centre, nY: Sarpedon, 1998); michael J. neufeld,

The Rocket and the Reich: Peenemünde

and the Coming of the Ballistic Missile Era

(new York:the free press, 1995).

143

The Political Economy of Spaceflight

extravehicular activities (eVas) to putting men on the moon.though less dramatic,
the Soviets set many long-duration space records on the

Salyut

and

Mir

space stations

as their response to american lunar success.

the robotic space race also had its sense of adventure and exploration,as the U.S.

and Soviet Union sent probes farther and farther out into the solar system, with the
U.S. in particular making amazing discoveries that caught the attention of the world.
more recently, the ability to create “virtual exploration” through mars rovers in the
1990s and 2000s brought the space program into the homes of anyone with a computer
hooked up to the World Wide Web. this form of exploration became increasingly
popular to a generation brought up on computer games and the internet.

the drama of human flight and the wonder of astronomical discoveries interest

young people as well as adults.this fact provides another justification for spaceflight: its
ability to lure young people to careers in science and engineering.developed economies
require scientists and engineers to function and to continue to spur economic growth
through the development of new technologies, making education in mathematics,
science, and engineering a priority. Spaceflight lures students into these fields (the
“space and dinosaurs”phenomenon),and hence one of its justifications for government
spending is as a mechanism to increase the supply of technically capable citizens.

technical advances often bring economic opportunities and growth.Without

question, spaceflight  has  created  or  propagated  a  number  of  technical  advances,
some  of  which  have  had  significant  impacts  on  earth. examples  include  digital
imagery enhancement, which is now often used in medical applications; fireproof
space suit materials, which are now used in firemen’s gear; and testing of food for
astronauts, which contributed to food testing programs worldwide.these so-called
spinoffs have frequently been cited as reasons for funding the space program.What
has made space a particularly effective generator of spinoffs is the fact that the space
environment  is  extreme  or  unusual  in  a  variety  of  ways. these  differences  force
scientists and engineers to think in new ways about how to accomplish tasks in
space, which in turn create novel technologies and new ideas. Spinoffs have thus
become another classical argument for government funding of space activities.

4. naSa publishes its annual magazine

Spinoff

to advertise this aspect of space. See also david Baker,

Inventions from Outer Space: Everyday Uses for NASA Technology

(new York: random house, 2000).

the counter-argument is that you can spend the money directly on those applications on earth and
get more “bang for the buck.”the counter-counter-argument is that just allocating money to those
earth applications does not guarantee that people would have conceived of those solutions. in other
words, the uniqueness of the application requires people to think differently than they otherwise
would do, regardless of the money spent. my opinion is that spending money in two different places
gets you two different sets of technology, both of which may be useful but in different ways.there
has also much debate about the exact quantity and quality/nature of space spinoffs. Some argue
that space programs are very conservative and hence are not really innovators. others note that in
the 1950s and 1960s they were not so conservative. my view leans more toward the innovative side.
Some areas have been consistently at the forefront of technologies, such as telecommunications,
autonomy, lightweight materials, and certain human physiology applications.

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in the long run, space offers the potential of the resources of the universe,

which will likely become increasingly important as earth’s resources dwindle
through exploitation and use. to date, the only space resource that has been used
has been solar power to power spacecraft, but the potential for mineral resources on
asteroids and other celestial bodies exists, should the advance of technologies and
the economics on earth or in space make it viable.

one truly final argument has attracted lower levels of interest and funding,

although the argument itself goes back to the beginning of modern space activities.in
the late nineteenth century,lord Kelvin argued that the theories of thermodynamics
implied that the Sun was only some tens of millions years old and is continuing to
cool, implying that life on earth had not been around that long and furthermore
could not survive much longer.

Since then, scientific discoveries and theories have

furthered arguments about the potential future of longevity of life on earth. By the
1950s astrophysicists theorized that the Sun will eventually become a red giant star,
burning out any life on earth, though billions of years in the future.

however, by

the 1990s, scientists had evidence that a massive asteroid hitting earth millennia ago
had caused the extinction of the dinosaurs and many other species on earth.a similar
strike would likewise almost certainly destroy humanity. finally, the invention of the
atomic bomb and the hydrogen bomb by the early 1950s showed that humans had
the potential to destroy all human life with human-made weapons.

for all of these ills, many space enthusiasts argue that humans must leave the

planet in order to survive. in this case, space is simply “anywhere but earth,” since
in the long run earth is doomed. a more positive view is that humans can build a
new utopia away from the perils and contaminating influences of earth. in both its
negative survival and positive utopian forms, this argument entices some to support
space advocacy groups and to become involved in the space program. although this
“ultimate motivation” is quite important for many individuals to become involved in
space activities and to get space activities started when little funding is available, in
practice this has had little economic impact because funding generally requires an appeal
to hard-headed politicians and non-space leaders who require near-term, practical uses.
the main discernible results of these concerns are modest increases of scientific funding
in the 1990s and early twenty-first century to search for near-earth asteroids.

in summary, space has several enticing features that lure military, civilian, and

commercial organizations and individuals to spend money to take advantage of
them. Understanding the political and economic processes and structural features
by which this money is spent is the task of political economy. Several approaches to

5. Joe d. Burchfield,

Lord Kelvin and the Age of the Earth

(chicago: University of chicago press, 1975,

1990), p. 43 in the 1990 edition.

6. Jean-louis tassoul and monique tassoul,

A Concise History of Solar and Stellar Physics

(princeton, nJ:

princeton University press, 2004).

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The Political Economy of Spaceflight

space economics and commerce appear in the research and trade literature, each of
which sheds light on different aspects of the subject.

the Uses and abuses of economic data

to gauge the economic impact of space activities, it is frequently desirable to

provide quantitative measures.

as with many other efforts to quantify social activities,

this is an activity fraught with methodological dangers and problems. enumerating a
few of the more common complications of providing quantitative measures will provide
a counterbalance to the danger of believing too literally some of the more typical
quantitative measures provided by various government and nongovernment sources.

in general, we can characterize economic activities as chains of suppliers and

consumers. for example, diSh network provides television service in my home,
and i am thus a consumer of a particular satellite service and diSh network is
the supplier. diSh network in turn purchases satellites from manufacturers such
as Boeing or european aeronautic defence and Space company (eadS). in this
linkage, diSh network becomes the consumer and Boeing or eadS the supplier.
Similarly, Boeing and eadS purchase thousands of components from various
subsystem and component vendors, and so on.

one unfortunately common problem is to count the purchases or revenues

at more than one location along the chain, thus doubling or tripling the estimated
sector size.there are at least two ways to battle this problem.the simplest is to pick
one consistent link in the chain and measure at only that location.depending on the
interest of the analyst, different links will be of more or less interest as the measuring
location of choice. this works well to measure the size of a given space sector,
such as satellite manufacturing or space telecommunications.another method is to
count only the locations where the money is actually spent on people, which ideally
correlates to measuring the number of personnel involved at each link along the
chain.this method is helpful in determining structural changes in a sector, such as
determining the relative sizes and change in sizes of different companies in a supply
chain. for example, analysis shows that in the european aerospace industry, prime
contractors have grown in comparison to subsystem contractors in the early years
of the twenty-first century.

another issue is selection of revenues or expenditures to measure money flows.

although it is typical and often required for companies to provide revenue figures,
it may be more useful to measure expenditures because expenditures also include

7. the best overview of space economic data sources is henry r. hertzfeld,

Space Economic

Data

(Washington, dc: U.S. department of commerce, office of Space commercialization,

december, 2002).

8. aSd-eurospace,

Facts and Figures, The European Space Industry in 2005

(paris: aSd-eurospace,

June, 2006).

146

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paceflight

funding acquired through stock sales,bank loans,or other borrowing mechanisms.for
example,if one tried to measure the economic impact of the communications Satellite
corporation in the mid-1960s, measuring revenues would be deceptive because its
revenues were very small in comparison to expenditures, as it spent funds raised from
stock offerings.

a similar problem applies to assessing the impact of the iridium

venture in the 1990s. in this case, the company went bankrupt and thus its money
spent to acquire telecommunications satellites ultimately came from outside investors
who received little or no return on their investment. in both cases, these expenditures
created a temporary spike in satellite communications economic activity.

government data sources, when available, are often reliable measures but they

only cover certain topics of interest to those government institutions.thus one can
get accurate figures on government expenditures, including those to government
contractors. Some organizations, such as naSa, gather their statistics into historical
data books that are extremely useful for this sort of research.the U.S. department of
defense’s (dod) space expenditures are well documented and can be extracted for
those who have the patience to go through the defense budget line by line, except
for “black” programs, which are hidden throughout the defense budget. naSa is
required to publish its annual

Aeronautics and Space Report to the President

, which

provides a quick and useful overview of government air and space expenditures.
the department of transportation publishes quarterly reports that provide
excellent data on the politics and economics of launchers, whereas the department
of commerce’s office of Space commercialization performs a variety of studies
and provide occasional reports on major space sectors.the U.S. census Bureau has
its own economic classification system for industries in the U.S., with aerospace
products and parts manufacturing (north american industry classification System
[naicS] 3364) being the primary category in which space activities are classified.
other nations usually have similar documentation, but access to the data can be
difficult for noncitizens and, even when available, the nuances of each system require
significant amounts of time and effort to learn. thus, an international picture of
government space expenses is remarkably difficult to acquire. the Space policy
institute of george Washington University performed an annual survey of civilian
space programs and results published annually in

Aerospace America

. Unfortunately, in

recent years, this survey has been halted due to increasing national barriers to release
of this information.

forcorporations,spacebusinessisoftenonlyoneofseveralproductlines,andextracting

the proportion that is space-related cannot be easily done unless the companies themselves
release data that separates them.

Space News

has annual surveys leading to publication of its

“top 50” space manufacturers, and other lists for the top telecommunications operators,

9. david J.Whalen,

The Origins of Satellite Communications 1945-1965

(Washington, dc: Smithsonian

institution press, 2002).

10. hertzfeld,

Space Economic Data

, p. 14; e-mail, hertzfeld to author, 8 april 2007.

147

The Political Economy of Spaceflight

direct broadcast companies,and so on.the data are only as reliable as the companies’efforts
and willingness to provide accurate data, but are readily available and occasionally useful.

industry associations also collect a variety of economic data on the aerospace

industry. the aerospace industries association (aia) publishes its annual

Aerospace

Facts and Figures

for the United States, while eurospace provides its

Eurospace Facts

and Figures

for the space industry in europe. the two associations use different

methodologies for somewhat different objectives. the aia data focus on overall
aerospace manufacturer revenues and employment, and separates them into air and
space domains. eurospace uses a sophisticated methodology to track expenditures
at different industrial levels to do structural analyses, as well as to track the overall
revenue and employment figures.

finally, it is important to use launch statistics, which each nation is required

by the registration convention to supply to the United nations. these data, by
their nature, are a straightforward “apples-to-apples” comparison of what actually
goes into space, without the complications of currency conversions or measurement
complexities (though one needs to distinguish between launch attempts and launch
successes). Simple comparisons and assessments of launches and the satellites placed
in orbit provide an excellent counterbalance to economic data.a couple of examples
show the criticality of using these data. one major problem in the assessment of
space activities is estimating the economic importance of secret reconnaissance
programs, since the economic data remains classified. to get around this problem,
by using declassified information about the corona program and its design we can
estimate the rough costs of a corona satellite.

the cost of thor-delta launchers of

the period can also be estimated from civilian launch data. combining this with the
number of corona/reconnaissance launches that occurred (which can be extracted
from the launch data), one can estimate annual expenditures on these programs.

another troubling economic problem is estimation of the economic value of

Soviet and russian or chinese programs. in the case of the former Soviet Union or
china, budget figures are not available or, in the few cases where they are, they are
unreliable due to the lack of convertibility between capitalist and socialist economic
systems. in the case of russia, the value of the ruble is extremely low compared
to the dollar or euro, so reports of russian government expenditures on space
programs lead to a significant underestimate of its economic importance in russia
and worldwide. for all of these types of cases, launch data can provide a means to
provide a first order of magnitude estimate.

overall, it is important to compare the data from these various sources to assess

their reasonability,while recognizing the means by which,and the purposes for which,
they were gathered. only in this way can we avoid glaring mistakes and also avoid the
all-too-easy belief in the absolute validity of the various enumerations that exist.

11. despite official classification of corona satellite costs, this came out in public literature in an interview of

a major participant, frank Buzard, as $5 million per corona and about $500,000 per camera, for a total of
some $5.5 million per corona satellite.“an interview with frankW. Buzard,”

Quest

13/4 (2006): p. 36.

148

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Attempts

100

120

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149

The Political Economy of Spaceflight

National View

one common viewpoint from which to assess space programs is a“national view,”

in which the space activities of each nation are compared.thus one can compare national
government space funding levels, commercial contracts of corporations categorized by
nation, the space policies adopted by various nations, the number of satellites launched
by each nation, and so on.the emphasis of this sort of classification is usually to assess
the relative effectiveness of a nation’s government policies as compared to other nations’
policies, typically to improve economic competitiveness vis-à-vis other nations.

to take a simple example, an annual tabulation of all orbital launch attempts—

categorized by nation and projected from 1957 to the present—gives a simple indicator
of the relative scale of investment by each nation in space activities.Shown in figure 9.1,
this way of assessing space activities shows that the U.S. and the Soviet Union and its
successors have been by far the dominant space powers.although this is not particularly
surprising, what is surprising is how many more spacecraft the Soviet Union launched
during the 1970s and 1980s than did any other nation.this seems to indicate that the
Soviet Union was the dominant space power during this time. in addition, any thought
of the supposed recent demise of russia as a space power should be exorcised by the
continued frequency of russian launches, both to launch spacecraft from other nations
as well as satellites from russia and the other former Soviet republics.

When we compare instead national government budgets as shown in figure 9.2,

we get an entirely different view of the relative economic significance of the U.S. versus
the Soviet Union. here, the U.S. appears as the overwhelmingly dominant space power.
instead of a time series, i here only show a single year because it is extraordinarily

Figure 9.2—Government space spending, 2005.

150

ocietal

mpact of

paceflight

difficult to compare budget figures for capitalist nations to their communist
counterparts. even when the budget figures can be compared—when both nations
are “capitalist” and their exchange rates theoretically reflect the relative value of
their currency—these figures remain problematic. is it really true, for example, that
russia’s program is less important at an international level than, say, Japan’s?this seems
implausible, given the number of launches of each nation.

even such simple comparisons as government spending have inherent difficulties.

to make a fully legitimate comparison, each nation must gather the relevant statistics
and those statistics must be comparable from nation to nation. in general, however,
the statistics, even when they are gathered, are not strictly comparable. in some cases,
the statistics exist but remain classified. reconnaissance and intelligence budgets are a
classic example. or, in the case of russia, some of its government space institutions are
“commercial”in that they sell their services.for example,is U.S.government funding of
russia to build international Space Station modules to be tracked as a U.S. or russian
figure? Similarly,if South Korea’s government purchases a communications satellite from
a european vendor, does this reflect South Korean or european space competitiveness?
it depends on the question the analyst is trying to answer.

another way to assess the relative importance of a nation’s space program would

be to compare the number of citizens employed in that nation’s space industry.this
is probably a more reliable way to make apples-to-apples comparisons, but the data
are difficult to acquire.

although most national space policies are focused on particular space sectors

such as communications or navigation, a few affect many space activities.the most
prominent of these in the U.S. are the international traffic in arms regulations
(itar). Since space technologies are by their nature tied to a host of military
concerns,they are subject to itar.this has been particularly important in the export
of communications satellites. in 1999, congress, responding to perceived technology
transfer of american satellite technologies to china, placed communications satellites
on the “munitions list,” governed by itar.the transfer of export licensing authority
from the department of commerce to the department of State significantly hurt
american manufacturers, as the regulations have slowed and in some cases prevented
export of american satellites, to the benefit of european companies.

the purpose of these national comparisons is often to assess relative national

economic competitiveness so as to determine the effectiveness of space policies.
although in a general sense these figures provide a relative scale of activities by different
nations, they are largely useless for policy assessment. this is because space policies
largely refer to specific sectors of space, such as navigation, space launch, remote
sensing, human flight, or science. in other cases, the policies refer to intergovernment

13. aSd-eurospace,

Facts and Figures,The European Space Industry in 2005

(paris:aSd-eurospace, June,

2006), p. 12. european governments spent

€

2.662 billion on space products in 2005.

14. James a.Vedda,“Space commerce,” in

Space Politics and Policy:An Evolutionary Perspective,

ed. eligar

Sadeh (dordrecht,the netherlands: Kluwer academic publishers, 2002), pp. 219–220.

151

The Political Economy of Spaceflight

relations,technology transfer,regulations over foreign corporate ownership,and so on.
it is very difficult to translate from a policy decision or proposal to an unambiguous
impact on the overall space budget or launch figures.these figures are generally too
high to be of direct utility.We must use other means to be politically useful.

Functional View

another typical way to assess space activities is by functional view: military,

civilian, and commercial.this tripartite division recognizes that there are three very
different motivations, and usually three very different sets of organizations, that are
involved in space.

the military, which for the purposes of this paper will include civilian

intelligence-gathering organizations, exists to provide national security. for
millennia, the military has had its own unique set of institutions, starting with armies
and navies, expanding to include air forces in the early twentieth century, and space
assets with the advent of the Space age. initially controlled by the military, space
endeavors were the province of one or more of the armed services.

in the Soviet Union there was no strict separation of military and civilian

efforts and, of course, no commercial activities in the socialist state.the ministry of
armaments controlled the development of ballistic missile and space programs until
1965, when they were transferred to the ministry of general machine Building.
the air force trained cosmonauts, and from 1959 to 1981 the Strategic missile
forces, a branch of the military, operated all ballistic missile and space systems.

Was

the launch of Yuri gagarin in april 1961 a “civilian” activity, even though it was
operated by the military? Similarly, the Soviet space station program of the 1970s
and 1980s consisted of stations for both military (almaz) and civilian (doS—long
duration Station) purposes, but both programs were operated by the military and
all were called

Salyut

and proclaimed to be civilian systems.

initial space efforts in the U.S. were divided between the three military

services: army, navy, and air force. all three services began developing ballistic
missiles and satellites. the army’s primary space organizations, the army Ballistic
missile agency and the Jet propulsion laboratory, were transferred to naSa by
1960, at which point army space efforts focused on antiballistic missile systems and
satellite communications.While the navy’s Vanguard program and personnel were
transferred to naSa, the navy managed to retain most of its space organizations,
which concentrated on space navigation, communications, and with the national
reconnaissance office, reconnaissance.the air force garnered the lion’s share of
military space programs, with the primary roles for space system development and
space launch.it was involved with space reconnaissance,communications,navigation,
tracking, and a host of other functions.

15. asif a. Siddiqi,

Challenge to Apollo:The Soviet Union and the Space Race, 1945–1974

(Washington,

dc: naSa Sp-2000-4408, 2000), pp. 891–895.

152

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paceflight

the U.S. civilian space program came into official existence in 1958 when

naSa was created to manage the civilian space effort separately from military space
activities. civilian  space  programs  are  intended  for  the “public  good,” including
programs  for  weather  forecasting,  technology  development,  national  prestige,
education, and science. Separation of civilian from military space efforts in the U.S.
is not always obvious. for example, the U.S. navy ran the Vanguard program, which
was intended for “civilian” scientific purposes. although generally categorized as a
military space activity because the navy ran the program, its function was civilian
in intent. many science and technology programs are similarly difficult to classify.
So, for example, the clementine probe to the moon was a military program to test
technologies but it performed civilian science functions. many geodetic satellites
are  run  by  civilian  institutions  but  were  mainly  motivated  by  military  purposes,
such as ballistic missile targeting. it has been customary to consider all nonmilitary
government space expenditures (that is, money spent by any government institution
not part of the dod, with the exception of intelligence) as “civilian.”

other civilian space programs came into being in a number of nations soon

thereafter, sometimes as national civilian agencies, such as france’s centre national
d’Études Spatiales (cneS), and sometimes divided among a variety of institutions,
as occurred in the United Kingdom,West germany, and Japan.

commercial space efforts began very early in the U.S., with the launch of

american telephone  & telegraph’s  (at&t)  privately  funded  the telstar  satellite
in  1962. the  international telecommunications  Satellite  organization  (intelsat)
came into being in 1964 as a multinational consortium to run the international
communications satellite network.although the U.S. created a private corporation,
the  communications  Satellite  corporation,  to  manage  its  shares  in  the  new
organization, other nations usually assigned government organizations to represent
their interests in intelsat.this is because most nations ran their telephone networks
as  national  public  services.  So,  although  intelsat  has  usually  been  classified  as
“commercial” by american analysts, other nations considered it a civilian activity.

many private corporations depend mainly or even totally on government

funding. for example, the private space company United Space alliance, a joint
venture of Boeing and lockheed martin that services the Space Shuttle, is totally
dependent on the government. is it “commercial”? a number of space companies
that did not depend on government funding, such as panamSat and directV came
into existence by the 1980s and 1990s.

other commercial-civilian hybrids abound. arianespace and Spot image were

established as commercial companies but were partly owned by the french government,
whereas the launchers and satellites they operated were developed by governments
(the european Space agency [eSa] for arianespace, and france for Spot image).

16. J. Krige, a. russo, and l. Sebesta,

A History of the European Space Agency 1958–1987

,Volume ii

(noordwijk,the netherlands: eSa Sp-1235, 2000), pp. 472–481.

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The Political Economy of Spaceflight

after the collapse of the Soviet Union,the russian government institution Khrunichev
sold launch services to other nations and to private entities, and owns shares of private
companies. in the space launch industry, it is customary to classify any launch that is up
for bid by launch providers as commercial.this can be true even if the launch provider
(supply) and the satellite owner (demand) are government-owned! commercial often
means “competed,” not necessarily “private.” other confusing cases have existed in
the past, such as when private companies martin marietta and general dynamics
competed with the U.S. government (naSa) and with the european public-private
hybrid company arianespace to launch intelsat satellites in the early 1980s. certainly
there was competition, but in this competition private entities such as martin marietta
and general dynamics stood little chance against the rival governments. of course, one
can also question how “commercial” martin marietta and general dynamics really
were, since the vast bulk of their funding (and many upgrades to their launch vehicles)
were funded by the U.S. government.

one government’s military or civilian expenditure is often a commercial

company’s profit or another government’s revenue, so it is often a matter of choice
or convenience to decide whether an expenditure or revenue is military, civilian, or
commercial. even with all of the complications just described, the tripartite division
of military, civilian, and commercial does provide more visibility into the relative
scale of activities, now divided by major function: national security, public good, or
economic profit.this gives a somewhat more informative view of the relative scale
of activities for these different national functions.

figure 9.3 shows the relative size of military, civilian, and commercial activities

in the U.S. in 2005, as defined by government expenditures for military and civilian
purposes, and by revenues for commercial activities. Strictly speaking, these are not
the same things and so the comparison is not as direct as one would like, but the
statistics on commercial activities are usually based on revenues, not expenditures. if
one could construct similar statistics for other nations, national comparisons could
be made regarding the relative priorities of each nation. it is quite clear that after the
collapse of the Soviet Union, U.S. military space expenditures far exceed those of
any other nation, with russia probably remaining in second place and china third,
with europe not too far behind china. figure 9.4 shows the relative proportions of
european space activities,which shows the much smaller proportion of expenditures
on military space as compared to civilian and commercial activities. expenditures by
all other nations are significantly smaller than these four. israel’s space activities also
have a large military slant, and recently Japan has funded military space activities for
communications and reconnaissance.

17. Joan lisa Bromberg,

NASA and the Space Industry

(Baltimore, md: Johns hopkins University press,

1999), pp. 124–132.

154

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paceflight

Figure 9.3—Relative size of U.S. space functions, 2005.

Figure 9.4—Relative size of European space functions, 2005.

18. these civilian and military figures come from the 2005 U.S. national budget, Budget of the United

States government,Washington, dc: government printing office. it can be found online at

http://

www.gpoaccess.gov/usbudget/

(accessed January 2007). the commercial figures is a rough estimate

derived from several sources, including Space foundation,

The Space Report 2006

(colorado

Springs, co: Space foundation, 2006), the international Space Business council, and department
of commerce publications.

19. aSd-eurospace,

Facts and Figures, the European Space Industry in 2005

(paris:aSd-eurospace, 2006), p. 12.

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The Political Economy of Spaceflight

the major trend over the nearly 50 years of spaceflight has been the growth of

commercial activities relative to civilian and military expenditures. from essentially
zero in the 1950s, by the early twenty-first century the commercial aspects of space
have grown to significance, with revenues in the tens of billions of dollars each
year. military spending has remained relatively constant or growing over the years,
whereas civilian space spending has remained essentially fixed after the initial bump
of the 1960s space race.

Institutional Structure

a typical economic view of an industry subdivides that industry into the

major suppliers and then lower-tier companies down the supply chain.the lowest
tier provides small components to the next higher tier, which integrates them into
larger units, and then ultimately to the top-tier provider, which provides the full
system or service to the consumer.this type of analysis can be applied to the space
industry or, more accurately, to the aerospace industry.

While some “pure” space companies exist, many space products are supplied

by larger companies with diversified product lines. in most, though not all, cases,
these are aerospace companies that provide a host of aviation, space, and defense
products to governments and to other companies. Boeing is one of the best known,
being most famous as a commercial airline manufacturer. however, in 2006 Boeing
also manufactured the delta launcher, a variety of commercial, civilian, and military
satellites, and many other defense-related products, along with a few other smaller
lines of business.the eadS is the largest european aerospace manufacturer, with a
similarly diversified portfolio.

the largest companies, which supply entire launch vehicles, satellites, aircraft,

and missiles, are known as prime contractors. after decades of consolidation, in
the U.S. and europe these had been reduced to a very small number: lockheed
martin, Boeing, northrop grumman, raytheon, eadS, and alcatel.these gigantic
companies consisted of what had formerly been many smaller companies, though
in their time these had been considered large prime contractors in their own right,
such as douglas, martin, messerschmidt, hawker Siddeley, mcdonnell, grumman,
Sud-aviation,dornier,north american,and so on.

the massive prime contractors

20. definitions of prime, subcontractors, and component suppliers can be found in U.S. general

accounting office,“Best practices: dod can help Suppliers contribute more to Weapon System
programs,” (march 1998) gao/nSiad-98-87. See also Keith hayward,

The World Aerospace

Industry: Collaboration and Competition

(london: duckworth & rUSi, 1994), p. 6.

21. roger e. Bilstein,

The American Aerospace Industry

(new York: twayne publishers, 1996), pp. 117,

176–177, 215–218; Bromberg,

NASA and the Space Industry

, pp. 12–13; european aeronautic

defence and Space company,

On the Wings of Time: A Chronology of EADS

(2003

)

, found online

http://www.eads.com/1024/en/eads/history/wings_of_time/wings_of_time.html

(accessed January

2007);alcatel-lucent Web site,

http://www.alcatel-lucent.com

(accessed July 2007).

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paceflight

engaged in horizontal consolidation (merging with their peer prime contractors) and
vertical consolidation (acquiring lower-tier companies that supplied components,
subsystems, and services to them). one can see marxist capitalist dynamics behind
many of these mergers. during economic slowdowns, less profitable companies exit
the market, go out of business, or are acquired by more successful firms.

these mergers could not have occurred unless the governments of the

relevant nations approved, or at least declined to intervene to prevent them.

antitrust regulations in the U.S. and europe meant that mergers were reviewed
to  ensure  they  did  not  unduly  hamper  competition.  in  europe,  additional
complications  ensued  because  the  mergers  needed  to  create  companies  on  the
scale of the american behemoths had to cross national lines. no single european
nation  had  a  large  enough  aerospace  industry  to  compare  with  the american
domestic  market. in  both  the  U.S. and  europe, many  mergers  occurred  from
the late 1940s through the 1960s, and then again in the 1990s and early 2000s.
the truly massive companies that exist in 2006 came into being only after the
dod—no doubt in consultation with other parts of the U.S. government—told
the major aerospace companies in 1993 that now that the cold war had ended
there  was  not  enough  business  to  support  them  all  at  the  levels  to  which  they
were accustomed, that there would be fewer of them after a few years, and that
the U.S. government would look favorably on consolidation.

observing events in the U.S., european aerospace officials in both private

industry and government concluded that they could not compete with the U.S.
unless they, too, allowed the formation of truly massive companies. By the early
2000s, the european consortia and so-called national champion companies merged
into the multinational aerospace companies eadS and alcatel, on scales nearly the
size of Boeing and lockheed martin.

one could argue that marxist dynamics

apply—governments, responding to or in submission to the large companies,
allow them to merge, though many of the conditions attached to various mergers
somewhat weaken the argument.

Below the giants are second-tier companies. these are often very large

companies in their own right, often with significant or preponderant business
interests outside of aerospace.in the U.S.,these include companies such as honeywell,
well known for building thermostats for private homes but also a primary builder
of avionic systems in aerospace; international Business machines (iBm), the
world’s largest computer manufacturer; Bendix, supplier of a variety of electronic

22. for a general discussion of these mergers prior to 1994, see Keith hayward,

The World Aerospace

Industry: Collaboration and Competition

(london: duckworth & rUSi, 1994), chapter 3.

23. Walter J. Boyne,

Beyond the Horizons:The Lockheed Story

(new York: St. martin’s press, 1998); John

a. tirpak, “the distillation of the defense,”

Air Force Magazine

(July 1998),

http://www.afa.org/

magazine/July1998/0798industry.asp

(accessed 13 January 2007).

24. european aeronautic defence and Space company,

On the Wings of Time: A Chronology of EADS

(2003).alcatel-lucent Web site,

http://www.alcatel-lucent.com

, (accessed July 2007).

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The Political Economy of Spaceflight

components; litton, manufacturer of gyroscopes and other electronic systems; pratt
& Whitney, builder of jet and rocket engines; rocket engine manufacturer aerojet;
and a number of others.

Some second-tier suppliers also build full systems as well as components.they

are considered second-tier mainly because they are much smaller than the giants.
orbital Sciences is a typical example, building small satellites and launchers. Ball
aerospace, which is a part of the larger Ball corporation known to homemakers
as the maker of fruit jars, has built many scientific satellites over the years and is a
manufacturer of star trackers.

Below the subsystem suppliers are component suppliers. these consist of

hundreds of small companies, each of which typically specializes in a small set of
products. examples include adcole, a well-known maker of sun sensors; eagle
picher, the manufacturer of most space-qualified batteries; and moog, which
manufactures actuators.

one can analyze the relative success of these tiers, as shown in figure 9.5. from

1997 to 2002, second-tier companies in europe declined dramatically in comparison
to first- and third-tier corporations, based on the political-economic dynamics of the
mergers during that period.

political factors influenced the formation of collaborations between private

companies and with governments. european companies formed complex alliances,
becoming official consortia starting in the late 1960s and 1970s to ensure that each nation
that contributed to a space project’s funding would benefit by contracts to companies
in their nations in return. in 1995, lockheed martin and rockwell international (later
Boeing) created a joint venture known as United Space alliance to operate the Space
Shuttle, as the U.S. government pressed for privatization of Shuttle operations. the
fall of the Soviet Union presented new opportunities for multinational joint ventures
between launcher companies and organizations, such as international launch Services
(lockheed martin and Khrunichev State research and production Space center),

Starsem (arianespace, eadS, russian federal Space agency, and Samara Space
center),

and Sea launch (Boeing, rocket and Space corporation energia [rKK

energia], Sdo Yuzhnoe [Ukraine], and Kvaerner aSa).

these organizations, which

had both russian and Western ownership, made it easier for the U.S. and european
governments to purchase russian launches. Because Western companies profited by
the purchase of russian launch services, purchasing the significantly cheaper russian
launches was made more politically palatable.

25. many examples of various-sized suppliers can be found in, for example,

2004 North American Space

Directory,

7th ed. (Bethesda, md: Space publications llc, 2004),

http://www.SpaceBusiness.com

(accessed January 2007). Similar directories exist for europe.

26. international launch Services Web site,

http://www.ilslaunch.com/aboutus/legacy/

(accessed 13

January 2007).

27. Starsem Web site,

http://www.starsem.com/starsem/starsem.html

(accessed 13 January 2007).

28. Sea launch Web site,

http://www.boeing.com/special/sea-launch/

(accessed January 2007).

158

ocietal

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paceflight

Europe Industry Structure

0.0

500.0

1,000.0

1,500.0

2,000.0

2,500.0

3,000.0

3,500.0

4,000.0

1996 1997 1998 1999 2000 2001 2002

M Euros

Large Int
Subsys
Equip

Figure 9.5—Turnover of first-, second-, and third-tier suppliers in Europe from 1996–2002

(Source: Eurospace).

Some joint ventures, such as international launch Services, included

government organizations as partners in a commercial enterprise. in other cases,
such as arianespace, Spot image, and rKK energia, governments owned some
shares in the otherwise private companies. in many of these cases, the owning
governments turned over designs,hardware,or facilities to the company they owned,
with the agreement that the private company merely had to cover the operational
costs but not the development costs of the systems given to them. governments
also create commercial arms of their organizations, such as antrix corporation, the
commercial arm of india’s department of Space.

governments also hired or created nonprofit organizations to perform various

functions related to space activities. in the U.S., the aerospace corporation and
mitre corporation were both created with the guidance and approval of the U.S.
air force (USaf) to provide “systems engineering and technical direction” to
private contractors building space systems.the aerospace corporation, created in
1960, performed these functions initially for the USaf ballistic missile programs
and later for USaf space satellite programs.

mitre did the same for electronics and

command and control systems such as the complex built at cheyenne mountain,
colorado, for the north american aerospace defense command (norad).

29. antrix Web site,

http://www.antrix.gov.in/

(accessed 13 January 2007).

30. the aerospace corporation,

The Aerospace Corporation: Its Work, 1960–1980

(el Segundo, ca:the

aerospace corporation, 1980).

31. davis dyer and michael aaron davis,

Architects of Information Advantage: The MITRE Corporation

since 1958

(newport, ri: community communications corporation, 1998).

159

The Political Economy of Spaceflight

other nonprofit institutions were hired to perform functions normally run

by government organizations, such as the california institute of technology’s Jet
propulsion laboratory (Jpl), which was initially hired by army ordnance to build
ballistic missiles. it then became, in effect, a naSa field center, building and managing
most of naSa’s deep space probes and its deep Space network. Jpl often hired and
managed contractors just as other true government organizations did.

the Johns

hopkins University applied physics laboratory (apl) became a prime contractor both
for the dod and for naSa,competing against profit-making corporations to integrate
and operate satellites.

the charles Stark draper laboratories of the massachusetts

institute of technology built components, such as the apollo inertial guidance system,
and Stanford University built the gravity probe B satellite for naSa.

government space organizations also vary significantly from country to

country.although many nations, including the U.S. and france, quickly centralized
their civilian space programs, others, including Japan, canada, the Soviet Union,
germany, and the United Kingdom, operated space programs for decades before
creating national space agencies.many smaller nations continue to operate their space
programs without a centralized civilian space agency. naSa initially centralized
civilian space programs but,since the 1960s,other civilian and commercial institutions
have gained access to, and eventually some control of, various space programs, such
as the national oceanic and atmospheric administration’s (noaa) operation of
weather satellites and some remote sensing satellites.

military programs also showed a variety of institutional forms. generally

speaking, tension existed between the civilian and military institutions and also
between the regular armed services (army, navy,air force) and other military and
intelligence institutions over control of space activities. in the U.S., the USaf was
the predominant space organization but the army and navy retained significant
programs; the intelligence agencies maintained significant interests and their own
programs, either individually or shared with the military services. the dod
established its own space organizations at times, such as the missile defense agency,
the descendant of the Strategic defense initiative organization. early on, the Soviet
Union created separate organizations to control many space activities as part of its
Strategic rocket forces. in 2001 these became the Space forces.

By the nature of the communist state, the Soviet Union developed all of its

initial space programs as government institutions. initially these were “special design
bureaus” (oKBs) that performed the research and development activities to create

32. clayton Koppes,

JPL and the American Space Program:A History of the Jet Propulsion Laboratory

(new

haven, ct:Yale University press, 1982).

33. William K. Klingaman,

APL—Fifty Years of Service to the Nation: A History of the Johns Hopkins

University Applied Physics Laboratory

(laurel, md:applied physics laboratory, 1993).

160

ocietal

mpact of

paceflight

the novel technologies of ballistic missiles and spacecraft.the design bureaus were
either newly created or modified from former scientific research institutes (niis).
once designed, manufacturing of these systems was assigned to manufacturing
facilities, most typically old World War ii plants. over time, alliances between the
design bureaus and manufacturing plants stabilized, and in the 1970s they were
combined into scientific-production associations (npos).With the collapse of the
Soviet Union, some of these npos were privatized, such as rKK energia, while
others remained government institutions, such as Khrunichev.

Sector View

perhaps the most useful way to view space activities is by sector, which for the

purposes of this paper is defined as an economic division in which the suppliers
compete to provide a specific product line that consumers wish to purchase. Space
transportation provides examples of how this definition applies.all spacecraft must
be launched into space, and those who have spacecraft to place there are consumers
of  the  space  transportation  product. at  this  level  of  analysis, all  launch  providers
are  potential  suppliers  to  the  spacecraft  operators  because  spacecraft  operators
will  generally  investigate  all  possible  suppliers  and  may  ask  for  bids  to  launch.
in  responding  to  requests  for  bids, the  launch  providers  must  be  aware  of  their
competition and set their prices and services based partly on the potential prices
and  services  of  their  competitors. this  self-grouping  of  suppliers  and  consumers
defines economic sectors.

this seems straightforward, but there are always complications. in the

transportation sector, although it is true that all suppliers are potentially competitors
for all launches, in practice this is not the case. Some launches, such as U.S. military
and intelligence satellites, can by law only be provided only by U.S. suppliers. Similar
restrictions exist for military satellites of other nations. Some european civilian
launches are restricted to using the ariane launcher, and so on.after the

Challenger

accident of 1986, the Space Shuttle was prohibited from commercial launches and
soon the military pulled its payloads from the Shuttle as well. other limitations
are technical. although, in principle, small satellites could be placed in orbit on
any launcher (in some cases by multiple small satellites on a single launcher), large
satellites can be put in orbit only by large launchers. only the U.S. Space Shuttle,
the russian Soyuz, and the chinese long march can place humans in orbit. for
some purposes we can consider space transportation a single sector, but in practice
one can argue it consists of several subsectors that are semi-independent of each
other. Similar reasoning applies to other sectors and subsectors.

34. Siddiqi,

Challenge to Apollo

,table 3.

161

The Political Economy of Spaceflight

Figure 9.6—Space sector sizes, 2006.

politics is another reason to group economic activities by sector. in general,

national laws and policies affect only one or two sectors. for example, a variety of
laws and policies relate to the development of private remote sensing satellites and
the regulations that govern sale of imagery from them.these laws have little or no
bearing on other sectors. Similar sector-specific policies relate to transportation,
navigation, communications satellites, and so on, making the sector view one of the
most important ways of understanding economic activity.

a quick tour of the major sectors provides a view of the scope and scale of

space endeavors. figure 9.6 provides an estimate as of 2006 of the relative scale of
the major space sectors. the most obvious deduction from this chart is that the
communications sector is by far the largest, at roughly $83 billion. it is interesting
that historical research into space activities gives little indication that this is the
case, with the overwhelming majority of both academic and nonacademic writing
focused on the human flight and science programs, with secondary emphases on
satellite reconnaissance programs and space politics. the other large sectors are of
approximately equal size:science (including both microgravity and physical sciences);
navigation; human flight; intelligence, surveillance, and reconnaissance (iSr); and
early warning (eW). remote sensing and meteorology, and transportation, are of
roughly equal size, in the range of $5–$11 billion annual expenditures.technology
research and development is in the $2–$3 billion per year range, and the insurance
sectors are smaller, from $1–$2 billion annually.

35. author’s estimate, based on assessment of several sources that are described in this chapter.

162

ocietal

mpact of

paceflight

Transportation

no spacecraft arrives in space unless transported there by some launch vehicle.

launchers originally derived from ballistic missile designs and were therefore initially
controlled exclusively by the military. By the late 1950s and early 1960s, however,
both the Soviet Union and the U.S.realized that the initial ballistic missile designs that
used liquid cryogenic propellants were poor choices for weapons, compared to solid
and liquid storable designs. cryogenic systems using liquid oxygen provided greater
performance and thus continued to be used to put spacecraft in orbit,whereas ballistic
missiles switched to storable technologies that could be launched within minutes or
seconds instead of the hours or days required for cryogenic systems.

the connection of ballistic missile with space launcher technologies has

remained a primary facet of space transportation politics and largely explains the fact
that throughout the twentieth century no privately funded space launch system has
succeeded, despite some attempts. governments have generally sought to develop
launch technologies for both military and civilian purposes and have generally
prohibited the export or sale of these technologies (or at least current versions of
these technologies) to others.the U.S., in particular, has taken a variety of measures
to prevent export of its own launcher technologies (with some exceptions, such as
the sharing of delta launcher technology with Japan), and has also attempted to
prevent the export of ballistic missile technologies by other nations, such as russia’s
sale of KVd-1 rocket engines to india in the 1990s.

national control of launcher technologies is the only way to guarantee national

access to space. no nation or group of nations that has long-term space ambitions or
military interests in space can afford to rely solely on other nations to put their commercial
or military payloads in orbit. europe developed its integrated launcher programs, first
europa in the 1960s and then ariane in the 1970s, to ensure that it could launch its
own commercial communications satellites in the face of american resistance. china’s
ballistic missile and launcher programs derived from its desire for military, economic,
and cultural independence from both Soviet and american models.

the rise of a commercial space launch industry to provide space transport for

private or semiprivate payloads posed problems for the national control idea.initially,
naSa negotiated with other nations to provide launch services for their payloads,
though its system of reimbursement was extremely cumbersome—continuing to bill
nations for services months and years after their payload was launched, as naSa’s
government accounting system figured out all of the expenses involved. naSa
essentially purchased launchers from corporate manufacturers and then integrated
the payload and launched the vehicles itself. in the 1970s, naSa promoted the
Space Shuttle as a means to dramatically lower the cost of access to space, which
forced european nations (then developing the ariane launcher through the eSa)
to reconsider its organizational and pricing mechanisms. naSa’s advertised Shuttle

36. Brian harvey,

Russia in Space:The Failed Frontier?

(chichester, U.K.: Springer-praxis, 2001), pp. 257–260.

163

The Political Economy of Spaceflight

prices were based not on actual costs, but on a variety of mathematical models of
future Shuttle operations as well as on the prices of expendable launchers such as
delta and atlas, because the Shuttle had to charge less than these systems to make
the Shuttle economically competitive.this, of course, would put american vendors
of expendable launch vehicles (martin marietta, mcdonnell douglas, and general
dynamics) out of business,while europe would have to meet the challenge of Shuttle
pricing even if it meant selling ariane launches at a loss. Both sides preemptively set
very low initial prices as a means to lure customers to their vehicles.

these policies clashed with the ronald reagan administration’s ideology

of the superiority of free enterprise over government activities. although naSa
aimed to lure all payloads to the Shuttle (hence, putting all other competitors out
of business), the reagan administration and the europeans worked to develop and
promote private industry.the europeans created arianespace, the first private space
launch company, though it was partially owned by european governments and
only manufactured and operated vehicles whose development was fully funded by
the eSa. the reagan administration sanctioned the development of commercial
launchers, to be licensed by the department of transportation (not naSa) only
after the government-funded manufacturing infrastructure was sold back to industry.
commercial launches would not be viable if the Shuttle delivered on its promise
of cheap and reliable space access. Unfortunately for naSa, the Shuttle never did
achieve these goals, and the reagan administration pressed naSa to set its prices
closer to the actual Shuttle costs.the coup de grâce was the

Challenger

accident of

January 1986, which ultimately led the reagan administration to prohibit naSa
from commercial launches. this, along with other regulations that loosened the
military’s grip on the contractors, paved the way for the emergence of american
commercial launch companies to compete with arianespace.

Unfortunately for all Western nations, in the late 1980s and early 1990s the

collapse  of  the  Soviet  Union  and  china’s  first  steps  to  earn  cash  from  the West
meant  that  russian  and  chinese  organizations  began  to  offer  launch  services  as
well. due to the very low wages in both nations, both could offer their launchers
at  very  low  prices  that  could  still  earn  huge  profits  while  remaining  far  below
Western costs. left unhindered, they would destroy the american and european
commercial  launch  industries  (the  noncommercial  launch  industry  would  still
survive by guaranteed launches from domestic markets). american policy makers
faced the dilemma of wanting to integrate the chinese, and especially the russians,
into the capitalist system to stabilize the russian economy and bind russia to the
West, while simultaneously trying to protect the Western space launch industry and
enable cheaper launches for the american communications satellite industry.

37. J. Krige,a. russo, and l. Sebesta,

History of the European Space Agency 1958–1987, Vol. 2,The Story

of ESA 1973-1987

(noordwijk,the netherlands: eSa Sp-1235, 2000), chapter 11.

38. Joan lisa Bromberg,

NASA and the Space Industry

(Baltimore, md: Johns hopkins University press,

1999), chapter 6.

164

ocietal

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paceflight

two solutions prevailed.the first was to sign agreements with china (1989),

russia (1992), and Ukraine (1995) to place a quota on the number of chinese,
russian, and Ukrainian commercial launches and ensure that they charged prices
comparable to Western companies. put bluntly, the U.S. forced chinese, russian,
and Ukrainian companies to charge high prices and make very large profits so as not
to tempt american and other satellite operators to choose exclusively non-Western
launchers.

for russia and Ukraine, this policy came to an end in the early 2000s.

the second solution was the integration of russian, Ukrainian, and Western

companies into corporate joint ventures so that russian companies could bid for
Western launches; the russians could learn how to do business with the West; and
to ensure that some of the money going for russian launches benefited Western
companies. this resulted in a number of joint ventures, including international
launch Services (lockheed martin and Khrunichev), Sea launch (Boeing, rSc
energia, Kvaerner,Yuzhnoe), Starsem (eadS, arianespace, russian federal Space
agency, and Samara Space center), and eurockot (eadS and Khrunichev).

Spurred by the prospect of hundreds of satellite launches for medium-earth orbit

constellations of communications satellites, a number of purely private companies
formed in the middle to late 1990s to build space launchers. companies such as Kistler,
Beal aerospace, pioneer rocketplane, and rotary rocket spent tens and hundreds of
millions of dollars before the bottom fell out of the prospective satellite boom in 1999 and
2000. most of the companies went under, and those that remained sought government
funding to survive. the november 2005 announcement by naSa administrator
michael griffin that private companies could bid for government contracts to deliver
water and other bulk materials to space provided some encouragement to these efforts,
but as of 2007 the result of this program is yet to be seen.

in the United States, U.S. military funding on the procurement and operation

of military launchers exceeded $1.4 billion in 2006.

the eSa’s 2006 budget

39. “memorandum of agreement Between the government of the United States of america and the

government of the people’s republic of china regarding international trade in international
launch Services,” 26 January 1989, document iii-24, in

Exploring the Unknown,Volume IV:Accessing

Space,

John m. logsdon, ed., et al. (Washington, dc: naSa Sp-4407, 1999), pp. 497–502.

40. roger handberg,

International Space Commerce: Building from Scratch

(gainesville, fl: University press

of florida, 2006), pp. 106–109.

41. andrew J. Butrica,“reusable launch Vehicles or expendable launch Vehicles? a perennial debate,”

Critical Issues in the History of Spaceflight,

Steven J. dick and roger d. launius, ed. (Washington,

dc: naSa Sp-2006-4702, 2006), pp. 319–320;

Reusable Launch Vehicle Programs and Concepts

(Washington, dc: associate administrator for commercial Space transportation, January 1998).
See also various articles in

Space News

in the late 1990s and early 2000s on the various commercial

vehicles. michael d. griffin,“naSa and the Business of Space,” speech to american astronautical
Society 52nd.annual conference, 15 november 2005.

42. U.S. government Budget, 2006. Budget of the United States government, Washington, dc:

government printing office. it can be found online at

http://www.gpoaccess.gov/usbudget/

, accessed

January 2007. evolved expendable launch Vehicle acquisition $864.4; medium launch Vehicles
acquisition, $111.2 million; Space launch operations & maintenance, $443.4 million.

165

The Political Economy of Spaceflight

allocated roughly

€

531 million ($640 million) for launchers, primarily the ariane

and Vega programs.

naSa has invested hundreds of millions of dollars per year

on launchers in some years, particularly in the 1990s and early 2000s, such as its
$284 million spent in 1997 on reusable launch vehicles, and the later Space launch
initiative; however, by 2006 its launcher funding was going into the crew launch
Vehicle, or ares i program, in support of human flight.

Technology Research and Development

the research and development sector is characterized by a confusing

competition among government, academic, corporate, and nonprofit organizations
for research and development (r&d) funding. it is a specific sector because these
funds are largely dispersed by government organizations with their own separate
budgets allocated for the purpose of developing new technologies.the dod and
naSa dominate these funds in the U.S., whereas their equivalents in other nations
distribute  these  moneys  according  to  equivalent  procedures. Within  the  dod,
research  appears  in  the  research, development, test, and  evaluation  (rdt&e)
budgets.  research  is  allocated  in  Basic  research  and  applied  research  funds,
whereas  development  funding  appears  in  advanced  technology  development,
advanced component development and prototypes, and System development and
demonstration, with other related support showing up in rdt&e management
Support line items.

Within naSa, these funds have historically been in the office

of aerospace research and technology budgets and their predecessors, though as of
2007 these are now folded into exploration, Science, and operations budgets.

in the former Soviet Union, competition existed among the scientific research

institutes such as mstislav Keldysh’s nii-1, which performed aerodynamic research,
and the various development design bureaus. this competition was just as stiff
and certainly more devious than in the U.S., due to institutional secrecy and the
Byzantine nature of the Soviet state.

competition for technology r&d funds is fierce, but typically government

funding  is  restricted  to  domestic  suppliers  due  to  the  criticality  of  technology
development  for  national  economic  and  strategic  aspirations. Since  the  bulk  of
these funds are distributed by governments, government institutions have priority
access to these funds when they believe they should run the program. in the U.S.,
government  policy  dictates  that  the  majority  of  funding  should  go  to  industry,
but  because  governments  must  also  train  their  personnel, technology  r&d  is  a
prime  location  to  gain  experience. University  researchers  have  obviously  been
strong competitors for technology r&d funding, since their jobs require them to

43. peter B. de Selding, “eSa Budget emphasizes independence, Satcom technology,

Space News

(23

January 2006).

44. See U.S. government Budget, department of defense, for these categories.

166

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paceflight

advance the state of the art. Similarly, nonprofit institutions such as the aerospace
corporation and the mitre corporation need to keep their knowledge at the
state of the art, and they perform a variety of technology r&d studies. finally,
corporations compete for these same funds, winning a significant proportion of
them while also committing their own.

outside of the U.S., similar dynamics apply, though the separation between

government and industry is often less clear. it is notable that in europe all member
states contribute to technology r&d programs and all member states benefit.this
is one major exception to the usual policy of restricting technology development
funding to domestic suppliers only.

in 2006, dod Basic and applied research Budgets allocated more than $520

million to space technologies, with $223.8 million of that budget coming from the
defense advanced research projects agency.this does not account for U.S.army and
U.S. navy basic and applied research into space technologies, which are not readily
apparent from the top-level budget figures given by the U.S.government.naSa set aside
$693 million for exploration Systems research andtechnology and $624.1 million for
human Systems research andtechnology in its 2006 budget.

the eSa’s 2006 budget

allocated roughly

€

126 million ($152 million) for technology development.

Astronomy and Planetary Science

astronomy has been a popular topic for centuries,as it has dealt with fascinating

questions such as the nature of the universe, its history, and earth’s (and hence
humanity’s) place in the cosmos. Satellites to observe the cosmos (with the hubble
Space telescope being the most famous) and probes to visit other planets (such as
Voyager’s flybys of Jupiter, Saturn, Uranus, and neptune) have been among the most
captivating space programs. as such, they have garnered political support to entice
young people into science, engineering, and mathematics, and hence to improve
the technological competitiveness of the U.S. naSa’s educational programs feature
large doses of space science.

another major use of space science has been as a political diplomatic tool.

during the international geophysical Year of 1957–1958, the early U.S. space
program was used explicitly as a means to improve foreign relations with allies,

45. roger m. Bonnet and Vittorio manno,

International Cooperation in Space:The Example of the European

Space Agency

(cambridge, ma: harvard University press, 1994), p. 25.

46. president’s fY 2007 Budget request for naSa, naSaWeb site,

http://www.nasa.gov/about/budget/

(accessed february 2007).

47. peter B. de Selding,“2006 eSa Budget emphasizes independence, Satcom technology,”

Space News

(23 January 2006).

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The Political Economy of Spaceflight

while at the same time paving the way for overflights of reconnaissance satellites
over the Soviet Union. during the late 1950s and 1960s, the space race between the
U.S. and the Soviet Union included the so-called robotic races—first to the moon
and then to Venus and mars.the winner of these races accrued benefits in national
prestige and perceived technological prowess, a proxy for the long-term viability
and strength of the capitalist and socialist visions.

naSa’s charter explicitly included international cooperation, and under

international programs chief arnold frutkin, in its early years created dozens of
agreements and cooperative programs with nations around the world as an active
element of american foreign policy.these initiatives included free launches of foreign
scientific payloads; foreign instruments on american scientific satellites and vice versa;
establishment of communications ground stations for scientific satellites; and a variety
of other scientific information exchanges. not to be outdone, the Soviet Union ran
similar programs for its socialist allies, and soon for capitalist or nonaligned nations
to woo them away from american interests. europe, through the european Space
research organisation (eSro), and later the eSa, made space science part of its
mandatory program that all member states had to support.

from the inception

of the Space age, and even before, space science has been a popular, cooperative
diplomatic tool, which helps to explain its significant and stable funding.

corporations typically (though not always) build the satellites, whereas

academic, government, and corporate researchers usually build the instruments
placed on-board. With relatively few spacecraft put in orbit, the competition to
build the satellites and the instruments has always been fierce. corporations like to
build science-craft because it provides an opportunity to advertise their capabilities
in ways not possible with often-secret military programs. for scientists, getting an
instrument in space can make or break their careers and reputations.

though the politics of determining the relative priorities and funding of space

science programs has made or broken the hopes of many scientists, total space science
funding has remained fairly stable over the years, and by 2006 reached roughly $6–$7
billion worldwide.this stability owes much to the use of science as a diplomatic tool,
since it is much more difficult to cancel a program that has foreign partners.

48. roger m. Bonnet and Vittorio manno,

International Cooperation in Space:The Example of the European

Space Agency

(cambridge, ma: harvard University press, 1994), chapter 2.

49. John Krige,“the european Space System,” in John Krige and arturo russo,

Reflections on Europe in

Space

(noordwijk,the netherlands: eSa hSr-11, January 1994), pp. 7–8.

168

ocietal

mpact of

paceflight

Communications

as early as 1945, when arthur c. clarke first published a paper proposing

the use of the geosynchronous orbit as promising location for telecommunications
satellites, the potential utility and profitability of space communications beckoned.
military,civilian,and commercial organizations all began to develop communications
satellites in the U.S. by the early 1960s.

all of the military services had interests in communications satellites (comsats)

for command and control, as part of a worldwide military communications system.
in part responding to Kennedy administration concerns about the potential that
at&t  would  extend  its  communications  monopoly  into  space  by  developing  a
purely private system, naSa funded its own experimental satellites.at&t’s launch
of telstar in 1962 fueled these government fears,leading to the passage of the Satellite
telecommunications act of 1962 that created communications Satellite corporation
to  build  and  manage  the  international  satellite  communications  system. military
and naSa funding built several strong competitors to at&t, including hughes
aircraft corporation, philco corporation, and radio corporation of america.the
successful 1963 launch and operation of hughes’s naSa-funded Syncom satellite
proved  the  viability  of  geosynchronous  telecommunications  satellites. the  U.S.
then opened negotiations with european nations, canada, and Japan regarding the
management of the international telecommunications system.

although the U.S. wanted to negotiate on a bilateral basis with each nation,

the  europeans  quickly  banded  together  to  negotiate  with  greater  strength  as  a
group, forming the european conference for Satellite telecommunications (french
acronym  cetS)  in  1963. the  resulting  negotiations  created  the  international
telecommunications  Satellite  organization  (intelsat)  the  next  year,  with
communications Satellite corporation as the organization’s manager.though the
americans  dominated  intelsat  in  the  1960s, the  europeans  acquired  one  major
concession—to renegotiate intelsat’s terms in 1971. in the meantime, the United
Kingdom, germany, france, and  italy  began  development  of  their  own  national
satellite programs, while working through cetS and eSro to create an integrated
european satellite program.

during this period, the U.S. had monopoly power over spacecraft launches,

and U.S. policy dictated that the U.S. would not launch any satellite that threatened
intelsat’s international monopoly. “experimental” satellites were launchable, but

50. david J.Whalen,

The Origins of Satellite Communications 1945-1965

(Washington, dc: Smithsonian

institution press, 2002).

51. a. russo, “the Beginning of the telecommunications Satellite programme in eSro,” in J. Krige

and a. russo,

A History of the European Space Agency 1958–1987,Volume I,The Story of ESRO and

ELDO 1958-1973

(noordwijk,the netherlands: eSa Sp-1235, 2000), chapter 9.

169

The Political Economy of Spaceflight

not regional or international systems. convinced that the U.S. was attempting to
retain control of satellite telecommunications, the europeans, led by france, pushed
to develop their own launcher to ensure that european comsats would get to orbit.
Ultimately, this resulted in the development of the ariane and was a major factor in
the negotiations that led to the creation of the eSa. intelsat’s permanent agreement
of 1973 reallocated shares in intelsat based on actual usage of the system, and allowed
for regional as well as domestic systems. american shares shrank from more than 50
percent to the range of 25 percent to 30 percent, and hence control of intelsat passed
out of american hands by the late 1970s. eSa began development of the orbital test
Satellite, the first of several eSa-developed systems from that time forward.

from the 1970s through the 1990s, many nations built or purchased comsats

for domestic purposes, while several private companies orbited systems that leased
transponders to government and private customers. the growing demand led to
many negotiations over the use of the frequency spectrum through the international
telecommunication Union (itU). nations own the spectrum rights and
geosynchronous orbital slots, and thus this provided a mechanism for governments
to control both government and corporate uses of space communications. many
countries ensured that their domestic systems were government-owned or
controlled. the most profitable use of comsats turned out to be direct broadcast
television, with companies such as directV, echostar, and SeS selling dozens and
eventually hundreds of broadcast channels directly to millions of consumers. direct
broadcast radio, led by Xm, Sirius, and Worldspace, began in 1998 and was growing
rapidly by the first decade of the twenty-first century.

mobile communications for ships, aircraft, and eventually telephones and

computers began from military experiments in the U.S. Systems such as tactical
Satellite (tacSat), launched in 1969, proved the concept of using relatively small
ground antennas that could be ported on ships, trucks, and other vehicles.the U.S.
and Soviet navies desperately needed such systems for fleet communications, and
merchant ships would also be obvious beneficiaries.

the international maritime

52. ibid., and a. russo, “the early development of eSro’s telecom programme and the otS

project,” in Krige and russo,

A History of the European Space Agency,Volume 1,

chapter 10; John l.

mclucas,

Space Commerce

(cambridge, ma: harvard University press, 1991), pp. 40–43.

53. mclucas,pp.75–80.toseethegrowthofdirectbroadcasttelevision,seeofficeofSpacecommercialization,

Trends in Space Commerce

,prepared by futron corporation (Washington,dc:department of commerce,

2001), chapter 3. on satellite radio market growth, see international Space Business council,

2004 State

of the Space Industry

(Bethesda, md: Space publications, 2004), pp. 23, 42–43.

54. norman friedman,

Seapower and Space: From the Dawn of the Missile Age to Net-CentricWarfare

(annapolis,

md: naval institute press, 2000), chapter 5;WilliamW.Ward and franklinW. floyd,“thirtyYears of Space
communications research and development at lincoln laboratory,” in

Beyond the Ionosphere: FiftyYears of

Satellite Communication,

andrew J. Butrica, ed. (Washington, dc: naSa Sp-4217, 1997), pp. 84–86.

170

ocietal

mpact of

paceflight

communications Satellite organisation (inmarsat) was established in 1976 to
provide worldwide mobile commercial service for shipping. Unlike intelsat, in
which the Soviet Union and other communist-bloc nations refused to participate,
the Soviet Union and other socialist countries became members of inmarsat.

in the 1990s, iridium, globalstar, and ico developed large constellations of

medium-earth  orbit  comsats  to  provide  worldwide  mobile  telephone  and  data
services. By the first years of the twenty-first century, all three systems had been
deployed  and  all  three  companies  had  gone  bankrupt  after  raising  and  spending
billions  of  dollars;  they  had  overestimated  the  demand  for  global  service  and
underestimated the competition from ground-based cellular telephone systems.

Both ground-based and space-based private competition put pressure on the

international and domestic government systems,making some of them economically
obsolete. Both intelsat and inmarsat were privatized in response to U.S. demands; if
these systems wanted to compete for domestic U.S. business, they could no longer
be owned by governments.

however, military demand continued to grow rapidly,

leading to the leasing of many commercial transponders for military purposes and
the development of more-capable military systems that were less susceptible to
jamming or radiation effects (such as milstar), and with greater bandwidth to send
imagery and intelligence data from reconnaissance and intelligence satellites and from
various sensor systems to military users around the world.

in 2006, the dod was

budgeted more than $2.9 billion to develop and acquire communications satellites,

and more than $340 million to procure USaf and U.S.army satellite communications
ground terminals.

precise numbers to operate military communications satellites are

difficult to estimate from the dod overview budgets, but are certainly in the hundreds

55. mclucas,

Space Commerce

, pp. 46–50; edward J. martin, “the evolution of mobile Satellite

communications,” in Butrica, ed.,

Beyond the Ionosphere

, pp. 265–281.

56. roger handberg,

International Space Commerce: Building from Scratch

(gainesville, fl: University press

of florida, 2006), pp. 144–145.

57. intelsat Web site,

http://www.intelsat.com

(accessed January 2007). inmarsat Web site

http://www.

inmarsat.com

(accessed January 2007).

58. david n. Spires and rick W. Sturdevant, “from advent to milstar: the U.S. air force and the

challenges of military Satellite communications,” in Butrica, ed.,

Beyond the Ionosphere

, pp. 65–78.

59. from the U.S. government 2006 budget: $1,194.3 million for advanced extremely high

frequency Satellite acquisition; $835.8 for transformational Satellite communications acquisition;
$166.4 million for Wideband gapfiller acquisition; $28.7 million for USaf military Satellite
communications procurement; $2.185 million for USaf polar military Satellite communications
rdt&e; $541.98 million for U.S. navy Satellite communications rdt&e; $71.8 million for U.S.
navy Satellite communications Systems procurement.

60. from the U.S. government 2006 budget: U.S.army, dScS ground Systems program acquisition,

$66.5 million; USaf, management Support for milSatcom terminals, $273.974 million. U.S.
navy satellite terminal procurements are buried in other budget lines.

171

The Political Economy of Spaceflight

of millions of dollars per year.

By 2005, the satellite communications sector was more

than $80 billion annually—by any estimate, the largest space sector by a wide margin.

Reconnaissance and Remote Sensing

the technologies of reconnaissance and scientific or commercial remote sensing

are essentially the same,though the specific characteristics of the sensors vary depending
on  what  the  satellite  is  trying  to  sense.  high-resolution,  often  black-and-white
(panchromatic)  imagery  tends  to  be  most  useful  for  intelligence  gathering, whereas
lower-resolution color (multispectral) imagery is useful for environmental monitoring.
monitoring of volcanoes, clouds, ice, ocean, and land features are each optimized with
the use of different portions of the spectrum,with infrared bands looking for heat sources
best for volcanic activities, and various shades of green for vegetation monitoring, for
example. high-resolution  imagery  is  not  particularly  useful  to  monitor  large-scale
weather fronts but it is crucial to differentiate one kind of airplane from another.

military and intelligence organizations developed the first reconnaissance

systems, starting in the mid-1950s with the USaf’s WS-117l, which led to the
central intelligence agency (cia)-sponsored corona and the air force SamoS
projects.the eisenhower administration secretly created the national reconnaissance
office in 1960 to manage the spy satellite programs.

also in the late 1950s, the

U.S.army began to investigate weather satellites, but these study results and projects
were soon transferred to naSa, becoming the tiros program, first launched in
1960.the USaf, needing weather imagery over the Soviet Union to better utilize
corona, created what was eventually called the defense meteorological Satellite
program (dmSp).

the Soviet Union created its equivalent systems, Zenit (based

on the Vostok capsule) for reconnaissance, and meteor for weather.

61. these U.S. government 2006 budget figures are part of the operations and maintenance budgets,

including the U.S. navy’s $156.8 million for Space Systems and Surveillance; the USaf’s c3i
and early Warning’s $1.201 billion; and the U.S. army’s o&m budget, which does not have any
specific “space” line items. original numbers, from which i make these estimates, are drawn from
international Space Business council,

2005 State of the Space Industry

(Bethesda,md:Space Business.

com, 2006). Sia/futron, and the U.S. military communications satellite and operational budgets.

62. this includes approximately $42 billion for direct-broadcast, fixed, and mobile satellite revenues. i

estimate some $5 billion for acquisition of government-paid communications satellites worldwide ($16
billion for ground systems), assuming some two-thirds of all ground system are for communications
antennas and related equipment, and another $3 billion of government-paid operational (launchers,
launch operations, and mission) budgets to launch and operate communications satellites.

63. dwayne a. day, John m. logsdon, and Brian latell, ed.,

Eye in the Sky:The Story of the Corona Spy

Satellites

(Washington, dc: Smithsonian institution press, 1998).

64. r. cargill hall,“a history of the military polar orbiting meteorological Satellite program,”

Quest:

The History of Spaceflight Quarterly

9, no. 2 (2002): pp. 4–25.

65. Bart hendrickx,“a history of Soviet/russian meteorological Satellites,”

Space Chronicle,The Journal

of the British Interplanetary Society

57, Supplement 1 (2004): pp. 56–102.

172

ocietal

mpact of

paceflight

classified reconnaissance programs evolved rapidly in both the U.S. and Soviet

Union. early systems generally used film that had to be returned to earth, which
meant that space reconnaissance required many launches every year. in 1977, the
first american Keyhole (Kh)-11 satellite was launched.this program helped create
charged-coupled device (ccd) technology that allowed for digital capture and
radio transmission of imagery to earth.

the Soviet Union soon followed this lead,

as its Yantar series evolved to include Yantar terilen, the first Soviet satellite with
electro-optical capabilities, first launched in 1982.

china began development of

its own reconnaissance systems by the late 1970s,

and other nations such as france

and israel developed their own reconnaissance systems by the 1990s. many nations
now have access to american high-resolution commercial satellite imagery, which
became available in 1999 with the launch of Space imaging eoSat company’s
ikonos  1, which  provided  ~3-foot  (1-meter)  resolution. these  companies  have
remained  viable  only  through  major  government  imagery  purchases  and  direct
subsidies  for  satellite  development. the  costs  of  classified  reconnaissance  systems
remain classified,but some estimate that the funding of the national reconnaissance
office, which manages U.S. imagery intelligence, exceeds $7 billion per year in the
early twenty-first century.

the costs of the U.S. reconnaissance program in the

1960s may have ranged in the same order of magnitude as the apollo program,
which totaled roughly $21 billion in then-year dollars.

the development of commercial remote sensing began with naSa’s landsat

program (first launch 1972, final launch of landsat 7 in 1999), a civilian project to
provide satellite imagery of landforms and vegetation for scientific purposes. the
program soon developed a clientele of users that included mining companies, land
use planners, and others who were not scientists.

these commercial applications

lent  weight  to  arguments  to  privatize  landsat. congressional  legislation  led  to
the privatization of landsat operations in 1985 by the earth observation Satellite
company  (eoSat).  certain  conditions  of  the  legislation  hampered  eoSat’s
business  activities,  while  the  large  increase  in  image  prices  alienated  landsat’s
scientific clientele. congress repealed the legislation in 1992, returning control of
landsat to the government but also creating procedures for companies to develop

66. William e. Burrows,

Deep Black: Space Espionage and National Security

(newYork: Berkley Books, 1988).

67. peter a. gorin, “Black ‘amber’: russian Yantar-class optical reconnaissance Satellites,”

Journal of the

British Interplanetary Society

51/8 (august 1998): pp. 309–320; harvey,

Russia in Space:The Failed Frontier?

68. phillip S. clark, “development of china’s recoverable Satellites,”

Quest:The History of Spaceflight

Quarterly

6, no. 2 (1998): pp. 36–43.

69. federation of american Scientists Web site,

http://www.fas.org

(accessed January 2007).

70. pamela e. mack,

Viewing the Earth:The Social Construction of the Landsat System

(cambridge, ma:

mit press, 1990).

173

The Political Economy of Spaceflight

commercial  high-resolution  remote  sensing, which  eoSat  and  others  quickly
pursued. this  was  spurred  by  the  success  of  international  competitors, such  as
france’s  Satellite  pour  l’observation  de  la terre  (Spot), first  launched  in  1986;
india’s indian remote Sensing (irS) satellites (1988); and others, all of whom sold
imagery on the commercial market.

france and india sold Spot and irS imagery, respectively, through private

companies Spot image and antrix, respectively, but these companies did not have
to develop or launch the spacecraft. other nations sold the imagery directly from
government organizations. commercial remote sensing has thus developed as an
international competition among governments and government-supported private
companies. none of the organizations makes enough revenues from imagery sales
to fund the development of the satellites, but the imagery sales have defrayed some
small fraction of government costs. commercial space imagery sales worldwide
in 2004 were less than $600 million annually, while reconnaissance satellites cost
several hundred million each.

despite the unpromising economics, when the U.S. in 1992 created provisions

for private companies to build high-resolution remote sensing satellites, several
companies jumped at the opportunity.the first high-resolution commercial remote
sensing satellite, ikonos, was orbited in 1999, with two other companies following
soon thereafter. however, the revenues from imagery sales never met expectations,
and survival of the american commercial companies depended on large government
contracts for imagery and also for direct government subsidies to fund their next-
generation satellites.the national geospatial intelligence agency obligingly awarded
imagery contracts, and then provided $500 million manufacturing subsidies, to
digitalglobe in 2003 and to orbimage the next year, but not to eoSat, leading to
orbimage’s purchase of eoSat to form geoeye.

most users are not able to use raw remote sensing images. instead, the so-called

value-added services sector processes raw imagery and adds other information to make
it useful.this sector is usually estimated as having revenues an order of magnitude
larger than the raw imagery market. numerous small companies create and market
to the many small niche markets providing processed imagery to government,
scientific, and commercial users, often through geographic information Systems.

71. Joanne gabrynowicz, “the perils of landsat from grassroots to globalization: a comprehensive

review of U.S. remote Sensing law with a few thoughts for the future,”

Chicago Journal of

International Law

6 (2005).

72.

2004 State of the Space Industry

, p. 23.

73. John c. Baker, Kevin m. o’connell, and ray a.Williamson, ed.,

Commercial Observation Satellites:

At the Leading Age of Global Transparency

(Santa monica, ca: rand, 2001). See relevant articles by

Space News

and

http://www.space.com

on the nga contracts.

74. office of Space commercialization,

Trends in Space Commerce

, prepared by futron corporation

(Washington, dc: department of commerce, 2001).

174

ocietal

mpact of

paceflight

governments have borne the entire costs of weather satellites throughout

their history, and thus have provided a steady demand for these systems and several
hundred million dollars annually worldwide for their development and operation.in
the United States, the U.S.army started such work but soon transferred it to naSa,
where it became the tiros series, first launched in 1960.that same year, the corona
program finally succeeded in taking images of the Soviet Union, finding out that
much of its precious film recorded cloud tops.this led the national reconnaissance
office and the USaf to develop what eventually became known as the defense
meteorological Satellite program (dmSp), initially derived from the tiros design.
organizational  issues  plagued  the  civilian  program  because  naSa  specialized
in satellite development, but the users of satellites were in the  national Weather
Service (nWS).naSa preferred to push the technological envelope,whereas nWS
forecasters wanted a reliable system that typically used tried-and-true techniques.
thus, in the mid to late 1960s, while naSa developed nimbus satellites, the nWS
purchased systems derived from the military’s dmSp due to their perceived greater
operational utility and proven design.these same issues continued to characterize
relationships between naSa and the user community, and continued through the
development of the geostationary operational environmental satellites and polar
operational  environmental  satellites. all  the  while, the  possibility  of  combining
military  and  civilian  systems  continued, leading  in  the  1990s  to  the  decision  to
create the joint civilian-military national polar-orbiting environmental Satellite
System (npoeSS), scheduled to launch in the early twenty-first century.

in 2006,noaa was funded to spend $782 million to acquire weather satellites,

another $97 million to operate them, $53 million to distribute data, and $11 million
to integrate landsat sensors onto npoeSS.

that same year, the USaf spent an

additional $323 million on npoeSS and $71 million on dmSp.

other nations recognized the practical utility of weather satellites and developed

their  own, starting  with  the  Soviet  Union’s  meteor  program, the  first  of  which
launched  in  1964. europe, through  the  eSa, developed  its  meteosat  series, first
launched in 1977, and eventually operated through eumetsat, established in 1986.
india combined weather observation with communications in its indian national
Satellite  series, while  Japan  developed  its  geostationary  meteorological  Satellites
and china its feng Yun series.the coordination of geostationary meteorological
Satellites (cgmS) organization formed in 1972 to coordinate worldwide satellite

75. frederik nebeker.

Calculating the Weather: Meteorology in the 20th Century

(new York: academic

press, 1995).

76. r. cargill hall,“a history of the military polar orbiting meteorological Satellite program,”

Quest

9/2 (2002): pp. 4–25. Budget data from 2006 noaa budget, available on noaa Web site,

http://

www.corporateservices.noaa.gov/~nbo/

(accessed January 2007).

77. U.S. government Budget, 2006. dmSp figures are $67.2 for procurement and $3.908 million for

rdt&e management Support.

175

The Political Economy of Spaceflight

weather monitoring from geostationary satellites.in 1992 the organization expanded
its purview to include polar-orbiting satellites, and became the coordination group
for meteorological Satellites.among other activities, the group coordinated the use
of one nation’s satellite when another nation’s satellite had problems.

Electronic Intelligence and Early Warning

closely related to imagery collection is electronic data collection,which gathers

data from various nonvisible portions of the electromagnetic spectrum.these data
can be used for strategic assessments of national capabilities or for tactical military
purposes. Strategic uses, such as intelligence gathering by the U.S. national Security
agency  and  its  russian  equivalents, remain  highly  classified; they  started  in  the
early 1960s.tactical uses include monitoring of shipping and naval signals, as well
as strategic early warning systems that monitor infrared signatures of ballistic missile
launches  or  actively  send  radar  signals  to  reflect  off  targets. another  application
is  the  tracking  of  objects  in  space, which  is  necessary  to  distinguish  between  a
ballistic missile and a meteor hitting earth. in all cases, these are purely government-
controlled  functions. the  U.S. contracted  to  industry  for  the  satellites  while  the
government operated them, whereas the Soviet Union and later russia developed
and operated its systems purely through government organizations.

electronic intelligence-gathering budgets, like the satellite programs themselves,

remain classified, so their costs remain highly speculative. Some analysts estimate their
costs in the range of $3 billion per year in the U.S.and presumably significantly lower in
russia.

naval reconnaissance systems, such as the american White cloud system or

the russian eorSat, also remain classified, along with their funding. early warning
systems, by contrast, have official published budgets in the U.S. published figures from
the 1960s through the mid-1980s show early warning budgets ranging from a low of
$45.6 million in 1967 to $707.2 million in 1984.

in 2006,the USaf budgeted $1.21

billion on procurement of early warning and space tracking systems.

78. eumetsat,

The History of Eumetsat—European Organisation for the Exploitation of Meteorological Satellites

(darmstadt: eumetsat, 2001); Bart hendrickx, “a history of Soviet/russian meteorological
Satellites,”

Journal of the British Interplanetary Society

57/1 (2004): pp. 56–102.

79. friedman,

Seapower and Space

;William e. Burrows,

Deep Black: Space Espionage and National Security

(new York: Berkley Books, 1988); James Bamford,

Body of Secrets:Anatomy of the Ultra-Secret National

Security Agency

(new York:anchor Books, 2001).

80. federation of american Scientists,

http://www.fas.org

, accessed January 2007.

81. paul B. Stares,

The Militarization of Space: U.S. Policy, 1945–1984

(ithaca, nY: cornell University

press, 1985),table 2, pp. 256–257.

82. from the U.S. government Budget, 2006. it includes $756.6 million to procure the Space-Based

infrared Systems-high; $225.8 million for a Space-Based radar system; $151 million to support
its Space tracking efforts; $32.8 million on nuclear detection; and $42.7 million for rdt&e
management Support to its older defense Support program system.

176

ocietal

mpact of

paceflight

Weapons

Space weapons refer on one hand to ballistic missiles, and on the other

to weapons to destroy ballistic missiles (antiballistic missile system) and satellites
(antisatellite systems).as with intelligence-gathering satellites, space weapons have
been  the  exclusive  domain  of  governments, with  the  exception  of  contracting
to  industry  in Western  nations. the  very  first  space  expenditures  were  for  the
development  of  ballistic  missiles,  which  received  major  funding  first  in  nazi
germany in the mid-1930s, and by the mid to late 1940s in the U.S. and Soviet
Union, followed  quickly  by  great  Britain  and  france, and  somewhat  later  by
many  other  nations  including  china,  india,  pakistan,  iran,  north  Korea,  and
others. even though some of the budget figures for ballistic missile, antiballistic
missile, and  antisatellite  programs  are  unclassified, working  through  the  maze
of government budgets to determine actual spending on space-related research,
development, facilities, and operations is not trivial.

one significant exception is the budget of the missile defense agency, the

descendant of the 1980s Strategic defense initiative organization. from a budget
of $1.6 billion in 1985, the agency’s budget jumped to $7.8 billion in 2002 and
remained in the $7 to $9 billion range through 2006 as the george W. Bush
administration began to deploy a national missile defense system in alaska.

Ballistic missiles consumed enormous amounts of funding in the U.S. and

Soviet Union in the 1950s and 1960s in particular, leveling off somewhat in the
1970s and 1980s, and declining significantly after the end of the cold war in the
1990s and early twenty-first century. for example, in 1959, the atlas, titan, and
minuteman programs consumed $1.321 billion, which, when converted to 2006
dollars, is equivalent to more than $7 billion.

and that is not all, as in that year

there were several other ballistic missile programs ongoing, including the navy’s
polaris, the army’s corporal, redstone, and Sergeant systems, and the USaf’s thor
intermediate-range Ballistic missile. By contrast, in 2006, the USaf spent $791
million on intercontinental ballistic missile acquisition

and the U.S. navy spent

$936.1 million on trident ii submarine-launched ballistic missile modifications and
another $830 million to operate its fleet ballistic missile systems.

83. data from Jacob neufeld,

Ballistic Missiles in the United States Air Force 1945–1960

(Washington,

dc: office of air force history, 1990), pp. 198, 229. atlas: $641.5, titan $495.4, minuteman
$184 (all in millions).

84. U.S. government Budget, 2006. USaf minuteman iii modifications, $672.6; missile replacement,

$41.6; icBm rdt&e, $44.67; icBm components, $32.42 (all in millions).

85. U.S. government Budget, 2006.

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The Political Economy of Spaceflight

Navigation

Satellites assist navigation on earth by providing targets with known positions

in  space, from  which  objects  on  earth  can  triangulate  their  position. this  was
particularly useful for naval operations, where navigation on featureless oceans has
historically been particularly difficult. however, given sufficient reliability, accuracy,
and timeliness, it is also useful for movement of vehicles and people on land and
in the air.the first application of satellite navigation was for american and Soviet
submarines  to  determine  their  positions  with  sufficient  accuracy  such  that  their
nuclear-tipped ballistic missiles could hit cities in the opposing countries. for this
purpose, the  U.S. navy  funded  the transit  program, the  first  satellite  of  which
launched  in  1960. the  Soviet  Union  countered  with  its tsiklon  satellites, first
launched in 1967. Both systems provided two-dimensional (not vertical) accuracy
of several hundred feet, with update rates on the order of tens of minutes in the
worst case. this was sufficient for slow-moving naval vessels but not fast-moving
aircraft at various altitudes.

naval success spurred further studies and research,leading both nations to create

more capable navigational systems. in the U.S., the tri-service global positioning
System (gpS) program began in 1973, with its first experimental satellite launch in
1978.the full 24-satellite constellation was not operational until 1995.the Soviet
Union’s equivalent, the global navigation Satellite System (glonaSS), put its first
satellite into orbit in 1982, with its full 24-satellite constellation in place in 1996.
While the U.S. maintained its gpS constellation, russia was unable to maintain
its glonaSS constellation, with only 14 satellites operating by late 2005.

the

transit system was relatively cheap,with acquisition costs at roughly $20–$30 million
per year in the 1960s.

gpS is much more capable and also much more expensive.

in 2006, the USaf budgeted $719.6 million for acquisition of gpS satellites, which
primarily paid Boeing for the latest generation of Block 2f satellites.

the military uses of the satellite navigation systems were obvious and crucial,and

soon expanded to include aircraft and land force positioning, and precision-guided
weapons. the use of gpS has been a key element in the dramatic enhancement
of U.S. military capabilities so apparent from the two iraq wars in 1991 and
2003. certain civilian and commercial uses were also clear from the beginning,

86. friedman,

Seapower and Space,

chapter 4.

87. harvey,

Russia in Space:The Failed Frontier?,

pp. 130–136.

88. paul B. Stares,

The Militarization of Space: U.S. Policy, 1945–1984

(ithaca, nY: cornell University

press, 1985), table 2, pp. 256–257.

89. U.S. government Budget, 2006.

178

ocietal

mpact of

paceflight

such as for merchant shipping, air transport, and air traffic control. however, the
military did not expect the tremendous surge in commercial applications that
blossomed in the 1990s and 2000s. once in place, the satellite navigation signals
were essentially a free resource that individuals and commercial firms could tap
into for their own uses simply by purchasing the appropriate receivers. receiver
sales were roughly $800 million in 1994; by 2005, estimates of gpS equipment
sales ranged from $5 billion to $22 billion, with american and foreign firms
splitting the market roughly 50-50.

Such a wide discrepancy in estimates says much about the difficulty of

estimating the size of this market. however, it should be noted that, historically,
many if not most estimates of current and future commercial space market sizes
have been overestimated. for gpS in particular, the market estimate depends a
great deal on what is counted. for example, for a precision weapon, does the
entire weapon count or merely the gpS receiver in the weapon? for a handheld
cellular phone or a gpS fish finder with a gpS chip, does the entire phone or fish
finder count or merely the gpS chip? there are many ways to estimate the entire
market size, each of which starts with different assumptions and yields radically
different answers.

By 2006, with gpS receivers available for under $100 and packaged in many

products, commercial uses included car and boat navigation, surveying, animal and
child tracking,cellular telephone positioning,and various recreational purposes such
as locating precise positions and distances on a golf course or fish finders on lakes.
civilian purposes grew to include various emergency services such as fire, police,
and search and rescue, and scientific research in geodesy and geology. civilian and
commercial applications dwarfed military ones in terms of receiver sales by the early
twenty-first century.

europe and china were the first to develop space-based navigation capabilities

independent of the old superpowers. china launched three Beidou satellites in 2000–
2003, most likely to support its small intercontinental ballistic missile force. in 2002,
the europeans began development of the galileo system, but as a civilian commercial

90. office of Space commercialization,

Trends in Space Commerce

, prepared by futron corporation

(Washington, dc: department of commerce, 2001).the high estimate, $13 billion, comes from the
rncoS Web site,“gpS market Update (2006),”april, 2006,

http://www.rncos.com/Report/COM33.

htm

(accessed 28 december 2006). the low estimate, $4.8 billion, comes from international Space

Business council,

2004 State of the Space Industry

(Bethesda,md:international Space Business council,

february 2004), p. 23.the $22 billion figure comes from aBi research, in Space foundation,

The

Space Report 2006

(colorado Springs, co: Space foundation, 2006), footnote 262.

91. discussion with Scott Sacknoff,head of the international Space Business council (iSBc),28 december

2006.the iSBc methodology is a“conservative”one that will tend to yield lower estimates by parsing
out the gpS components from the overall products. it also adds up revenues of major market players,
such as garman and trimble, to compare with other estimates that add up the total number of cars
produced, for example, and estimating the percentage of those cars that have gpS receivers.

179

The Political Economy of Spaceflight

venture.the gpS signal is free but potentially interruptible should the U.S. deem it
necessary, whereas the galileo system would provide coarse signals for free but could
provide higher-precision signals (for a price) to users. china,israel,india,Saudi arabia,
Ukraine, and morocco have decided to participate in the program as well, making it
a global venture to ensure independence from the U.S.the project, as of 2006, was
projected to cost some

€

3.8 billion, with european costs split 50-50 between the

european commission transport directorate and the eSa. germany is the largest
single national contributor, with some

€

500 million committed to the project.the

funding goes primarily to a european industrial consortium,galileo industries,which
consists of eadS, alcatel Space, and alenia Spazio. the first galileo experimental
satellite went into orbit in december 2005.

Several nations, including the U.S., europe, Japan, and india, developed systems

to augment the capabilities of the gpS.the U.S.Wide area augmentation System
was developed to aid precision flight approaches. europe deployed the european
geostationary navigation overlay System. Japan placed navigational capability in
its multi-functional transport Satellite, which is primarily a meteorological satellite,
first launched in february, 2005. in parallel, it developed the Quasi-Zenith Satellite
System to enhance regional navigation in asia and the pacific region.

By 2006, the

indian Space research organisation was developing its geo-augmented navigation
(gagan) Satellite System, which was to augment gpS signals primarily for aircraft
navigation in south asia.

Since the deployment of gpS, the military, civilian, and commercial success

of navigational systems has generated global interest in navigational capabilities,
generating political and economic opportunities and conundrums. for the U.S.,
the key issue has become the debate between military and civilian control of gpS
signals. the military maintains the authority to shut down certain capabilities in
wartime, yet civilian and commercial uses have become so important that it is clear
that gpS signals cannot merely be shut down. russia’s major problem is finding
the cash to maintain its glonaSS constellation. other nations debate whether to
create very expensive, independent capabilities so as not to depend on the U.S., as

92. peter B. de Selding, “initial galileo Satellite navigation Bid exceeds eSa’s Budget,”

Space News

Business Report

http://www.space.com

, 22 march 2004 (accessed January 2007); “eU launches first

Satellite in galileo navigation program,” 28 december 2005,

http://www.galileo-navigationsystem.

com/Archiv/galileo-archive1.htm

(accessed January 2007);“contract Signed for Second phase of galileo

navigation Satellites,” 19 January 2006,

http://www.galileo-navigationsystem.com/Archiv/galileo-archive1.

htm

(accessed January 2007).

93. Japan meteorological agency, mtSat Web site,

http://www.jma.go.jp/jma/jma-eng/satellite/about_

mt_index.html

(accessed 28 december 2006).

94. “iSro, raytheon complete tests for gagan Satellite navigation System, indiadefence Web site,

http://www.india-defence.com/reports/2239

(accessed 28 december 2006).

180

ocietal

mpact of

paceflight

europe and china have done, or to enhance existing and forthcoming systems, as
israel,Japan,and india have chosen.european motivations include the desire to make
significant profits from european sales of galileo receivers, but as of 2006 it is not
obvious whether this wish will be fulfilled, since american, european, and Japanese
commercial vendors already compete to use signals from gpS and glonaSS and
will simply expand their repertoires to include galileo. commercial vendors will
combine signals from several navigational systems to enhance local performance,
regardless of who funds and maintains the space-based systems.

Human Spaceflight

By far the most well-known space activity is human spaceflight, which has

been the primary political arm of space programs around the world.the primary
initial motivation for human spaceflight in the late 1950s and 1960s was competition
for  prestige, as  the  U.S. and  Soviet  Union  sought  to  project  their  technological
capabilities in an ideological battle for the hearts and minds of people around the
world.the Soviet Union gained an early lead in the space race by putting the first
man,Yuri gagarin, into space in 1961, and other firsts such as the first woman in
space, the first multi-man mission, and the first spacewalk. however, Soviet efforts
to move beyond the r7 launcher and Vostok capsule designs fizzled in bureaucratic
infighting, while  the  american  response  surged  forward. the  gemini  program
proved U.S. rendezvous and docking capabilities, and apollo placed the first man
on the moon in 1969. Secret Soviet efforts to put a man on the moon fizzled as
the  huge  n-1  launcher  failed  in  four  test  flights, while  the  political  imperative
disappeared with the american success.

With the failure of their piloted lunar program, the Soviet Union moved

to long-duration space station efforts, with the U.S. shifting its efforts to the
Space Shuttle in the 1970s and the beginnings of its own space station program
in the mid-1980s.With their

Salyut

space stations and

Soyuz

ferry vehicles, the

Soviet Union set record after record in long-duration human spaceflight and
proved that military uses of piloted space stations were not effective. the

Mir

station  was  the  culmination  of  Soviet  and  russian  efforts. the  Soviet  Buran
program, which  mirrored  the american  Shuttle, was  fielded  in  the  late  1980s
but  was  too  expensive  to  survive  the  Soviet  Union’s  collapse. the american
Space Shuttle also proved to be very expensive, though the U.S. was willing to
pay that price to keep the american astronaut program alive. it also proved too
unreliable, with  flight  delays  the  norm  and  the  loss  of

Challenger

in 1986 and

Columbia

in 2003 causing the loss of 14 astronauts’ lives. the american Space

95. handberg,

International Space Commerce

, chapter 6.

96. there are many books on these subjects. a good place to start is William e. Burrows,

This New

Ocean:The Story of the First Space Age

(new York:the modern library, 1998).

181

The Political Economy of Spaceflight

Station

Freedom

program also proved problematic, with many design changes as

naSa struggled to determine its purpose.

although its initial motivation was superpower competition,the shuttle and space

station programs of the two superpowers provided opportunities for international
cooperation, though initially that cooperation remained fixed within ideological
boundaries.the Soviet Union took advantage of its regular

Soyuz

crew replacement

flights to its

Salyut

and

Mir

stations to offer its communist-bloc allies the opportunity

to put their citizens into space through the interkosmos program. Similarly, the U.S.,
which had seven seats on each Shuttle flight, offered rides to its allies. the Space
Shuttle program also included some opportunities for allies to build flight hardware,with
canada’s robot arm and the europeans’ Spacelab module the most significant.although
partly motivated by the prestige factor, scientific and economic factors provide more
significant motivations for these nations, particularly in their interest in developing and
using microgravity facilities and developing niche capabilities in space.

these international precedents were the basis for much more intimate and expansive

cooperation in the international Space Station (iSS) program.initially including the U.S.,
europe, Japan, and canada, the iSS came to include russia as well. on the brink of
cancellation in the early 1990s, the american space station program was saved by the
opportunity for the U.S. to use it as a means to keep russian technical talent working
on peaceful programs as opposed to being forced by economic necessity to sell their
services to nations such as iran and north Korea. the russians built iSS modules
under contract to naSa and also as part of their own independent contribution.
in addition, russia supplies progress ferry vehicles for supplies and its reliable

Soyuz

transfer vehicles for crews.With the american Shuttle fleet grounded from early 2003
to mid-2005 due to the

Columbia

accident, russia provided the only access to the iSS.

this situation has shown the wisdom of international partnerships and their alternative
means to keep programs alive when one partner has difficulties.

Separate from the U.S. and the iSS program, china started its own Shenzhou

program to put chinese yuhangyuan (astronauts) into space.after a number of test
flights, it finally succeeded in this ambition in 2003, with the launch of Yang liwei
in

Shenzhou 5

. china’s motives appear quite similar to that of the U.S. and russia:

to garner world prestige and to inspire its own people, particularly young people, to
study technical subjects.

100

97. robert Zimmerman,

Leaving Earth: Space Stations, Rival Superpowers, and the Quest for Interplanetary

Travel

(Washington, dc: Joseph henry press, 2003); dennis r. Jenkins,

Space Shuttle:The History of

the National Space Transportation System, the First 100 Missions,

3rd ed. (cape canaveral, fl: dennis

r. Jenkins, 2001).

98. Zimmerman,

Leaving Earth

; michael cassutt,

Who’sWho in Space

, 3rd ed. (newYork: macmillan, 1998).

99. d. m. harland and J. e. catchpole,

Creating the International Space Station

(chichester, U.K.: Springer

praxis, 2002).

100.Brian harvey,

China’s Space Program: From Conception to Manned Spaceflight

(chichester, U.K.:

Springer-praxis, 2004), chapters 1, 10.

182

ocietal

mpact of

paceflight

in early 2004, the george W. Bush administration announced its Vision for

Space exploration, which directed naSa to replace the Space Shuttle, return
humans to the moon, and eventually go to mars. By 2006 these plans had been
translated into the constellation program, whose first major systems are the orion
crew exploration Vehicle and ares 1 crew launch Vehicle. naSa also began
consultations with other nations regarding their future participation.

101

naSa’s overall human flight program costs are published, though sometimes

the specific details are difficult to interpret, such as estimating the true cost of the
Shuttle program. from the beginning of human flight, the U.S. has had by far the
largest budget compared with other nations. naSa’s historical human flight budget,
shown in figure 9.7, shows a huge spike in the 1960s due to the apollo program, but
since that time has remained relatively stable, with a small spike to build the Shuttle

Endeavour

after the

Challenger

accident. the USaf spent significant funds on the

manned orbiting laboratory (mol) program in the 1960s as well.

Figure 9.7—NASA human flight budget, 2006 dollars.

102

Unfortunately, other budget figures are more difficult to acquire. the true

costs of the Soviet human flight program may never be known, though all agree that
Soviet and russian costs have been significantly lower than U.S. costs.as compared
to apollo’s cost, which has been estimated variously between roughly $21.8 and
$25 billion in then-year dollars, the Soviet piloted lunar landing program has been
estimated at roughly 4 to 4.5 billion rubles, or approximately $12–$13.5 billion.

103

101. naSa Web site,

http://www.nasa.gov

(accessed January 2007).

102. author’s compilation. Based on data from naSa annual budget submissions, generally using

previous year actuals, and the standard U.S. government deflator schedule.

103. asif a. Siddiqi,

Challenge to Apollo:The Soviet Union and the Space Race 1945–1974

(Washington, dc:

naSa Sp-2000-4008,2000),p.838.Brian harvey estimates $4.5 billion in his

Russia in Space:The Failed

Frontier?

, p. 13.this figure appears to come from mishin’s writings, though it is not footnoted.

183

The Political Economy of Spaceflight

the energia-Buran program, which was significantly larger than the

Salyut

and

Mir

space station programs, cost some 14 billion rubles over 17 years from 1976

to 1993.

104

china’s human flight program, Shenzhou, is reported to have cost

billion from inception to its first docking flight, or about

1.6 billion per year,

starting in 1992, which equates roughly to $240 million per year in 2002.

105

the Soviet and russian interkosmos program, which allowed guest flights to

Salyut

and

Mir

, also created the procedures that, with slight modification, allowed

for paying customers to travel to

Mir

. in what is apparently the first private booking

of a flight to space, the tokyo Broadcasting System paid $12 million for reporter
toyohiro akiyama to travel to

Mir

in december 1990.

106

British scientist helen

Sharman flew to

Mir

the next year, paid for by a pool of private companies in

the United Kingdom. Starting in the late 1980s, the eSa and european nations
paid between $12 and $40 million for european astronauts to visit

Mir

, the price

depending on the length and complexity of the mission.

107

in the 1995, the first

naSa astronaut arrived at

Mir

, as part of a larger agreement between the U.S.

and russia for the international Space Station. While the U.S. pressed russia to
end the

Mir

program, american entrepreneur Walt anderson created mircorp,

registered in the netherlands, to investigate saving

Mir

for commercial purposes.

mircorp delivered a $7 million down payment in January 2000, and russia flew a
mircorp-paid mission to recommission the station. mircorp then received funds
from american technology investor denis tito for two flights, with himself riding
on the second. these missions did not take place.

Mir

was deorbited in march

2001; for a reputed $20 million, tito rode instead as the first “space tourist” on

Soyuz

to the international Space Station, over strenuous american and european

objections.

108

anousheh ansari became the fourth tourist (and the first woman

tourist) in 2006.

109

after losing the battle to keep tito off the iSS, the U.S. and

europe reluctantly acquiesced in russia’s right to sell tourist seats.

another route to space tourism opened in June 2004 when Burt rutan’s

Scaled composites company spacecraft,

SpaceShipOne

, won the $10 million,

privately funded X-prize by reaching suborbital space twice within two weeks, at a
cost of roughly $25–$27 million paid by microsoft cofounder paul allen. richard

104. Siddiqi,

Challenge to Apollo,

p. 841. Brian harvey puts the cost of the energia-Buran program at

20 billion rubles. he also translates this to approximately

€

4.4 billion, which at that time would be

roughly equivalent to $4.4 billion.

105. harvey,

China’s Space Program

, p. 293.

106. Wikipedia claims this price was $28 million.

http://en.wikipedia.org/wiki/Space_tourism

(accessed 3

January 2007).

107. harvey,

Russia, the Failed Frontier?

, p. 31.

108. david m. harland,

The Story of Space Station Mir

(chichester, U.K.: Springer-praxis, 2005).

109. “female Spacetourist Blasts off,” 18 September 2006,

http://www.CNN.com

(accessed 3 January 2007).

184

ocietal

mpact of

paceflight

Branson’s Virgin galactic company started a joint venture with Scaled composites
to build

SpaceShipTwo

, which would start carrying tourists for suborbital flights in

roughly 2008 for a price of $200,000 each. founded by motel magnate robert
Bigelow, Bigelow aerospace began testing inflatable habitats for a space hotel, with
its first successful test of genesis 1 in July 2006.

110

Bigelow created “america’s Space

prize,” a $50-million award for the first successful reusable spacecraft that could
reach his orbiting hotel.

111

the U.S. began to take commercial spaceflight seriously,

creating a licensing process through the federal aviation administration’s office of
Space commercialization in 2005.

Microgravity Research

microgravity research differs from space physical sciences in several ways. first,

it has historically been closely tied to human spaceflight because one of the major
motivations has been to understand how the human body functions in zero gravity.
human spaceflight and the long-term movement of humans into space depend on
deep understanding of microgravity effects both on humans and on other biological
organisms. materials  research  has  generally  required  human-tended  experiments
in  space  and  usually  must  return  its  samples  back  to  earth; thus, it  also  has  had
strong ties to the human spaceflight program because of the requirement to return
astronauts  and  cosmonauts  to  earth. also, both  material  and  biological  research
have often been portrayed as having commercial potential, such as purer crystals
or  proteins  grown  in  space  as  opposed  to  on  earth. these  promises  have  yet  to
be fulfilled, as the cost of doing business in space—despite its potential improved
materials quality—is far higher than on earth.

112

the need for microgravity science to support human spaceflight, and the

potential commercial possibilities of materials research, have led to large and
direct government funding of this research and certainly to justifications to build
various experiment modules in which to perform it, such as the Spacelab module
for the Shuttle, the Japanese experiment module and columbus module for the
international Space Station, and various experimental stations on

Skylab

Mir

, and in

the Space Shuttle payload bay.the various space programs provided funds to create
microgravity research disciplines which, unlike the physical sciences, essentially did

110. Jeff foust, “Bigelow aerospace’s Big day at the rodeo,”

The Space Review

(24 July 2006),

http://

www.thespacereview.com/article/667/1

, accessed January 2007.

111. “Space tourism,”Wikipedia,

http://en.wikipedia.org/wiki/Space_tourism

(accessed 3 January 2007).

112. Bromberg,

NASA and the Space Industry

, pp. 107–109, 167–174; lou dobbs with h. p. newquist,

Space:The Next Business Frontier

(new York: ibooks, 2001).

113. a. russo,“the european Use of Spacelab,” in Krige et al.,

A History of the European Space Agency,

Volume II

, chapter 14.

185

The Political Economy of Spaceflight

not exist until human spaceflight programs required their existence. for example,
the eSa had difficulties in the late 1970s when it realized that it was building the
Spacelab module but had few researchers capable of using it.

113

microgravity research has also been a favorite educational tool, with naSa

and other organizations providing major funding and subsidies to allow students from
elementary school to graduate school to propose and create experiments such as how
spiders build webs in space, how peas grow in space, etc. microgravity science budgets
have grown from essentially zero in the 1950s to tens of millions of dollars by the
early twenty-first century so as to fill the experimental facilities of the international
Space Station. in 2003, naSa allocated $304 million for biological science, $351
million for physical science research, and another $254 million for various research
partnerships.

114

eSa allocated $120 million for microgravity science in 2006.

115

Support Services

the U.S. government places restrictions on the number of civil service positions

available in its various agencies, but encourages private enterprise.this combination
has led to the fact of far more work being assigned to civil service personnel than they
can accomplish. to deal with this situation, support service contractors supply the
arms and legs for the government personnel, working under government supervision
to perform many of the tasks that the civil servants do not have the time to perform.
these companies sprang up around all of the naSa facilities, frequently owned
or operated by women, minorities, and small businesses so as to meet government
guidelines and quotas in these categories.although the businesses are often owned by
people in these categories, the work itself is usually directly supervised by naSa civil
servants, with relatively little direction or guidance from the companies.

these unusual political and technical circumstances lead to unusual dynamics.

a common experience among these contractors is that one company that held an
engineering service contract in one year would lose it to another company in the
next. many of the personnel from the losing company are immediately hired by the
winner,such that the personnel doing the actual work often remain the same while the
managerial and financial structures are shifted to the new organization. Some support
service contractors develop core competences in certain technologies or capabilities,
which allow them to compete for other hardware, software, or service contracts, or
even to sell products in the nongovernment commercial marketplace. others, such
as Saic and teledyne Brown engineering, become quite large, with parts of the
business continuing with support service contracting and other parts with specialized

114. president’s fY 2007 Budget request for naSa, naSa Web site,

http://www.nasa.gov/about/

budget/

(accessed January 2007).

115. peter B. de Selding, “2006 eSa Budget emphasizes independence, Satcom technology,”

Space

News

(23 January 2006).

186

ocietal

mpact of

paceflight

expertise that allowed them to bid on manufacturing contracts.through several legal
rulings, naSa’s marshall Space flight center was involved with determining the
legality and guidelines for the use of such contractors in the 1960s and 1970s. a
lawsuit that challenged the legality of support service contracts was filed in 1968 and
dragged on for years, but in 1978 was settled in naSa’s favor.

116

Insurance

governments funded all early spaceflight launches, and if one of the launchers

or satellites failed, the government funded a replacement, occasionally in advance.
for example, throughout the 1960s and 1970s, naSa typically funded two identical
spacecraft on exploration missions to another planet, such as mariner 1 and 2 in
1962. targeted to fly by Venus, the first failed while the second completed the
mission. the Voyager program of the 1970s built two matching pairs of spacecraft,
whileViking had two identical orbiters and landers to ensure that at least one of them
succeeded. liability was another potential concern. governments could not be sued if
a rocket fell on its citizens’ property, and could pay for damages through taxes.

commercial companies were in a different situation. they could not afford to

build two copies of each spacecraft to ensure that one worked. in addition, they could
be quickly bankrupted should a commercial launch cause damage to private property.in
1965, communications Satellite corporation insured its early Bird satellite for liability
and for prelaunch damage to the satellite.three years later, insurers covered the launch
of intelsat ii, and by the 1970s created launch property damage and on-orbit coverage.
the 1967 outer Space treaty and the 1972 convention on international liability for
damage required that nations pay for damage caused to other nations.this spurred the
U.S.,and later other nations,to set minimum liability insurance requirements on private
companies. in the american case, the government requires private companies to obtain
insurance to cover damages up to $500 million, and the government will cover any
additional damages between $500 million and $2 billion.

insurers in the U.S. and europe typically set rates ranging from 15 percent to

20 percent for satellite loss, with several companies generally pooling their efforts for
each launch. liability and on-orbit rates were much lower, reflecting the much lower
probability of damage to private property and of on-orbit failures compared to the loss
of a satellite during ascent. from revenues of $5 to $10 million in the 1970s, insurance
revenues by the 2000s typically ranged from $800 million to $1 billion per year, with
loss payouts usually, but not always, smaller.

117

116. andrew J. dunar and Stephen p.Waring,

Power to Explore:A History of Marshall Space Flight Center

1960-1990

(Washington, dc: naSa Sp-4313, 1999), pp. 142–143.

117. alden richards, “the early history of the Satellite insurance market,”

Quest

9/3 (2002): pp.

54–59.

187

The Political Economy of Spaceflight

insurance companies hate failures that cause them to pay for losses, so when

failures do occur they press the launcher and satellite organizations to understand and
fix the problems before they would insure another launcher or satellite. the desire
to enforce reliability on launcher and satellite organizations led to political problems.
in the late 1980s, china entered the commercial launch market, creating great Wall
industries corporation to market its long march rockets.When long march rockets
failed in 1992 and 1995, insurers launched investigations, which forced china (if it
wanted to compete commercially) to open up its secretive processes and technologies.
in addition,the insurers desired independent investigation committees,which included
personnel from hughesaircraft,the leading satellite manufacturer,and Space Systems/
loral (SS/l), another major satellite vendor. in the ensuing interactions between the
investigators and the chinese, the U.S. government concluded that hughes and SS/
l had broken american laws regarding international traffic in arms regulations
(itar), leading to fines of $20 million and $32 million, respectively, on the satellite
companies. insurers in the U.S. and europe complain that itar laws decrease their
ability to get the information they need to underwrite policies.

118

Capital

Space activities require lots of money. in the past, most of it was provided by

the government, but private activities have grown dramatically since the 1980s.
aerospace and space enterprises must occasionally acquire venture capital;the means
by which they have done so has gone largely unnoticed by space historians. it is also
worth mentioning the 2005 creation of the Spade defense index and the Space
foundation’s Space index, the first indices directly tied to financial performance to
defense, space, and homeland security companies.

Burial Services

celestis provides the service of sending a person’s cremated ashes, for a fee,

into space. to do this, celestis group first received a license from the office of
commercial Space transportation in 1984 to fly cremated remains aboard the Space
Services international conestoga rocket. conestoga never flew and in 1994 a new
company, celestis incorporated, negotiated with orbital Sciences for a launch on its
pegasus launcher, which eventually did take place in 1997. Since then other flights
have occurred, with prices ranging from about $495 to $12,500, depending on the
amount of ashes and their ultimate destination.

120

118.

The United States House of Representatives Select Committee on U.S. National Security and Military/
Commercial Concerns with the People’s Republic of China

(cox report) (Washington,dc:government

printing office, 3 January 1999), chapter 8,“commercial Space insurance.”

19. Space foundation,

The Space Report 2006

(colorado Springs, co: Space foundation, 2006), pp.

149–150,

http://www.spaceindex.com/

(accessed 14 January 2007).

120. celestis Web site,

http://www.memorialspaceflights.com

(accessed 14 January 2007).

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Management, Economics, and Policy

the assessment of management, economics, and policy issues has spurred a

small market of government and industry organizations. management companies
such as Booz allen hamilton, inc. and mcKinsey & company have consulted for
businesses and the government for years, occasionally including space organizations,
such as mcKinsey’s support to Jpl’s reorganization efforts in 1959.

121

economic

issues have been a staple of industry associations, such as the aerospace industries
association in the U.S., or eurospace in europe.they gather and collate aerospace
industry-wide data to assist member company marketing and lobbying.

122

the department of commerce’s office of Space commerce, founded in 1988,

has performed political-economic analyses since that time.in 1998,congress passed the
technologyadministrationact,which founded the office of Space commercialization;
it was transferred to the national oceanic and atmospheric administration (noaa)
in 2004. it funded private companies like futron corporation and the tauri group to
assess various political-economic issues.

123

the commercial Space launch act of 1984

gave the department of transportation’s office of commercial Space transportation
regulatory authority over commercial space launches. it was transferred in 1995 to the
federal aviation administration (faa) as the associate administrator for commercial
Space transportation (aSt). aSt publishes quarterly and annual reports of worldwide
commercial space launch activities.

124

Education

as space activities developed, so too did educational programs to train space

industry  personnel. these  started  at  institutions  involved  with  early  rocketry  or
satellite  projects,  such  as  california  institution  of  technology’s  Jet  propulsion
laboratory  (Jpl),  massachusetts  institute  of  technology’s  (mit’s)  lincoln
laboratory, and  Johns  hopkins  University’s  applied  physics  laboratory  (apl).
these institutions created engineering and scientific programs to train their own
employees  and  other  government  and  industry  personnel. Some  programs  and
institutions  were  created  based  on  government  or  commercial  lobbying, such  as
Wernher von Braun’s successful effort to create a research institute at the huntsville

121. Stephen B. Johnson,

The Secret of Apollo: Systems Management in American and European Space Programs

(Baltimore, md: Johns hopkins University press, 2002), p. 252, footnote 45.

122. See the aerospace industry association,

Aerospace Facts and Figures

(arlington, Va: aerospace

industries association), or eurospace’s

Eurospace Facts and Figures

, both published annually.

123. See the office of Space commercialization Web site,

http://www.nesdis.noaa.gov/space/

(accessed

January 2007).

124.

Aeronautics and Space Report of the President,Fiscal Year 2004 Activities

(Washington,d.c.:government

printing office, 2005).

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The Political Economy of Spaceflight

extension center of the University of alabama, which was a major factor in the
1966 creation of the independent campus, the University of alabama in huntsville.
Similar  relationships  occurred  elsewhere, such  as  Stanford’s  relationship  with  the
USaf and naSa’s ames research center, naSa Johnson’s relationship with the
University of houston clear lake, or naSa Kennedy Space center’s relationship
with  the  University  of  central  florida. Some  space  organizations  spun  off  from
educational  institutions, such  as  the  charles  Stark  draper  laboratory  spun  off
from  mit, mitre  corporation  created  from  lincoln  laboratory, aerojet  from
Jpl, and so on. diversified (not merely technical) programs such as the University
of  north  dakota’s  department  of  Space  Studies  and  the  international  Space
University (Strasbourg, france) were created in 1987. other specialized programs
now  exist  in  space  systems  management, politics, and  other  space-related  topics.
private companies also provided technical courses and consulting.the political and
economic dimensions of space education have gotten little attention to date, except
for the creation of economic clusters such as those in colorado Springs, the greater
los angeles and Boston areas, and florida’s Space coast.

125

With strong congressional support to ensure educational funding in every state,

naSa created its own educational programs. the naSa Space grant programs
provide space educational materials to elementary and high school teachers, provide
student scholarships, promote space education to minorities and disadvantaged
groups, and support various university programs. naSa also creates educational
programming on its own television channel, much of which is targeted to these
same audiences.the economic and political effects of these programs has, to date,
not been investigated, though tens of millions of dollars are spent annually.

Space camps to educate young people were created specifically to spur science

and  mathematics  education, and  hence  technical  development  in  their  societies.
Soviet space camps originated from Young cosmonauts groups, which came into
being soon after gagarin’s 1961 flight. these spread across the Soviet Union and
then into its allied european nations such as east germany, poland, and hungary.
the  first  U.S. space  camp  took  place  in  1982  in  huntsville, alabama, at  United
States  Space  and  rocket  center,  which  had  been  founded  earlier  under  the
direction  of Wernher  von  Braun. By  the  early  twenty-first  century, space  camps
existed worldwide.

126

125. ann markusen, Scott campbell, peter hall, and Sabina deitrick,

The Rise of the Gunbelt: The

Military Remapping of Industrial America

(oxford, U.K.: oxford University press, 1991). William

Barnaby faherty,

Florida’s Space Coast: The Impact of NASA on the Sunshine State

(gainsville, fl:

University press of florida, 2002).

126. anne Baird and robert Koropp,

The Official U.S. Space Camp Book

(1992); pablo de leon,“Space

camps,” in Space exploration and humanity, 2 vols. (Santa Barbara, ca:aBc-clio, in press).

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Professional and Advocacy Groups

as rocketry moved from amateurs to military organizations and corporations

in the 1940s, the amateur rocketry groups matured into advocacy and professional
groups. professional groups such as the american astronautical Society (aaS) and
the american institute for aeronautics and astronautics (aiaa), primarily acted as
professional networking organizations, sponsoring conferences and publications for
engineers  and  managers  working  in  corporations  and  government  organizations.
others, such as the British interplanetary Society and the national Space Society
(nSS), continued  the  tradition  of  space  advocacy. despite  their  small  size, these
organizations  have  significant  political  and  economic  impact,  as  they  provide
forums for technical and political interchanges between government, industry, and
academic organizations.

Media

Space,with its inherent aura of mystery,risk,and danger,has always been a popular

media topic, which a variety of media cater to and profit from. Some general media
outlets cater to space activities, such as the “new Series in naSa history” by the Johns
hopkins University press; the public Broadcasting System’s creation and airing of carl
Sagan’s

Cosmos

series in the 1980s;home Box office’s series

From Earth to the Moon

in the

early twenty-first century, and

The Space Show

, a San francisco radio show. professional

space organizations such as the aiaa, the aaS, and the British interplanetary Society
have  their  own  in-house  publication  capabilities  for  trade  journals,  books,  and
newsletters; so  do  naSa, eSa, and  other  government  space  organizations. Some
publishers  publish  mainly  or  only  space  topics, such  as apogee  press, orbit  press,
and Space publications. Some publications are space-only or aerospace-only, such as

Space News

AviationWeek & SpaceTechnology

.though this sector is small in terms of

money, its influence is much larger than its economic size indicates.

Conclusion

Space historians select a variety of topics to study based on their own individual

interests, but they should also take note of those subjects that humanity as a whole
values, and of the wide variety of institutions that support activities in space. the
money  spent  on  particular  areas  is  a  proxy  for  the  value  that  humans  place  on
those  activities. By  this  standard, space  telecommunications  has  become, by  the
early twenty-first century, the most important space topic. perhaps because its rise
to prominence became significant in the 1980s and 1990s, it has yet to rate highly
among historians—a fact this paper hopes to elevate.also, the variety of economic
activities  that  take  place  to  support  space  endeavors  is  significantly  broader  than
is  typically  portrayed. topics  such  as  space  education, insurance, weaponry, and
support services are subjects as worthy of analysis as are human flight and space

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The Political Economy of Spaceflight

science. analysis of the interaction of civilian, military, and commercial activities
must take place within the context of these many sectors, as these interactions vary
greatly from sector to sector.

in one respect, all of these interactions have a common characteristic—

economic and political issues are tightly intertwined. a number of studies and
analyses try to separate the economic and political realms. advocates of private
enterprise such as those in the so-called alt-space movement try very hard to divide
true “commercial” endeavors from government-funded activities.

127

Unfortunately

for them, separating government from space activities has been extremely difficult
and is likely to remain so for a variety of economic, legal, and political reasons.
indeed, businesses in general seek any profitable markets, and governments are too
large a market for space-related businesses to ignore.dollars,after all,are just as green
coming from the government as from other corporations or from individuals.

Space historians have the opposite bias because they have depended largely

on government sources, which in turn have led to histories that take a government
viewpoint—often with similar priorities to the governments themselves. instead,
we space historians need to provide a much better balance between government
and private activities in our studies and analyses.Whether investigating governmental
activities (where politics are the priority but economics the grease) or investigating
privateactivities(whereeconomicsisoftenprimaryandpoliticsunavoidable),apolitical
economic approach is a useful tool to ensure a proper balance of perspectives.

127. See, for example, edward l. hudgins, ed.,

Space:The Free-Market Frontier

(Washington, dc: the

cato institute, 2002); paula Berinstein,

Making Space Happen: Private Space Ventures and the Visionaries

Behind Them

(medford, nJ: medford press, 2002), and dobbs,

Space:The Next Business Frontier

hapter

The Role of Space Development

in Globalization

James a.Vedda

undreds of books and countless articles have been written since the mid
1990s about the phenomenon of globalization. a google search on the term

“globalization”yielded 18.8 million hits in September 2005—a number that multiplied
almost six times (to 109 million) by march 2006.amazon.com displayed at least 120
new books on the subject that were scheduled to be released between September
2005 and mid-2006. despite this impressive volume of literature, the author has had
little success in finding discussions that directly address the effect of space development
on globalization (and vice versa) other than cursory acknowledgments of the role of
satellite communications as a key supporting technology.

globalization has been identified as the dominant trend that has replaced the

cold war, although its development overlaps the cold war by at least three decades.
for much of that time, U.S. government space activities had fairly well defined roles
that were closely associated with the nation’s cold war-era interests. if globalization
is the successor to the cold war paradigm, then U.S. space efforts, particularly those
involving exploration and development, must be redefined appropriately. this is not a
simple task, since debates rage as to what globalization means, where it is headed, and
whether the net effect will be good or bad.although globalization debates primarily
address economic, social, and environmental issues, the continuing influence of space
development cannot be ignored or viewed in isolation from these issues.

this chapter highlights the role of space development in the emergence of the

current era of globalization, and briefly discusses how space activities are likely to
continue to influence this evolving process. globalization, in turn, has influenced
the course of space development. the implications for the future may be both
positive and negative, including the risk of a backlash against space development
stemming from anti-globalization movements.

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Defining Globalization

the economic and societal developments that today are labeled globalization have

been around for centuries,waxing and waning at least since the sixteenth century.popular
use of the term“globalization”goes back to the late 1980s.the term’s popularity is partly
due to its ambiguity and ability to assume different connotations depending on who
is using it and in which context.

for some, it connotes international connectedness;

liberation from geographic and nationalistic limits to innovation and growth; leveling of
inequalities; improvement of living standards and the human condition; and an avenue
for avoiding major conflicts such as the wars of the twentieth century. for others,
globalization is just the opposite.they see it as “a project for polarizing and dividing
people—along axis of class and economic inequality, axis of religion and culture, axis of
gender, axis of geographies and regions . . . a new caste system.”

the deep and often heated disagreement over the nature and ramifications

of globalization makes it difficult to find a generally accepted definition for the
phenomenon that

The New York Times

writer thomas friedman calls “the overarching

international system shaping the domestic politics and foreign relations of virtually
every country.”

for purposes of this chapter, a good definition that recognizes

the contributions of technological development comes from Joseph Stiglitz, nobel
laureate in economics, who describes globalization as “the closer integration of the
countries and peoples of the world which has been brought about by the enormous
reduction of costs of transportation and communication, and the breaking down of
artificial barriers to the flows of goods, services, capital, knowledge, and (to a lesser
extent) people across borders.”

the literature on globalization tends to mention space technology (if it is mentioned

at all) in no more than a sentence or two acknowledging satellite communications as a
component of the revolution in telecommunications that enabled the current era of
globalization.the following statement is representative:

the revolution in microelectronics, in information technology
and in computers has established virtually instantaneous
worldwide links which, when combined with the technologies
of the telephone, television, cable and satellite, have dramatically
altered the nature of political communication.

1. mathias Koenig-archibugi, “globalization and the challenge to governance,” in

Taming Globalization:

Frontiers of Governance

,david held and mathias Koenig-archibugi,ed.(cambridge,U.K.:polity press,2003).

2. Vandana Shiva, “the polarised World of globalisation,” international forum on globalization, 27

may 2005,

http://www.zmag.org/sustainers/content/2005-05/27shiva.cfm

(accessed June 2006).

3. thomas l. friedman,

The Lexus and the OliveTree

(newYork: farrar, Straus & giroux, 1999), p. 7.

4. Joseph e. Stiglitz,

Globalization and Its Discontents

(newYork:W.W. norton & company, 2003), p. 9.

5. david held, “from executive to cosmopolitan multilateralism” in

Taming Globalization: Frontiers of

Governance

, david held and mathias Koenig-archibugi, ed. (cambridge, U.K.: polity press, 2003).

195

The Role of Space Development in Globalization

this cursory treatment is understandable, since most of the literature focuses

on international economics, implications for developing countries and the world’s
poor, and potential impacts to the environment. But there is much more to the story
of how space development has made the current globalization experience different
from previous ones, and will continue to affect its evolution. as former Secretary
of labor robert reich noted, technology and globalization are often discussed as
separate trends, but they are becoming one and the same.

Globalization Past and Present

the concept of globalization has been popularized in newspaper articles and best

selling books by thomas friedman, who divides its history into three distinct eras:

globalization 1.0 (1492–1800). countries and governments drove global
integration.trade began between the eastern and Western hemispheres.

globalization 2.0 (1800–2000, interrupted by the great depression and the
two World Wars).the industrial revolution and multinational companies were
the key agents of change.

globalization 3.0 (2000 onward).individuals have newfound power to collaborate
and compete globally.

friedman’s view of globalization history hinges on the increasing empowerment

of ever-smaller components of societies.this view, though compelling, is not shared
by historians, who perceive three eras of globalization as follows:

the age of exploration and colonization from the fifteenth century to the early
nineteenth century.

industrialization and expansion of world trade from the mid-nineteenth
century to 1914, at which time globalization was halted by the outbreak of the
first World War.

the current era from the post–World War ii recovery of the global economy
to the present.

When one looks at the differences between the pre-war and post-war eras, it

is clear that this latter view is more accurate—the wars and the great depression
separated two distinct eras rather than simply being a pause within a single
continuous period.this view is also better suited to the analysis of the role of space
development in the current era.

6. robert B. reich,

The Future of Success

(new York:Vintage Books, 2000), p. 23.

7. thomas l. friedman,

The World Is Flat:A Brief History of the Twenty-First Century

(new York: farrar,

Straus & giroux, 2005), pp. 9–10.

8. Jeffrey a. frieden,

Global Capitalism: Its Fall and Rise in the Twentieth Century

(new York: W. W.

norton & company, 2006).

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Before looking at the differences between the current and previous experiences

with  globalization,  it  is  instructive  to  note  characteristics  that  are  similar.  for
example, nineteenth-century globalization featured the following: unprecedented
international  movement  of  capital,  raw  materials,  and  people;  revolutionary
technological innovation, including the telephone, radio, and internal combustion
engine; and an ongoing struggle for balance between protectionism and free trade.
allowing for a century of technological advances, these characteristics sound very
familiar today.there were also tensions in that era’s international order that resemble
today’s  headlines:  imperial  overstretch,  great  power  rivalry,  an  unstable  alliance
system, rogue regimes sponsoring terror, and the rise of a revolutionary terrorist
organization (the Bolsheviks) hostile to capitalism.

the end of World War ii launched the current era by heralding a revitalization of

the economies of the industrialized nations,particularly the U.S.an important legacy of
the war that would stimulate the re-emergence of globalization was the new relationship
between the U.S. government and the research community. always a key supporter
of infrastructure projects, the U.S. government became the nation’s primary patron of
science and engineering. an effort to sustain this relationship beyond the war years
was spearheaded by president franklin roosevelt’s director of scientific research and
development,Vannevar Bush.

the result was what some have called a “social contract

with science” that portrays the pursuit of scientific knowledge as intrinsically good
and useful: as long as the nation maintains its input into the reservoir of knowledge,
the system is working as it should, and application of that knowledge will take care of
itself. institutions created in this image, such as the national Science foundation and
naSa,persist to this day,as does the dominance of government funding in certain fields,
such as medical research. however, it remains to be seen whether this social contract is
sustainable in an evolving post-cold war political environment.

large science budgets

will be increasingly difficult to justify if the scientific enterprise, or at least some part of
it, is perceived to be isolated from societal needs.

the output of this government partnership with science was the eventual

widespread availability of technologies that could only be dreamed of—or in
some cases, were unimaginable—in the prior era of globalization. for example,
technologies that allowed more rapid movement of people, goods, and information
in the latter half of the twentieth century included the following:

Jet air transport for passengers and cargo multiplied the speed of long-distance
travel, effectively shrinking travel times from days to hours. equally important,
it eventually became affordable to a broad swath of society.

9. niall ferguson,“Sinking globalization,”

Foreign Affairs

(march/april 2005).

10. Vannevar Bush,

Science—The Endless Frontier: A Report to the President

(Washington, dc: U.S.

government printing office, July 1945).

11. radford Byerly and roger pielke,“the changing ecology of United States Science,”

Science

269

(1995): pp. 1531–1532.

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The Role of Space Development in Globalization

Supertankers and container ships have dramatically reduced the cost of
transporting cargo across the oceans,and refrigeration allows perishable products
to make their way around the world.

near-instantaneous, high-bandwidth communications have evolved so far beyond
the telegraph and radio of our great-grandfathers’ day that the benefits are beyond
our ability to quantify. By the 1960s, telephones became ubiquitous and continents
were connected by undersea cables.the fax machine became popular in the mid
1980s,at the same time that so-called microcomputers were maturing.By the 1990s,
the expectation was that every desktop would have its own computer, probably
linked to a corporate network and the internet.

Space technology in its various forms started making its contribution to
globalization in the 1960s.

clearly, the contribution of space technology was not limited to the addition

of satellites to an already expanding network of global communications, as the
globalization literature seems to imply.the full array of emerging space capabilities
had significant influence. for example, numerous business and government
activities at the local, regional, national, and international level are dependent on
the weather.the improved weather forecasts enabled by satellites beginning in the
1960s enhanced productivity and safety of operations in areas such as agriculture,
air transport, shipping, construction, mining, and utilities, to name a few. over time,
these improvements had cumulative effects that altered business cycles and planning
to reflect an evolving information age economy.

as weather monitoring matured, another form of earth monitoring known as

satellite remote sensing became available to civilian users starting in the 1970s.able
to produce images much more detailed than weather satellites, and in some cases
using  multiple  spectral  bands  that  reveal  even  more  information, remote  sensing
opened new avenues for industries such as those listed above and others, including
urban planners, environmentalists, fossil fuel geologists, and even archeologists. early
in naSa’s landsat series, interest in this new capability spread around the world.
assisted  by  the  U.S. policy  of  nondiscriminatory  access  to  landsat  data, remote
sensing became a new tool for resource exploration, environmental stewardship, and
disaster assistance, among other applications. commercial descendants of landsat
are  cultivating  global  markets  in  ventures  that  are  very  much  in  keeping  with
the  proliferation  of  know-how  and  exchange  of  data  that  are  characteristic  of  a
globalized world.

the use of satellites for navigation began in the 1960s, primarily to serve

the needs of military ships and submarines. today, gpS has become a household
word (or more appropriately, a household acronym) even to those who don’t know
that it stands for global positioning System. By the end of the 1980s, the gpS
constellation was taking shape and its services—accurate positioning, navigation,
and timing—were being shared at no cost with the world. essentially, those services
provide value to anything that moves, and even some things that don’t move but

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paceflight

depend on precise timing signals. though it is often overlooked, this capability is
in a class with satellite communications as an enabler of globalization. its ability to
assist the movement of people, goods, capital, and information around the world is
widely recognized, as evidenced by several global and regional navigation satellite
systems operated or planned by russia, china, europe, Japan, and india.

one of the most important but least acknowledged contributions of satellites

to globalization is their role in keeping the cold war from turning into a hot war.as
noted earlier, the previous era of globalization ended abruptly with the outbreak of
major military conflict in 1914. despite the best efforts of many, it took more than
three decades to resurrect globalization. the same thing could have happened in
the years following World War ii, dramatically worsened by the addition of nuclear
weapons into the mix. the “balance of terror” in offensive weapons is generally
given credit for the fact that this never happened, but the nuclear arsenal could not
have allowed us to achieve this without the support of satellites for surveillance,
reconnaissance, and targeting.

not all observers during the cold war saw the government relationship with

science and technology, or space in particular, in a positive light.

a noteworthy

example that specifically addresses space comes from historian Walter a. mcdougall,
who received a pulitzer prize for his 1985 book on the political history of the
early space age.

his views on the social consequences of the space program were

perhaps more starkly displayed in a 1982 journal article in which he identified
the U.S. response to Sputnik as the catalyst that turned the United States into a
“full-fledged technocracy” in the 1960s.

mcdougall proposed his own definition

of technocracy (usually taken to mean the management of society by technical
experts). he defined it as “the institutionalization of technological change for state
purposes.” institutionalized stimulation of science and technology, in his view, is
artificial, and in the U.S. it “extended not only to military spending, science, and
space, but also to foreign aid, education, welfare, medical care, urban renewal, and
more.”the “symbol and vanguard” of this movement, he said, was naSa.

12. for a striking example of how satellites helped keep the cold war cold, see the discussion of the

cuban missile crisis in William e. Burrows,

Deep Black

(new York: random house, 1986).a more

recent expression of this view can be found in david Kahn, “the rise of intelligence,”

Foreign

Affairs

(September/october 2006).

13. for example, see amitai etzioni,

The Moon-Doggle

(garden city, nY: doubleday and co., 1964).

14. Walter a. mcdougall,

. . . the Heavens and the Earth: A Political History of the Space Age

(new York:

Basic Books, 1985).

15. Walter a. mcdougall, “technocracy and Statecraft in the Space age: toward the history of a

Saltation,”

The American Historical Review

87 (1982): pp. 1010–1040. for a later reiteration of these

views, see hal Bowser, “how the Space race changed america: an interview with Walter a.
mcdougall,”

Invention & Technology

(fall 1987): pp. 25–30.

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The Role of Space Development in Globalization

mcdougall saw the Space age as “defined by the discontinuous leap in public

stimulation and direction of research and development” and worried that “progress
may, at times, undermine the values that make a society worth defending in the
first place.” he suggested that “[t]he net gains from space technology should be
measured not only against the total cost, or the economic cost, of the program itself
but also against the continuing loss incurred from misdirected military and social
spending encouraged by the same technocratic mentality that inspired apollo.”

mcdougall gave naSa and the space program far too much credit for shaping

the management of late-twentieth-century society. many phenomena of equal or
greater influence existed, some of which preceded the Sputnik era by many years.the
U.S. government turned to centralization of large-scale projects during the new deal
of the 1930s.the war effort continued this trend and increased government influence
over technological and industrial development. in the post-war era, as the population
and economy grew, the government pursued many macro-projects unrelated to space
while exercising its cold war responsibility as the leader of the “free world.” these
examples put the space program’s role into proper perspective: high-profile space
research was a product, not the cause, of its socio-political environment.

mcdougall’s primary focus was on the research and development enterprise,

which he saw as a “command economy” approach to “choosing new technology for
social (and political) goals ...abandoning the concept of a free society”and reinforcing
“the national state as the most efficient agent of technological change.” his skeptical
assessment of the nation’s research and development enterprise (including the space
program)—highlighting centralization, nationalism, and direction of technological
development by public institutions—is the polar opposite of the globalization concept
we know today. however, the key aspects of the nation’s space efforts that have helped
to enable globalization are not the direct public funding of research but, rather, the
dissemination, adoption, and routine use of the resulting space applications.

present-day globalization is reaping the benefits of space applications created

and  disseminated  in  the  cold  war  in  an  environment  that  kept  major  threats  at
bay  and  allowed  global  markets  to  flourish. government  space  efforts  aimed  at
national security, national prestige, and technology development have led us to a
point  where  civil  and  commercial  space  applications  are  fundamental—though
often transparent—in a globalizing world.

Space Development Under a Globalization Paradigm

friedman believes that the current system of globalization “has come upon us

far faster than our ability to retrain ourselves to see and comprehend it.”

certainly

16. friedman,

The Lexus and the Olive Tree

, p. 22.

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this has been the case with space development.as in other societal activities, space
related institutions seek to continue their existence and their traditional priorities
despite the fast pace of change in key segments of their environment. Since the end
of the apollo era, for example, U.S. civil space efforts have struggled with questions
on the role of government vs. the private sector, made all the more difficult by the
fact that the answers are moving targets.Who should finance,build,and operate space
infrastructure elements such as launch systems and space stations? to what extent
should the government support research projects that have the potential to produce
private-sector revenues? in an era of tight federal budgets, should the government
shift as much responsibility and expertise as possible to the private sector, or is
this a short-sighted strategy that will undermine the nation’s continuing need for
large-scale, evolving space capabilities? can the private sector, at the current stage
of technical development, always be counted on to choose better space investments
and technical approaches than the government?

a significant percentage of the space industry is designed to serve governments,

since these constitute much of the customer base in key areas such as space hardware
manufacturing and launch services.the relatively small number of competitors and
customers in these areas, and the dominance of government customers, yield a space
industry that is slower to adapt and innovate than most other high-tech industries.
the tendency to protect space technologies as sensitive national assets slows their
adoption  in  the  world  market  and  may  hinder  the  competitiveness  of  nations
employing  export  restrictions  and  protectionist  measures. these  circumstances
do  not  bode  well  for  the  U.S. space  community’s  ability  to  rapidly  adapt  to  the
globalized environment.

in addition to keeping up with the frenetic pace of the world’s economic

evolution,the U.S.space community also must adapt to changes in its character.in the
globalization era, this must take into account the diffusion (or “democratization”) of
technology, information, economic power, and international influence.the leveling
effect  that  results  will  change  relationships  with  international  partners, increase
competition  in  space  products  and  services  on  the  world  market, and  challenge
U.S. space leadership across the board. this is already forcing the U.S. civil space
program  to  rethink  its  post-cold  war  identity, as  demonstrated  by  the  shift  away
from  naSa’s  flagship  programs  of  the  1970s  and  1980s  and  toward  ambitious
human space exploration.

as before, geopolitics and economics will drive the search for a new national

identity in space. the issues are somewhat different today than they were during
the  cold  war, but  the  challenges  and  risks  remain. the  international  forum  on
globalization  warns  of  this  when  it  states: “the  world’s  corporate  and  political
leadership is undertaking a restructuring of global politics and economics that may
prove as historically significant as any event since the industrial revolution. this
restructuring  is  happening  at  tremendous  speed, with  little  public  disclosure  of
the profound consequences affecting democracy, human welfare, local economies,

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The Role of Space Development in Globalization

and the natural world.”

Warnings of this type are echoed by many observers of

globalization, some of whom see the movement as unsustainable, sparking nonlinear
trends that will be impossible to manage.

in a recent assessment, the central

intelligence agency recognized that sustained financial crises or other prolonged
disruptions could occur, but was generally optimistic about the prospects for the
global economy by 2015. the implications for geopolitics were also viewed with
optimism but were tempered by caution:

this globalized economy will be a net contributor to increased
political stability in the world in 2015, although its reach and
benefits  will  not  be  universal.  in  contrast  to  the  industrial
revolution, the process of globalization is more compressed. its
evolution will be rocky, marked by chronic financial volatility
and a widening economic divide . . . regions, countries, and
groups  feeling  left  behind  will  face  deepening  economic
stagnation, political instability, and cultural alienation.they will
foster  political,  ethnic,  ideological,  and  religious  extremism,
along  with  the  violence  that  often  accompanies  it. they  will
force the United States and other developed countries to remain
focused on “old-world” challenges while concentrating on the
implications of “new-world” technologies at the same time.

as noted earlier, supporters of globalization believe it will allow more and

more individuals, as consumers and producers, to enjoy the benefits of economic
liberalization, competition, and innovation. it is natural to want to see oneself as part
of the solution rather than part of the problem,so the space community undoubtedly
would like to view itself as an essential tool of globalization for redressing deficiencies
and providing solutions for global problems. But general acceptance of this view is
not automatic. in fact, there is a risk that the opposite may occur.

globalization has a dark side, and there is no shortage of critics around the

world who are eager to point this out.among the negative aspects of globalization
that have been cited are:

exposure of workers and firms to unwelcome competition from abroad, and
increased risk that companies will relocate their production elsewhere.

competition between locations for mobile capital that may lead to a “race to
the bottom” in environmental standards.

17. the international forum on globalization claims to represent more than 60 organizations in 25

countries and identifies itself as “an alliance of sixty leading activists,scholars,economists,researchers,
and writers formed to stimulate new thinking, joint activity, and public education in response to
economic globalization.” See

http://www.ifg.org/

(accessed June 2006).

18. ervin laszlo,

Macroshift: Navigating the Transformation to a Sustainable World

(San francisco: Berrett-

Koehler publishers inc., 2001), p. 8.

19. central intelligence agency,

GlobalTrends 2015:A Dialogue About the FutureWith Nongovernment Experts

(newYork: cosimo inc., 2005; originally released as a U.S. government report in december 2000).

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diffidence to the outside world or fear that a cherished way of life will disappear
as a result of cultural standardization.

potential worsening of inequality and injustice and erosion of democratic
governance.

the challenge for space development is to continue its role as a key element

of globalization without becoming associated with its negative consequences.the
same entities that dominate space development—government institutions and
transnational corporations—are seen by critics as orchestrating globalization to serve
the wealthy at the expense of the poor. in this view, observations of earth from space
might be interpreted as security threats or as a way to spy on economic activities in
other parts of the world, rather than being seen as an instrument of environmental
protection and disaster relief. Satellite communications might be depicted as a tool
for extracting information and capital from unsuspecting regions of the world,
rather than as a means of bringing information and capital to them. even incoming
information can be pejoratively portrayed as “cultural contamination” or Western
propaganda designed to influence national or regional policies and attitudes.

Space technology could be seen by globalization critics as a tool of transnational

corporations that exploit workers, of foreign investors who undermine local
businesses,or of wealthy (i.e.,spacefaring) countries that economically take advantage
of developing nations.the result could be neo-luddite controls on technology and
onerous trade protection schemes that suppress economic dynamism.

therefore,

it is critical that government-supported space development be directed at—and
perceived as—seeking solutions for the planet in areas such as disaster relief,
environmental monitoring, climate research, medical research, and in the long term,
the use of extraterrestrial resources and capabilities for the benefit of earth.

So far, the government institutions criticized most often by globalization

opponents are the World Bank, the international monetary fund, and the World
trade organization.

multinational corporations typically are disparaged generically

rather than by individual sectors,

and mention of aerospace companies is notably

absent so far. But there is still the possibility for an anti-technology backlash akin to
the Vietnam-era experience.

20. held,“from executive to cosmopolitan multilateralism,” pp. 2–3.
21. reich,

The Future of Success

, p. 247.

22. for example, see Stiglitz,

Globalization and Its Discontents

; peter isard,

Globalization and the International

Financial System:What’sWrong andWhat Can Be Done

(newYork: cambridge University press, 2005).

23. for example, see robert o. Keohane,“global governance and democratic accountability”

Taming

Globalization: Frontiers of Governance

, david held and mathias Koenig-archibugi, ed. (cambridge,

U.K.: polity press, 2003).

24. W. henry lambright,“managing america to the moon:a coalition analysis” in

From Engineering

Science to Big Science:The NACA and NASA Collier Trophy Research Project Winners

, pamela e. mack,

ed. (Washington, dc: naSa Sp-4219, 1998), p. 209.

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The Role of Space Development in Globalization

for at least part of the cold war era, large public expenditures on space projects

were widely perceived in the U.S.as good investments to counter powerful,unfriendly
forces in the world that could wreak nuclear destruction at any moment. today,
the public’s perception of U.S. civil space efforts as a counterweight to unfriendly
forces appears much weaker (although this factor is not measured directly by public
opinion polls). certainly the national prestige argument for the space program has
lost much of its impact, since terrorist networks and rogue nations are not winning
hearts and minds around the world by demonstrating their prowess in spaceflight.
even china’s human spaceflight program fails to stir fears in the West as it follows a
path that was tread by the U.S. four decades earlier.

in the current era,the value of government space efforts needs to be measured by

a different yardstick that takes into account the multipolar geopolitical environment
and the globalized nature of economics and technology.the space community must
recognize the effect of this environment on trade, technology, and leadership in
space, and resist the urge to preserve the outdated aspects of institutions, processes,
and relationships that insulate it from the evolving “big picture.”

Possible Futures

a recent multiphased study by the organization for economic cooperation

and development (oecd)

addressed the future of space applications through

the 2030s and perhaps provided some guidance on avoiding an anti-globalization
backlash. the study did not express itself in globalization terms but, rather,
sought “to understand how oecd countries may reap the benefits of civil and
commercial space applications for society at large.” it used a scenario approach based
on “the interaction of three main drivers of social change: geopolitical, economic,
and environmental.” Viewed from a globalization perspective, the three scenarios
presented in the study ranged from successful globalization to its failure to sustain
itself in the face of a combination of unfavorable factors.

although the oecd effort does not speak in terms of globalization,it nonetheless

covers similar ground. Significantly, despite its generally optimistic outlook for civil
and commercial space, it identifies obstacles to future growth, including:

market access restrictions due to incomplete trade liberalization in some
countries.

procurement policy problems resulting from the unreliability and unpredictability
of government customers.

25. organization for economic cooperation and development, “Space 2030: exploring the future

of Space applications,” 3 may 2004, and “Space 2030: tackling Society’s challenges,” 31 may
2005. Both titles are available from

http://www.oecdbookshop.org

(accessed June 2006). the oecd

is a multinational forum for addressing economic, social, and environmental challenges. it has 30
member countries in north america, europe, and the pacific rim.

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export controls and investment restrictions.

Spectrum allocation problems.

insufficient government support for the development of new technologies.

legal and regulatory constraints that cause uncertainty and delay in the
deployment of new applications.

the oecd frames its recommendations in three “blocks” aimed at what

governments can do to strengthen the contributions space can make to solving
important socioeconomic challenges:

Block i: implement sustainable space infrastructure that is fully integrated

with ground infrastructure and takes into account user needs, especially in the areas
of earth observation, navigation, communications, and access to space.

Block ii: take advantage of productivity gains that space solutions may offer

for delivery of public services and development of new ones, particularly through
international cooperation, data sharing, disaster and treaty monitoring, emergency
management, and economic development.

Block iii: encourage the private sector to contribute fully to the development

of new,innovative applications and to the development and operation of space-based
infrastructures by making national and international space laws business-friendly,
and by encouraging entrepreneurship, open markets, and international standards.

these recommendations align well with a belief that space development should

continue to play a significant role—far beyond just communications—in shaping
globalization’s evolution and keeping it focused on societal needs. in its detailed
recommendations, the oecd study suggests ideas on how we can get there from
here. at least for the next three decades, the study sees great hope and promise for
applied space research and development, relegates basic research to government
space agencies, and seems to marginalize human spaceflight.

today’s space community must consider timeframes even beyond 30 years.

given the scope and difficulty of exploring and developing space, it is not too early
to ask:Where do we want the United States to be when it reaches its tricentennial
in 2076? Will the United States still be one of the leaders in space at that time?

26. oecd, 2004, p. 16.
27. oecd, 2005, pp. 211–215.

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The Role of Space Development in Globalization

Conclusion

analyses of the circumstances and outcomes of the previous era of globalization,

and the similarities to and differences from the current era,are instructive in defining
the role space has played and will play in the years ahead.Will globalization continue
to flourish in the decades to come, or will it end relatively soon, perhaps suddenly,
as it did nearly a century ago at the outbreak of World War i? at that time, Britain
was still the world’s financial center but the United States had become the world’s
largest national market and had surpassed Britain in industrial output.

Between 1870 and 1913 the size of the British economy well
more than doubled; even if one takes into account population
growth,  British  output  rose  by  more  than  50  percent  per
person in those years.Yet the gap between Britain and the rest
of the world narrowed continually. British manufacturers were
being  beaten  out  of  export  markets, even  out  of  the  British
market. the  United  States  and  germany  were  the  world’s
manufacturing  dynamos;  the  United  Kingdom  maintained
its leadership only in such services as banking, insurance, and
shipping. it was no longer a given that the next power plant or
railroad built in africa or eastern europe would be British; it
was just as likely to be german, french, or american. even in
international investment, continental financial centers—as well
as new York—were challenging london’s supremacy. it could
hardly have been imagined that Britain’s enormous industrial
lead would last forever, but the speed of its erosion led many
Britons to ask how this had happened . . . .

after 1914, the hardship of the war and the faltering economic recovery of the

following decade shifted financial leadership to the U.S., where it has remained ever
since. But go back and read the above quote again, this time substituting the U.S. for
all the references to Britain, and emerging economic powers like china and india
for the references to germany, france, and america.the description becomes eerily
familiar, mirroring news media reports of the past quarter-century.

could either continuation or disruption of globalization shift leadership roles

the way it did in the early twentieth century? it happened once, so it can happen
again.the story of space development in the globalization era, and of U.S. ambitions
in this arena, is still being written.

28. frieden,

Global Capitalism

, p. 107.

hapter

Nasa as an Instrument of U.S. Foreign Policy

John Krige

as space exploration, and naSa’s role in it in particular, had an effect on society,
and, if so, on what aspects of it? and how do we measure any such impact?

these  are  challenging  questions  indeed. the  stakeholders  in  the  huge american
space program are multiple and include scientists; engineers; research, development,
and launch facilities; industry; administrators; and many government agencies, not to
speak of congress and the U.S. taxpayer.the impacts of spaceflight vary widely, from
adding  to  the  stockpile  of  knowledge  and  stimulating  innovation  and  industry, to
training, education, and creating jobs and—if we move beyond the civilian sphere—
to  enhancing  national  security  and  intelligence  gathering. and  then  there  are  the
intangible, difficult to quantify cultural effects that range from inspiring a young girl
to become an astronaut to building national pride and prestige in what are, after all,
spectacular scientific and technological, managerial, and industrial achievements.

this paper briefly considers one small, but i think important and often

overlooked, corner of this vast panorama: the place of spaceflight in american
foreign policy. i do not simply want to insist that naSa’s international programs
have had an important impact as instruments of foreign policy. i also want to suggest
that today they have a particularly significant political and cultural role to play in
projecting a positive image of american power and american democracy abroad.
in a world increasingly torn apart by conflicts over values—conflicts which history
teaches us can seldom be resolved by force—i believe we overlook the potential of
naSa as an instrument for american foreign policy at our peril.

international cooperation for peaceful purposes was one of naSa’s important

missions from its inception, and those who drafted the Space act that created the
organization in 1958 gave it considerable prominence. the range of international
activities covered by naSa is truly vast.

these are partly a response to the nature

1. arnold W. frutkin,

International Cooperation in Space

(englewood cliffs, nJ: prentice hall, 1965);

arnold W. frutkin,

Space and the International CooperationYear:A National Challenge

(Washington, dc:

U.S. government printing office, 1965 ol-779-251).arnoldW. frutkin “international cooperation
in Space,”

Science

169 (24 July 1970): pp. 333–339 surveys naSa’s general philosophy on international

cooperation and some of the earlier programs of interest to us here.

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of space exploration itself, which transcends national boundaries; whether they are
launching sounding rockets or astronauts, communicating with satellites or space
shuttles, or measuring the properties of the ionosphere or the trajectory of storms,
naSa and its sister agencies have to think globally.

however,those who implemented naSa’s mandate had a far broader vision of

international cooperation than one that was simply subservient to america’s national
space needs. from its inception, naSa saw its role as fostering the development of
space science and technology in other countries. its officers, in consultation with
other parts of the administration (notably the State department and the department
of defense), sought to use american scientific and technological preeminence to
kick-start and even mould space activities in other countries, notably those of the
Western alliance. naSa’s international programs were intended to build a world
community dedicated to the peaceful exploration of space with american help,under
american leadership, and in line with the general objectives of american foreign
policy. in brief, as a naSatask force put it in 1987,“[i]nternational cooperation in
space from the outset has been motivated primarily by foreign policy objectives.”

in what follows i shall substantiate these claims by focusing on three space

science programs in which U.S. foreign policy has been interwoven, more or less
explicitly, with naSa’s international initiatives.What makes these cases interesting
is that, a priori, many people tend to believe that science is above politics and that
international science is conducted independently of foreign policy concerns. this
paper will not simply challenge such views but, by picking what is arguably the
most difficult case, scientific collaboration, will alert us to the range of areas—some
obvious, some less evident—in which naSa has served as a vector of U.S. foreign
policy. my aim is to illustrate naSa’s impact on strengthening the Western alliance
not simply by promoting international scientific collaboration, but also by using it as
a platform to consolidate the political and cultural solidarity of the free world.and
although my examples are drawn from the cold war and its immediate aftermath, the
lessons of history apply just as much today, when new and even more fundamental
divisions threaten to tear apart the fragile fabric of Western democracy.

Space Science When the Cold War Was Hot

in march 1959, just a few months after naSa officially came into being, the

american delegate to a meeting of the committee on Space research (coSpar)
announced that the U.S. would be willing to launch scientific experiments proposed
by scientists from other countries on american-built satellites.

naSa would help

2. task force on international relations in Space, national aeronautics and Space administration,

International Space Policy for the 1990’s and Beyond

, (Washington, dc: naSa, 1987), p.18.

3. the text is reproduced in h. massey and m. o. robins,

History of British Space Science

(cambridge,

U.K.: cambridge University press, 1986),annex 4; see also pp. 67–69.

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Nasa as an Instrument of U.S. Foreign Policy

integrate the experiment into the payload and would even consider launches
entirely dedicated to foreign experiments. the organization also offered to host
foreign scientists in U.S. laboratories where they would help them design, build, and
test their experiments. informally, naSa also let it be known that, initially at least,
the payload would be launched free of charge using an american rocket.

the British enthusiastically took up this initiative, and in april 1962 naSa

launched ariel  i  containing  instruments  that  had  been  designed, prepared, and
funded by the British national committee for Space research. ariel ii followed
in  1964. a  year  later  the  British  were  engineering  and  building  the  payload  for
their own satellite with naSa’s help. in September 1962, naSa also launched a
canadian satellite, alouette i, that had been designed, funded, and engineered by
the  defense  research telecommunications  establishment, inaugurating  a  fruitful
joint venture with the U.S. in studies of the ionosphere. french and italian space
researchers also benefited quickly from the offer made at coSpar.indeed,by 1965
arnold W. frutkin, who had been put in charge of naSa’s international programs
in  September  1959, could  boast  that  the  organization  had  already  entered  into
collaborative arrangements with no fewer than 69 countries. apart from providing
for naSa’s own needs,as explained above,these programs,frutkin pointed out,were
affording opportunities to the best brains abroad to contribute and participate in
space research, were stimulating technical development abroad so perhaps reducing
some of the gaps that were causing political and economic strains between the U.S.
and its partrners, and were providing a framework for other countries to join naSa
in complementary and cost-sharing programs—like that with canada.

frutkin was never sentimental about the benefits of international collaboration;

his  experience  in  the  international  geophysical Year  had  taught  him  just  how
easily  the  high  ideals  of  internationalism  could  be  thwarted  by  the  centrifugal
pull of national interest. his roadmap for international collaboration was one that
demanded there be no exchange of funds between the partners; that there be clean
technological  interfaces  at  the  level  of  hardware; that  the  project  be  of  genuine
scientific interest and, if possible, complement the american space science program;
and that the results be published and open to all. it was implicit in this roadmap that
political considerations did not determine the choice of projects and that naSa’s
civilian mandate was respected.

on the face of it, these collaborations were of purely scientific interest and

have no relevance to my topic.Yet the more we probe, the more we realize how
deeply embedded they were in the cold war struggle and the pursuit of america’s
foreign policy objectives. i shall identify just two very different dimensions of this
that are pertinent to these cases.

4. arnold W. frutkin,

International Cooperation

(englewood cliffs, nJ, prentice hall, 1966), esp. chapter 2.

5. See frutkin,

International Cooperation

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first, the determination to help Britain and then canada orbit their own

satellites quickly was provoked, in part, by fears that a communist country, and not
a member of the Western alliance, would be the first to launch a satellite after the
USSr and the U.S.

there was a space race in space science.as early as September

1958, officials hoped to place British instruments on an american satellite launched
from the U.K.’s test range in Woomera, South australia.

it soon became clear that

even if america’s most important ally was putting a national space program in place,
it did not yet have the independent capacity to provide an instrument payload.
naSa’s proposal made to coSpar in march 1959 was partly a response to the
inherent weakness of this and other european space programs. if the British were
quick to capitalize on it, it was not only because they valued american help but
also because they realized the urgency of the situation, both in terms of national
pride and the opportunities provided by cold war rivalry.ariel i, launched in april
1962, won the race, though it was something of a pyrrhic victory. although the
instrumentation was British, the satellite was american. it was canada’s alouette
i satellite, launched on 29 September 1962, that had the honor of being “the first
satellite to be designed and built by a nation other than the United States or the
Soviet Union.”

apart from providing valuable information on the ionosphere, it

ensured that a country from the Western alliance and not from the communist bloc
was third into space with its own satellite.

cultural as well as political spinoffs accrued from the early space race in

science. as i mentioned earlier, france also took advantage of america’s offer
to help build a national space science program. indeed, in the words of roger
Bonnet, an internationally recognized figure in french and european space science,
“[W]ithout the [sic] american cooperation, the french space science programme
would not have had any chance to start on a competitive basis.” Bonnet’s own ph.d.
research on the ultraviolet spectrum of the Sun was made possible thanks to the
close contact established between his mentor, Jacques Blamont, and the american

6. John Krige,“‘Building athird Space power.’Western european reactions to Sputnik at the dawn of the

Space age,” in

Reconsidering Sputnik: FortyYears Since the First Soviet Satellite

, roger d. launius, John m.

logsdon and robert W. Smith, ed. (amsterdam: harwood academic publishers, 2000), pp. 289–307.

7. neil Whyte and philip gummett,“far Beyond the Bounds of Science:the making of the United

Kingdom’s first Space policy,”

Minerva

(1997): pp. 139–169.

8. c. a. franklin, “alouette/iSiS: how it all Began,” ieee international engineering ceremony,

Shirley Bay, ottawa, 13 may 1993, available online at

http://www.ewh.ieee.org/reg/7/millennium/

alouette/alouette_home.html

(accessed 15 September 2006).

Alouette’s

mission had three components:1) develop a canadian space capability;2) acquire new data for

the engineering of high-frequency radio communication links; and 3) acquire a better understanding
of the properties of the ionosphere for scattering and deflection of radar beams. See Web site quoted
in previous note, and also

http://www.sciencetech.technomuses.ca/francais/collection/space2.cfm

(accessed 15

September 2006). frutkin glosses over the military origins of alouette.

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Nasa as an Instrument of U.S. Foreign Policy

space science community, notably at the goddard Space flight center. in fact,
Bonnet’s first launch in the Sahara desert in 1963 used a french Véronique sounding
rocket enhanced with two pointing systems developed for the U.S. military by the
University of colorado. Why is this pertinent? Because roger Bonnet was raised
in a french communist family and as a young man it had been Soviet firsts that
inspired him to enter space research.Working with the U.S. forced him to revise his
political perspective.as he put it in an interview with me recently:

. . . We were all impressed by the frantic competition which
developed between the russians and the americans in the race
to space.it was fascinating as far as i was concerned.i was listening
to the radio each time the Soviets were launching something
new and witnessed vividly all their first steps into space: the first
intercontinental ballistic missile, the first Sputnik, and all that
followed after. it was fantastic! But very soon we realized that
the americans adopted an open policy of information which
we could not always get from the russians. So, ultimately there
was a greater appeal to cooperate with the americans.

collaboration with france did not simply kick-start the national space science

community. it could also pull french space scientists out of a pro-Soviet or neutralist
orbit, thereby strengthening the ideological cohesion of the Western alliance.

all of us remember president Kennedy’s commitment in may 1961 “. . . to

achieving the goal, before this decade is out, of landing a man on the moon and
returning him safely to earth.”We can still be inspired by another speech at rice
University a year later, in which he proclaimed “We choose to go to the moon
in this decade and do the other things not because they are easy but because they
are  hard, and  because  that  goal  will  serve  to  organize  and  measure  the  best  of
our  energies  and  skills.” for  Kennedy, success  in  space  was  a  barometer  of  the
capacity of america to mobilize its resources and its dynamism to achieve any goal
it wanted.the apollo program was a direct response to the increasing credibility of
communism as a viable alternative to capitalism, of which successes on the ground
in indochina and in space with flights such as that of Yuri gagarin were simply the
most manifest examples.taking on the challenge of putting a person on the moon
was a deliberate effort to regain the initiative by identifying national prestige and
good  government  with  a  major  scientific  and  technological  achievement  which
tested the mettle of astronauts, engineers, administrators, and industry alike.

10. roger Bonnet interview, geneva, Switzerland, by John Krige, 10 february 2005, historical archives of

the european economic community, european University institute,Villa il pioggiolo, florence, italy.

11. this paragraph owes much to John m. logsdon,

The Decision to Go to the Moon: Project Apollo and

the National Interest

(cambridge, ma: mit press, 1970), and howard e. mccurdy,

Space and the

American Imagination

(Washington, dc: Smithsonian institution press, 1997), chapter 4.

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one of Kennedy’s main concerns in taking that initiative was the many countries

that had recently been decolonized; accordingly, he introduced the section of
his speech to congress in may 1961 that gave birth to the apollo program by
identifying the conquest of space with “. . . the battle that is going on around the
world between freedom and tyranny, . . . the battle for men’s minds, . . . the minds
of men everywhere who are attempting to make a determination of which road
they should take.”

many in Western europe were also grappling with that choice.

according to space historian Walter mcdougall, an april 1960 poll revealed that a
majority of europeans in every country expected the USSr to be stronger than
the U.S. after 20 years of “competition without war.” more to the point, according
to a report from the U.S. information agency, only one frenchman in 14, or about 7
percent of those polled, thought the U.S. would prevail over its communist rival in the
long run.

collaborating with Blamont, Bonnet, and their colleagues in space science

promoted U.S. foreign policy objectives at a cultural level by tangibly demonstrating
the values of an open, democratic system over a closed, communist society.

Helios: A Place in the Sun for Germany

in december 1974 and in January 1976, two german spacecraft, helios 1

and helios 2, weighing about 452 lbs (205 kg) each, were launched by american
rockets into elliptical orbits about the Sun.they were designed to fly closer to the Sun
than any previous spacecraft (approaching to within 25 million miles) and to provide
invaluable scientific information about solar processes and solar–terrestrial relationships.
this was the most ambitious bilateral scientific project that naSa had undertaken to
date. its estimated cost in 1970 was $100 million, paid by the (West) german ministry
for Science and education. germany designed, manufactured, and integrated the two
spacecraft,provided the majority of the payload (which also included some experiments
from the U.S., australia, and italy), and operated and controlled the spacecraft from
a national facility. naSa provided the deep space tracking network to support the
mission and participated in the JointWorking group which was responsible for technical
implementation. the helios spacecraft imposed advanced technical requirements on
german industry, particularly for the development of the on-board power system, on-
board data processing system, and thermal controls which had to survive high levels of
solar radiation. it also introduced german engineers and project managers in the Joint
Working group to the way space projects were implemented in the U.S.

12. logsdon,p.128.See also Jeremi Suri,

Power and Protest:Global Revolution and the Rise of Détente

(cambridge,

ma: harvard University press, 2003), pp. 15–25.

13. Walter a. mcdougall, . . .

the Heavens and the Earth: A Political History of the Space Age

(new York:

Basic Books, 1985), p. 241.

14. frutkin,

International Cooperation

. for an overview, see niklas reinke,

A History of German Space

Policy: Ideas, Influences and Interdependence

, 1923–2002, translated from the german (noordwijk,the

netherlands: eSa, forthcoming).

213

Nasa as an Instrument of U.S. Foreign Policy

helios was the crowning achievement of U.S.-german space science

collaboration that began in the mid-1960s with sounding rocket experiments
and graduated through various smaller satellite projects.

it was heavily charged

with political content and foreign policy concerns. Just before christmas 1965,
chancellor ludwig erhard made an official visit to Washington. in a brief exchange
of toasts with his guest in the state dining room, president Johnson took time to
mention their ongoing “mutual adventure in space” and said he looked forward to
discussing “more ambitious plans to permit us to do together what we cannot do
so well alone,” including a probe to the Sun, the eventual helios.

erhard visited

Johnson again in october 1966. despite the fact that he only came for two days, he
was taken down to cape Kennedy to see the progress there. in an official address
in the as-yet incomplete Vehicle assembly Building, Johnson assured erhard that
the apollo program was progressing as expected and reaffirmed his commitment
to mutual space projects.

on the way back to Washington, naSa administrator

James Webb took the opportunity to spend an hour with the german chancellor.
the “large on-going effort [at the cape] made a deep impression” on erhard,Webb
wrote Secretary of State dean rusk. he went on: “[i]t seems to me that erhard
had a different attitude when we left the cape than when we arrived. in fact, he
did say that it was impossible to learn from pictures, television, and documents the
true scope and magnitude of what was being done and that he had a much better
appreciation of its importance.”

there are many reasons why the american president and his top advisors went

to such pains to publicly and personally promote space collaboration with germany,
and chancellor erhard, at this particular moment. i shall mention just a few here.

first, it was an attempt to meet european objections that a “technological

gap” had opened up between the two sides of the atlantic that made it impossible

15. “german-naSa cooperation, 9/28/66,” record no. 14620, international cooperation and foreign

countries, foreign countries,West germany, folder germany-U.S., 1963–1984, naSa historical
reference collection,Washington, dc.

16. “the White house. exchange of toasts” between Johnson and erhard, 20 december 1965, nSf,

country file europe & USSr, germany/erhard Visit [12-65], folder 12/19-21/65, Johnson
presidential archives, University of austin,austin,texas.

17. “the White house. remarks by the president atVehicle assembly Building, cape Kennedy, florida,”

20 September 1966, nSf, country file europe & USSr, germany 9/66, erhardVisit, folder papers,
cables, memos [9/66], Johnson presidential archives, University of austin,austin,texas.

18. James e.Webb to dean rusk, 14 october 1966, record no. 14465, international cooperation and

foreign countries, foreign countries,West germany, folder germany (West), 1956–1990, naSa
historical reference collection,Washington, dc.

19. thomas alan Schwartz,

Lyndon Johnson and Europe: In the Shadow of Vietnam

(cambridge, ma:

harvard University press, 2003) is a fine analysis of the Johnson’s foreign policy in the region. See
also John Krige, “technology, foreign policy and international cooperation in Space,” in

Critical

Issues in the History of Spaceflight

, Steven J. dick and roger d. launius, ed. (Washington dc: naSa

Sp-2006-4702, 2006), pp. 239–260.

214

ocietal

mpact of

paceflight

for european high-tech firms to compete effectively in the world market against
their american rivals.this had deep political ramifications since it bred resentment
against what was perceived as american domination, and undermined Washington’s
demand that europe assume more of the burden for its own defense. Both parties
quickly realized that the fault lay within europe itself, and that its institutions
and managerial practices needed drastic reform. the indigenous development of
space technology with american help was seen as one useful way to overcome this
situation.thus Webb assured erhard on the way back from cape Kennedy that

[t]he president was, in fact, offering him more than friendship
and more than dollars. in fact he was offering a partnership in
the development of technology that could permit germany to
increase its own capability, gain a better understanding of its own
needs and opportunities for multilateral and bilateral cooperation,
establish a basis for leadership in the direction it felt its leadership
could be effective in Western europe, and could set a pattern of
university/industry/government cooperation suited to the needs
of germany, benefiting throughout from our own experience.

a second factor of more symbolic than financial significance was the idea that

germany could purchase space technology and space launches from the U.S. as part of
its “offset” obligations.West germany was required to offset with military purchases the
approximate costs to the american government of retaining U.S. forces in its territory.
these offset payments had become a major political and financial liability for the german
government in 1966.for one thing,they were associated in the public’s mind with a series
of crashes of the f-104g Starfighter jets—10 in the first half of 1966 alone, giving the
impression that the U.S. was selling unreliable and unnecessary military equipment to its
ally.

for another,the next round of payments was due shortly;erhard had undertaken to

place $1.35 billion in weapons orders by 31 december 1966 and to make an additional
$1.4 billion in offset payments by June 1967.

Writing to Johnson in July 1966, the

chancellor said he was willing to accept his offset obligations but that he hoped to do
so by “payments and services other than the mere purchase of weapons and military
equipment.”

purchasing space technology and services was one such way, even though

such alternatives would probably not amount to more than about $25 to $50 million.

20. Webb to rusk, 14 october 1966.
21. Schwartz, p. 116.
22. francis m. Bator,“memorandum for the president. Subject: erhard Visit, September 26–27, 1966,”

25 September 1966, nSf, country file europe & USSr, germany 9/66, erhard Visit, folder papers,
cables, memos [9/66], Johnson presidential archives, University of austin,austin,texas.

23. Schwartz, p.117.
24. “text of cable from ambassador mcghee (Bonn 3361), Subject:the offset and americantroop level

in germany,” 20 September 1965, nSf, country file europe & USSr, germany 9/66, erhard Visit,
folder papers, cables, memos [9/66], Johnson presidential archives, University of austin,austin,texas.

215

Nasa as an Instrument of U.S. Foreign Policy

then there was the hope that germany would take the lead in strengthening

european multilateral cooperation that was being threatened by president de
gaulle’s increasing resentment of the limitations placed on french sovereignty by
nato and the european economic community (eec).“the United States has a
direct interest in the continuation of european integration,” wrote george Ball in
the State department.“it is the most realistic means of achieving european political
unity with all that that implies for our relations with eastern europe and the Soviet
Union.” de gaulle’s actions were undermining that unity.“the United States hopes
therefore,” Ball went on,“that the federal republic will continue to exert leadership
to preserve the unique character of the european institutions . . . .”

in particular,

if germany could become a leading space power in europe it could play a major
role not only in developing european high-tech industry but also in reinforcing
european multilateral institutions in the face of the threat posed to them by de
gaulle’s affirmation of national sovereignty.

finally, it must be mentioned that erhard was a staunch supporter of the war in

Vietnam. in fact, Johnson went out of his way in his toast to the chancellor in december
1965 to thank him for “the support which your government has given to the common
cause inViet nam,and which you may give in the days ahead ....the credible commitment
of the United States is the foundation stone of freedom all around the world,” Johnson
added.“if it is not good inViet nam who can trust it in the heart of europe? Butamerica’s
word,i assure you,”Johnson concluded,“is good inViet nam,just as it is good in Berlin.”

the high-profile offer to collaborate with germany in space was also a public act of
gratitude to a faithful ally and a signal to the Soviets that they had best not challenge the
now-established divisions between east andWest in europe.

in replying to Johnson’s toast that christmas eve in 1965, erhard, while

enthusiastically agreeing that such an ambitious project would “fascinate the
imagination of the people,” also joked that “of course, we, the germans, would
not like to get too close to the sun because we wouldn’t like to burn our wings
. . . .”

actually, it was helios that survived the journey to the Sun and erhard

who burnt his wings. he resigned after returning from his visit to Washington and
cape Kennedy in october 1966. his failure to achieve a major reduction in offset
commitments and his unwavering support for Johnson’s policies in Viet nam were
two of the main factors leading to the collapse of his government.

25. cable signed Ball from the department of State to the american embassy, Bonn, 18 november

1965, nSf, country file europe & USSr, germany, erhard Visit [12-65], folder 12/19-21/65
Johnson presidential archives, University of austin,austin,texas.

26. Krige in dick and launius,

Critical Issues

27. Johnson,“the White house. exchange of toasts.”
28.

Space Daily

, 22 december 1965, 295, record no. 14548, international cooperation and foreign

countries, international cooperation, folder US-europe 1965-1972, naSa historical reference
collection,Washington, dc.

216

ocietal

mpact of

paceflight

And Then the Wall Came Down: Cassini-huygens

as Western european countries gradually put their national and multinational

space  programs  onto  sounder  footing, they  expected  to  be  treated  as  equals  by
their american partners.the mantra of reimar lüst, the director-general of eSa
(european Space agency) from 1984 to 1990, was that europe had to be able to
compete with the U.S. in order to collaborate with it from a position of strength.
this philosophy was exemplified in the magnificent cassini-huygens mission to
Saturn and titan in 2004–2005. in this joint venture, the Jet propulsion laboratory
built and managed the cassini orbiter that surveyed Saturn; the italian Space agency
built  cassini’s  high-gain  communications  antennae; and  eSa  built  the  huygens
probe that plunged through titan’s atmosphere to its surface.the truly spectacular
images  of  Saturn’s  rings  and  of  its  largest  moon  will  have  thrilled  many  a  space
scientist, be they at high school or an old hand at the game.

this extraordinary scientific achievement not only called for scientific,

engineering and managerial expertise, it also called for diplomacy. early in 1992, dan
goldin was appointed naSa administrator.he resolved to shake up the organization
and inaugurated his famous policy of “faster, better, cheaper.” cassini-huygens was
anything but that, and it soon caught his eye; late in 1993 he threatened to cancel the
program.the american space scientists and engineers and their european colleagues
were outraged. “i remember carl Sagan calling me on the phone from california
asking for help because naSa was trying to stop the mission,” roger Bonnet told
me recently.“three times eSa intervened and asked its ambassadors to interact with
the State department in order to make the americans understand that they could
not stop cassini, with such a big involvement of europe . . . .”

in June, 1994, eSa

director general Jean-marie luton wrote a strong letter to Vice president al gore,
copied to the Secretary of State and to various senior administrators,including goldin.
in it luton stressed that europe regarded

...[a]ny prospect of a unilateral withdrawal from the cooperation
on the part of the United States as totally unacceptable. Such an
action would call into question the reliability of the U.S.as a partner
in any future major scientific and technological cooperation.

goldin had to back down.the clinton administration wanted an unambiguous

european commitment to what was soon to be the international Space Station and
could not afford to alienate eSa.this combination of financial and foreign policy
concerns saved cassini-huygens from being axed by the naSa administrator, and
avoided a major diplomatic incident.

29. Bonnet, interview with the author, 10 february 2005.
30. Quoted in charley Kohlhase,“return to Saturn’s realm,”

The Planetary Report

(march/april 2004),available

online at

http://www.planetary.org/saturn/tpr_vol24no2_kohlhase.html

(accessed 16 September 2006).

217

Nasa as an Instrument of U.S. Foreign Policy

luton’s unambiguous position was a symptom of the strength of the european

space program. it was also fuelled by his determination that joint U.S.–european
projects would never again be sacrificed on the altar of naSa’s changing national
priorities.this had happened some years before, with the international Solar polar
mission (iSpm). in the late 1970s, naSa and eSa had agreed to launch a pair
of satellites out of the ecliptic plane (the plane that contains most of the objects
that orbit the Sun) to perform a variety of challenging scientific experiments in
domains that included solar physics, cosmic ray studies, and the exploration of the
interplanetary environment.

naSa canceled its contribution unilaterally in 1982

due to budget constraints caused by the development of the Shuttle and a new,
stricter financial regime inaugurated under president reagan. a political climate
dominated by fears that increased economic competition from Japan and Western
europe was undermining american leadership did the rest. europeans understood
the budget difficulties their american colleagues faced, which derived in part
from the very different procedures for funding spaceflight on the two sides of the
atlantic.

What they bitterly resented was that they were not consulted before the

american decision and that naSa was deaf to pleas to reinstate the iSpm program.
the huge disparity in space capability between the U.S. and europe for the first two
decades of the Space age had reduced europeans to the status of junior partners
who could be manipulated almost at will by their dominant ally. the experience
with iSpm taught europeans, in the words of Bonnet and manno, never again to
“accept being considered a subordinate participant” in a joint project.

naSa’s and the reagan’s administration’s approach were coherent with, and

justified locally by, a persistent tendency of the U.S. during the cold war to fail to
consult its Western european allies in important foreign policy decisions which
affected both parties, the most blatant example being Kennedy’s handling of the
cuban missile crisis.

indeed, veteran U.S. diplomat david Bruce described this as

“the vicious circle of american predominance, european dependence and mutual
resentment [that] operated for half a century,”

up to the collapse of the Berlin

Wall and the implosion of the Soviet Union.thereafter, in a global environment no
longer dominated by superpower rivalry,and with a new administration in the White

31. What follows is based on russo’s analysis in John Krige, arturo russo and lorenza Sebesta,

History of the European Space Agency 1958–1987.Vol. II.The Story of ESA

, 1973 to 1987 (noordwijk,

the netherlands: eSa Sp-1235,april 2000), chapter 3.

32. in eSa, once a program is agreed to the participating states agree to fund to completion; in the U.S.

projects are subject to the vicissitudes of the annual budget voted by congress for naSa.

33. roger m. Bonnet and Vittorio manno,

International Cooperation in Space:The Example of the European

Space Agency

(cambridge, ma: harvard University press, 1994).

34. frank costigliola, “Kennedy, the european allies and the failure to consult,”

Political Science

Quarterly

110 (1995): pp. 105–123.

35. costigliola, p. 122.

218

ocietal

mpact of

paceflight

house, Washington was more willing to take seriously the needs of its european
allies—and cassini-huygens survived as a joint venture. today, as the pendulum
swings back toward U.S. unilateralism, so the prospects for durable international
agreements become bleaker.

Conclusion: International Space

Collaboration, NASA, and “Soft Power”

in 1998 a commission of the national academies pointed out that

...[d]uring the cold War there was significant political goodwill
to be gained by the United States through cooperation with
europe vis-à-vis the former Soviet Union . . . . competition
in space (including the space sciences) was part and parcel of
concerted efforts made by the superpowers to convince other
countries of their technical capabilities, and hence leadership.

this paper has fleshed out these claims.it has illustrated how international scientific

and technological collaboration in space were used to promote american interests
abroad,and how it has adapted to the changing balance of power between the american
and european space programs. Borrowing the language of Joseph nye, professor of
international relations at the Kennedy School of government, harvard University, we
can say that naSa’s international initiatives have served as agents of “soft,” or co-optive
power, as opposed to “hard,” coercive or command power. nye puts it thus:

Soft co-optive power is just as important as hard command power.
if a state can make its power seem legitimate in the eyes of others,
it will encounter less resistance to its wishes. if its culture and
ideology are attractive, others will more willingly follow . . . . if it
can support institutions that make other states wish to channel or
limit their activities in ways that the dominant state prefers, it may
be spared the costly exercise of coercive or hard power.

echoing nye, we can say that international collaboration in space is one of a

repertoire of instruments the U.S. has at its disposal to legitimate its power in the eyes of
others, to promote its culture and its democratic ideals, and to channel the scientific and
technological efforts of other nations down paths that cohere with american interests.

naSa has played an important role in that process in the past and can continue to do so
in the future.the cold war may be over but the struggle for hearts and minds is not.

36. committee on international Space programs,

U.S.–European Collaboration in Space Science

(Washington, dc:

national academies press,1998),p.15,available online at

http://books.nap.edu

(accessed 16 September 2006).

37. Joseph S. nye, Jr.,“Soft power,”

Foreign Policy

80 (autumn 1990): pp. 153–171.

38. for more detail, see Krige in dick and launius,

Critical Issues

39. Joseph S. nye, Jr.,“the decline of america’s Soft power:Why Washington Should Worry,”

Foreign

Affairs

83 (2004): pp. 16–20.

hapter

“From Farm to Fork”: How Space Food

Standards Impacted the Food Industry

and Changed Food Safety Standards

Jennifer ross-nazzal

ost americans give little thought to the safety of their food until they hear

of an

E. coli

outbreak or a recall of their favorite item.they may be surprised

to learn that Space age technology designed to protect the astronauts from food
poisoning has slowly become the safety standard for the food industry in the U.S.
and abroad. dubbed the hazard analysis and critical control point (haccp)
system, this naSa spinoff has been called “the most revolutionary institutional
innovation to ensure food safety of the twentieth century.”

for more than 30 years, canners who process low-acid foods have relied upon

the risk prevention system developed by naSa to safeguard their products. more
recently, haccp regulations have been implemented by the U.S. food and drug
administration (fda) to maintain the integrity of seafood and juice in the United
States.the U.S. department of agriculture (USda) also relies on haccp systems
in the nation’s meat and poultry plants and slaughterhouses. there is, however,
some disagreement over whether some of the more recent haccp systems put in
place by these regulatory agencies truly reflect the principles of an haccp plan as
outlined by food safety experts.

in nearly all cases, a series of food crises forced the regulatory agencies and

industries to implement haccp. in the 1970s, two well-publicized incidents and
a growing consumer movement compelled industry and its trade representatives to
adopt and lobby for the implementation of a preventive and comprehensive safety
plan.the first occurrence happened in the spring of 1971.

1. John Spriggs and grant isaac,

Food Safety and International Competitiveness:The Case of Beef

(new

York: caBi publishing, 2001), p. 11.

220

ocietal

mpact of

paceflight

Dr. Howard E. Bauman

a woman from connecticut found glass in

her  baby’s  cereal. Soon  after, americans  awoke
to the news, hearing: “good morning america,
there’s  glass  in  your  baby  food.”  pillsbury
company’s  farina,  a  creamy  wheat  cereal  for
infants, had been contaminated when shards of
glass fell into a storage bin at one of pillsbury’s
plants, forcing the company to recall the cereal.
Upon  hearing  the  news, robert  J. Keith, chief
executive officer of pillsbury, called dr. howard
e.  Bauman,  a  microbiologist  and  one  of  the
company’s research directors, into his office.

Keith had worked for pillsbury for more

than 30 years and made his way up the corporate
ladder, becoming ceo and chairman of the

Board in 1967. during the five years he served in this position, he championed
many popular causes, one of which included the growing consumer movement.
led by advocate ralph nader, consumers increasingly demanded safe food. Keith,
sympathetic to such demands, told Bauman this incident would not happen again.
customers needed to know that the company’s products were safe.

publicly, pillsbury comforted customers by announcing a “considerable change”

in the company’s manufacturing processes, but this was not a pr campaign designed
to halt fading consumer confidence.

Significant changes were underway at pillsbury.

in response to the recall, Keith pushed pillsbury to implement a secure product safety
system to minimize the likelihood of another recall of the company’s food products.

for his part, Bauman saw to it that no food would be recalled under his watch.
he planned to implement procedures he had helped develop years earlier while
working with naSa, an idea he later pursued with haccp.

Bauman began working at pillsbury in 1953, when he completed his doctoral

degree at the University of Wisconsin. he started out as head of research in the
bacteriology section at pillsbury and later assisted naSa, the U.S. air force Space

2. dr.William h. Sperber worked with dr. Bauman at pillsbury, and he and his colleagues recall hearing

this anecdote from Bauman. dr.William h. Sperber, telephone conversation with author, 21 June 2006.

3. William J.powell,

Pillsbury’s Best:A Company History from 1869

(minneapolis:the pillsbury company,

1985), pp. 190–191; pillsbury company,

Annual Report for the Year Ended 1973

(minneapolis: the

pillsbury company, 1973), p. 1; Sperber, telephone conversation, 21 June 2006.

4. “pillsbury recalls cereal; Boxes may contain glass,”

The New York Times

, 24 march 1971; carole

Shifrin,“Warning on farina cereal,”

The Washington Post-Times Herald

, 25 march 1971.

5. powell,

Pillsbury’s Best,

p. 190.

“From Farm to Fork”: How Space Food Standards Impacted

221

the Food Industry and Changed Food Safety Standards

laboratory project group, and the U.S. army natick laboratories with the food
systems for the human spaceflight programs.

Some of the other key individuals involved with the development and testing

of the early space food systems included herbert a. hollender, mary V. Klicka, and
hamed el-Bisi of the U.S.army natick laboratories. paul a. lachance of naSa’s
manned Spacecraft center in houston,texas, rounded out the group.

pillsbury became involved in the space program in 1959 when the Quartermaster

food and container institute of the United States armed forces (later called the U.S.
army natick laboratories) phoned Bauman and asked for pillsbury’s assistance.Would
the pillsbury company be interested in producing space food? after some discussion,
the company accepted and began working on cube-sized foods for the flight crews.

concerned about safety, naSa engineers specified that the food could not

crumble, thereby floating into instrument panels or contaminating the capsule’s
atmosphere. to meet the outlined specifications, food technologists at pillsbury
developed a compressed food bar with an edible coating to prevent the food from
breaking apart. in addition to processing food that would not damage the capsule’s
electronics, the food also had to be safe for the astronauts to consume.

almost immediately food scientists and microbiologists determined that the

assurance of food safety was a problem.Bauman recalled that it was nearly impossible
for companies to guarantee that the food manufactured for the astronauts was
uncontaminated. “We quickly found by using standard methods of quality control
there was absolutely no way we could be assured there wouldn’t be a problem,” he
said.

to determine food safety for the flight crews, manufacturers had to test a large

percentage of their finished products, which involved a great deal of expense and
left little for the flights.

a survey conducted among experts in the field indicated there was no single

standard quality control program for the food industry. control programs were
numerous and varied widely, according to Bauman:“our surveys indicated that there
were about as many variations of control progammes as there were quality control
managers or government inspectors.”

thus, there was no program already in place

that could readily be used to provide a 100 percent guarantee of food safety.

6. Wolfgang Saxon,“howard Bauman, 76, expert Who Kept food Safe in Space,”

The New York Times

12 august 2001.

7. howard e. Bauman,“the origin of the haccp System and Subsequent evolution,”

Food Science

and Technology Today

8, no. 2 (June 1994): p. 67.

8. “a dividend in food Safety,” [naSa]

Spinoff,

(1991): p. 52.

9. Bauman, “the origin of the haccp System,” p. 67; howard Bauman, “haccp: concept,

development, and application,”

Food Technology

44, no. 5 (may 1990): p. 156.

10. Bauman,“the origin of the haccp System,” p. 68.

222

ocietal

mpact of

paceflight

Paul Lachance

While pillsbury was dealing with issues of

food contamination, paul lachance completed a
tour of duty with the U.S.air force aeromedical
research  laboratories  at Wright-patterson air
force Base in dayton, ohio. he was well aware
of  the  issues  concerning  astronaut  food  as  the
air  force  laboratory  provided  support  for  the
preflight feeding of the mercury astronauts.given
his  experience  with  project  mercury,  naSa
recruited  him  and  offered  him  the  position  of
flight  food  and  nutrition  coordinator  at  the
manned Spacecraft center in houston.

When lachance arrived in September

1963, he began evaluating the gemini and
apollo food systems, which were not very far

along in development. food safety for astronauts became an overriding concern for
lachance, who did not want a late night telephone call from charles a. Berry “who
was the chief medical officer of naSa, telling me that his astronaut or astronauts
were sick and had stomach problems and were having a hard time holding things
down.” lachance also wanted to avoid putting the crews in jeopardy, and he began
thinking about the potential microbiological, physical, and chemical dangers space
foods might pose. microbiological hazards became an overriding concern after
naSa found that many of the ingredients they purchased were contaminated with
viral or bacterial pathogens. there had to be some way to minimize or eliminate
these hazards, lachance explained.

But no one was sure how to conduct a thorough hazard analysis, Bauman

recalled. eventually a suitable model, called the “modes of failure,” was located,
adopted, and utilized. microbiologists began examining each food item and
analyzed the potential areas of concern during the manufacturing process. armed
with this information, scientists then scoured publications to determine ingredients
that were potentially dangerous—possibly containing viral or bacterial pathogens,
heavy metals, other hazardous chemicals, or physical hazards. a list of hazards was
then compiled.

11. paul a. lachance interview, houston, tX, 4 may 2006, JSc oral history project, JSc history

collection, University of houston-clear lake.

12. ibid.
13. natick used “modes of failure” to analyze medical supplies. Bauman,“the origin of the haccp

System,” p. 68; Bauman,“haccp,” p. 156.

“From Farm to Fork”: How Space Food Standards Impacted

223

the Food Industry and Changed Food Safety Standards

for their part,the natick labs established the microbiological standards for food

that would be flown on piloted missions.

requirements were stringent because

scientific research had indicated that stress might weaken an astronaut’s ability to
fight infection. even the smallest amount of a relatively harmless microorganism on
earth could potentially cause an astronaut in orbit to become ill.thus,microbiologist
hamed el-Bisi of the natick labs concluded,“all possible measures must thus be
taken to eliminate all pathogens and to minimize the microbial load in all food
intake.”he placed the total aerobic plate count at less than 10,000 per gram,meaning
that the food was more likely to be safe for consumption by flight crews.

this was a substantial change for the food manufacturers contracted to

develop  the  gemini  food  system. previously, food  processors  had  not  measured
pathogens unless they encountered bouts of food poisoning. By contrast, a hazard
analysis required contractors to conduct pre- and in-process microbiology tests of
food ingredients to ensure the health of the astronauts. manufacturers had to assure
naSa  that  their  foods  conformed  to  the  microbiological  standards  outlined  by
natick laboratories. food manufacturing conditions were strict; there were rigid
temperature  and  humidity  controls. Some  foods  were  even  processed  in  clean
rooms, similar to the environment in which mcdonnell aircraft corporation built
the  gemini  spacecraft.

if the food producers did not meet the microbiological

standards, food technologists discarded the food.

Bauman, who was assigned to the gemini and apollo programs, was well

suited for the position of ensuring the microbiological safety of astronaut food.
dr. lachance recalled, Bauman was a microbiologist, “ . . . and so he really knew
his microbiology. So he was an ideal person, in some ways, to develop a laboratory
where microbiology had to be paid attention to.”

as work on the gemini program proceeded, lachance turned his attention

to the apollo food system.the apollo Spacecraft program office (aSpo) required

14. robert a. nanz, edward l. michel, and paul a. lachance,“evolution of Space feeding concepts

during the mercury and gemini Space programs,”

Food Technology

21 (december 1967): p. 53;

Space food Systems contract naS 9-9032 final report, december 1970, Space food Systems:
mercury through apollo (december 1970),rita rapp files,center Series,JSc history collection,
University of houston-clear lake.

15. the microbiological standards were established in 1964. hamed m. el-Bisi, “microbiological

requirements of Space food prototypes,”

Research and Development Associates for Military Food and

Packaging Systems, Inc.

17 (1965): pp. 55, 57; charlest. Bourland interview, houston,tX, 7 april 2006,

JSc oral history project, JSc history collection, University of houston-clear lake; edmund m.
powers, et al., “Bacteriology of dehydrated Space foods,”

Applied Microbiology

22, no. 3 (September

1971): p. 441.

16. lachance interview, 4 may 2006.
17. Space food Systems contract naS 9-9032 final report; powers, “Bacteriology of dehydrated

Space foods,” p. 444.

18. lachance interview, 4 may 2006.

224

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its contractors to comply with certain reliability standards. lachance had previously
implemented reliability requirements for the gemini food system but the aSpo
required all contractors to develop prediction models for their systems to determine
“critical failure areas” and then eliminate those hazards from the system.

food

contractors were not exempt from this requirement and had to sketch out their
critical control points—places in the manufacturing process where the system could
break down and put the hardware at risk.

Writing these blueprints forced pillsbury to think logically about the steps in

their process and identify critical control points. as the apollo program matured,
pillsbury continued to revise the list of critical control points as they went along.
Bauman explained what they learned along the way:“[a]s we worked along in this
system, we found certain critical control points like telephones in the room.they
are a good source of bacteria, unless you sterilize the receiver.that’s something that
you really don’t always think of.”

even though naSa required its food contractors to identify critical control

points,naSa also determined them.in the specifications for most apollo foods,naSa
located 17 quality control stations in the production process;stations had acceptance and
rejection standards for the inspectors, or in naSa-ese,“go” or “no go.”

aside from monitoring the critical control points, contractors also had to keep

records that documented the history of a food product. records were kept from the
moment the raw foods reached the plant. logs indicated where the raw materials
came from or, if the product had been processed, the name of the plant that produced
the item and the names of people who worked in the manufacturing of that item.
Strict recordkeeping allowed product tracking.“We knew the latitude and longitude
where the salmon used in the salmon loaf were caught,” Bauman joked.

as a result of his naSa experience, Bauman became one of the biggest

proponents of the haccp concept, which was introduced to the food industry
at the first national conference on food protection in april 1971, just a few days
after pillsbury recalled packages of its farina cereal. the conference, sponsored by
the american public health association, opened on april 4 in denver, colorado.
the main purpose of the conference was “to develop a comprehensive, integrated
attack on the problem of microbial contamination of foods.”

19. naSa,“reliability program provisions for Space System contractors,” npc 250-1 (Washington,

dc: U.S. government printing office, 1963), pp. 3-1, 3-2; lachance interview, 4 may 2006.

20. the pillsbury company, research and development department,

Development of a Food Quality

Assurance Program and the Training of FDA Personnel in Hazard Analysis Techniques

(minneapolis:the

pillsbury company, 1973), p. 507.

21. malcolm c.Smith,et al.,“apollo experience report—food Systems”naSatn d-7720 (Washington,

dc: naSa, 1974), p. 9.

22. Bauman,“the origin of haccp,” p. 68.
23. national conference on food protection,

Proceedings

(Washington, dc: fda, 1972), p. iii.

“From Farm to Fork”: How Space Food Standards Impacted

225

the Food Industry and Changed Food Safety Standards

Bauman served as vice chairman of panel number two, which focused on

the prevention of contamination of commercially processed foods. other panel
members included l. atkin of arthur d. little, inc., James J. Jezeski from montana
State University, and John h. Silliker of Silliker laboratories, inc., a food testing
laboratory.

convinced of the benefits of haccp, Bauman encouraged his

colleagues to consider the system as a plausible option for the food industry as a
whole. the idea, however, was not immediately embraced, and a second incident
occurred in the summer of 1971.

on a sweltering June night, grace cochran cracked open a can of Bon Vivant’s

vichyssoise (cold potato soup) for dinner. Samuel, her husband, ate a bite or two but
then stopped, noting that the soup tasted spoiled. grace had a spoonful and agreed.
the next morning while driving to work in manhattan, Samuel’s vision began to
blur. the condition continued to worsen, and a few hours after arriving at work
he scheduled an appointment with doctors at the eye institute of the columbia
presbyterian medical center.When he walked into the center, Samuel’s condition
had deteriorated and doctors directed him to his personal physician. By the time he
arrived at the hospital and met with his doctor, he had difficulty talking, could not
turn his eyes left and right, could not swallow, and when he held his arms straight
in front of his body, they shook. By 11 p.m., less than 8 hours after being admitted
to the hospital, Samuel died.

a few hours later, grace became ill. dr. henry p. colmore, the internist who

had treated her husband, visited grace at her home. She told the doctor,“i’m doing
just like Sam did.You don’t suppose it was that soup we had last night? it tasted so
bad we couldn’t finish it.” on the advice of dr. colmore, grace’s sons located the
soup can while colmore arranged for grace to go to the hospital. colmore was
certain that grace was suffering from botulism poisoning and that her husband had
died from botulism. as a result of his findings, he notified the Westchester county
health department.

his phone call began a series of events leading to a national recall of Bon Vivant

soups.fearing a public health epidemic,Jack goldman,county health commissioner,
concluded that the department had to document the case.they needed the soup’s
lot number from the recovered can, but they needed additional evidence and found
it. cans of soup on the shelves at the local grocery store, bearing the same lot
number, V-141/USa-71, were bulging. armed with this information, goldman
contacted the state health department and the fda, relaying the knowledge he had
gathered. eventually recalls for all Bon Vivant soups and other products made by the
same manufacturer were issued and the factory shut down.

24. ibid., pp. 56–83.
25. Boyce rensberger,“grim detective case: Search forVichyssoise,”

The NewYorkTimes

, 18 July 1971.

26. ibid; nancy l. ross,“tracking down the Soup can Killer,”

The Washington Post-Times Herald

, 18

July 1971.

226

ocietal

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paceflight

this outbreak of botulism cast doubt over food safety in the U.S. and whether

the fda could protect citizens from contaminated food. doubt had surfaced many
times before this incident. in 1968 and 1969, for example, a ralph nader summer
study group issued critical reports about the agency. in 1970, James S. turner, the
project director, revised the reports and published

The Chemical Feast: The Ralph

Nader Study Group Report on Food Protection and the Food and Drug Administration

. in a

chapter about the food industry, the bestseller detailed the fda’s friendship with food
conglomerates and called upon the fda to “enforce the law” rather than apologize
on behalf of food processors who placed profits over consumer safety.“it is time the
fda set about

its

assigned task of insuring [

sic

] that profits made by the food industry

are not the result of fraud, deception, adulteration, or misbranding.”

employees of the fda recognized the agency had problems. in July 1969,

the fda released the “Kinslow report,” commissioned by fda commissioner
dr. herbert l. ley, Jr. the study concluded, “the american public’s principal
consumer protection is provided by the food and drug administration, and we are
currently not equipped to cope with the challenge.” in total, the panel submitted 45
recommendations to the commissioner. ley did not have time to implement any
suggestions. in an attempt to overhaul the agency, robert h. finch, the Secretary
of health, education, and Welfare, named dr. charles c. edwards to the position of
fda commissioner in december.

after being removed from his post, ley warned the public about the fda’s

inability to safeguard consumers. people were being misled, he believed.“the thing
that bugs me is that the people think the fda is protecting them—it isn’t. What
the fda is doing and what the public thinks it’s doing are as different as night and
day,” he said. the agency, in his opinion, did not have the motivation to protect
consumers, faced budget shortfalls, and lacked support from the department of
health, education, and Welfare.

a year and a half later, when Samuel cochran died from botulism and his

wife suffered the ill effects of the disease, the fda, its leaders, and food inspection
processes continued to be under the microscope. newspapers reported that the
fda had not inspected the Bon Vivant plant for four years.the last inspection took
place in may 1967. reporters asked about the lack of inspections and were told that
workforce shortages often resulted in infrequent plant inspections. in some cases,
the fda had not inspected certain food plants for periods of up to 10 years.

27. James S.turner,

The Chemical Feast

(new York: grossman publishers, 1970), pp. 85–86, 106.

28. richard d. lyons,“f.d.a. Shake-Up Will Start with naming of new chief,”

The New York Times

10 december 1969; “trouble over drugs on the market,”

The New York Times

, 4 January 1970;

andrew hamilton, “fda: new pressures, old habits Bring a change at the top,”

Science

(16

January 1970): pp. 268–270.

29. richard d. lyons, “ousted f.d.a. chief charges ‘pressure’ from drug industry,”

The New York

Times

, 31 december 1969.

30. grace lichtenstein,“BonVivant’s Soup plant not inspected for 4Years,”

The NewYorkTimes

, 21 July 1971.

“From Farm to Fork”: How Space Food Standards Impacted

227

the Food Industry and Changed Food Safety Standards

later that summer, as the recall of Bon Vivant soups was underway, another

soup manufacturer—campbell’s—was recalling a batch of contaminated chicken
vegetable soup. fearing a public outcry, the company tried to quietly recall the
canned soup.testing later indicated that a few cans contained botulinum toxin.

later that summer, a congressional investigation of the failure of federal food

inspections began.When asked how the fda was able to protect consumers from
food poisoning, fda commissioner edwards admitted that the agency’s 250 food
inspectors were overextended and the agency was short of funds. “We are daily
falling farther and farther behind in our routine inspection activities,” he said.
generally the fda inspected plants once every six years. to inspect plants more
frequently and bring them back to normal levels, the fda needed to hire 1,500
inspectors and have its inspection budget raised from $18 million to $85 million
a year.the Bon Vivant investigation had swamped the already overburdened fda,
and the fda canceled more than 2,000 plant inspections in 1971.

the Bon Vivant case continued to make headlines that fall. a government

inspection of the Bon Vivant plant in newark, new Jersey, indicated that the plant
neglected food safety. two problems in particular stood out: the company regularly
undercooked its canned products and kept incomplete records.a government inspector
summed up the review by saying, “[n]one [of the firm’s products] are considered .
. . to be safe for consumption by man or animal.” for example, non-soup products
suffered from poor quality control, as investigators found that more than half of all
spaghetti sauce cans were defective—swollen, leaking, or had imperfect seams.

records indicate that Bon Vivant knew they had canning problems before this

incident.as early as 1959, the corporation was aware of sealing problems, which led
to leaking cans and defective seams. in 1962, the american can company warned
Bon Vivant that the length of time that the company cooked batches of soups and
sauces was insufficient.

newspapers continued to run stories about botulism as other cases became

known. for the third time in 1971, the fda issued a warning about botulism in
canned foods when they learned that a batch of Stokley-Van camp canned green
beans might have contained the deadly toxin. the consequences were less deadly
than the Bon Vivant case. an 8-year-old boy and his father, who ate beans from a
swollen can, developed no symptoms but when the centers for disease control and
prevention (cdc) injected mice with liquid from the can, they died.

31. richard d. lyons, “campbell Was Quietly recalling contaminated Soup Before it learned of

Botulin,”

The New York Times

, 24 august 1971.

32. house Subcommittee on public health and environment of the committee on interstate and foreign

commerce,

FDA Oversight—Food Inspection—1971

, 92nd. cong., 1st. sess., 1971, pp. 4, 11, 13.

33. Boyce rensberger, “federal inquiry charges Bon Vivant Soup factory had Wide Sanitary

Violations and faulty records,”

The New York Times

, 16 September 1971.

34. ibid.
35. “Warning is issued on Stokley Beans,”

The New York Times

, 30 october 1971.

228

ocietal

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paceflight

the national canners association (nca), fearful of a public backlash against

canned foods as well as lack of consumer confidence in their products, petitioned the
fda for more government regulation to prevent the spread of botulism and other
food-borne illnesses.although only four botulism-related deaths had been linked to
commercially canned food since 1925, the nca hoped that by taking such action
they could circumvent any negative press. dr. ira i. Somers, the research director for
the nca, explained,“We just don’t think the canning industry can tolerate any more
bad publicity. from a statistical standpoint our record is good but we want to tighten
every screw we can.”

By pushing for additional regulations, the nca hoped to

prove to consumers that they were committed to food safety practices.

the fda published the nca proposal, which reflected many of the principles

of haccp, in the

Federal Register

in november 1971. in the proposal, all canners

manufacturing  low-acid  canned  foods  had  to  register  with  the  fda, listing  the
type of low-acid canned food processed at the plant. in addition, food processors
would have to explain their processes as well as the equipment they employed in the
manufacturing of such food. other requirements included coding for containers,
recordkeeping  requirements,  and  training  for  retort  operators  and  can  seam
inspectors. if companies failed to follow the outlined requirements, the fda could
invoke  emergency  permit  controls  whereby  the  cannery  could  not  distribute  its
products until the owner had met specific conditions listed in the permit. industry
had 60 days to respond.

not all food processors agreed with the steps taken by the nca and some

challenged the association’s actions.the american Shrimp canners association, for
example, asked  the  nca  to  withdraw  its  proposal. in  response  to  their  request,
the  nca’s  executive Vice  president  J. e. countryman  explained  that  their  idea,
while not a panacea, was “a significant constructive step toward providing increased
safeguards  in  the  processing  of  canned  foods,” and  he  added, “there  can  be  no
question that the whole canning industry benefits if this proposal begins the renewal
of the public’s faith in the safety and integrity of canned foods. for this reason alone,
nca has no choice but to allow the proposal to go forward.”

a dark cloud continued to follow the food industry and the fda in the spring of

1972. in april, the U.S. government accountability office (gao) issued a damning

36. “canners petition f.d.a. for Stiffer regulation,”

The New York Times

, 26 october 1971.

37. edward dunkelberger,“the Statutory Basis for the fda’s food Safety assurance programs: from

gmp, to emergency permit control, to haccp,”

Food and Drug Law Journal

50, no. 3 (1995):

p. 365;

Federal Register

, 12 november 1971, general Subject files (1938-1974), fda records,

record group 88, national archives ii, college park, md [henceforth: rg 88,archives ii]; house
committee, fda

Oversight,

pp. 453–456.

38. J. e. countryman to h. r. robinson, 23 december 1971, general Subject files (1938-1974), fda

records, rg 88,archives ii.

“From Farm to Fork”: How Space Food Standards Impacted

229

the Food Industry and Changed Food Safety Standards

report about unsanitary conditions in food manufacturing plants.the gao’s study
of 97 plants found that standards of cleanliness in food plants had deteriorated from
1969 to 1972. even worse, the “fda did not know how extensive these insanitary
conditions were and therefore could not provide the assurance of consumer protection
required by the law.”

to alleviate such conditions, the fda had to take action.

the agency, which had provided some funds for the first national conference

on food protection, had learned of haccp at the meeting. Searching for a “better,
more comprehensive food protection [program] for the consuming public,” the
fda asked the pillsbury company to provide haccp training for its supervisors
and investigators. in September of 1972, 16 inspectors attended the first class offered
in gull lake, minnesota.

pillsbury’s three-week course included 11 days of lectures

and 10 days of field work in minnesota canning plants.

Upon completing the

training, the inspectors returned to their posts, and later the following year the fda
established permanent low-acid canned food regulations.this represented the first
regulatory use of haccp in the food industry.

the implementation of haccp regulations had a tremendous impact on

canners of low-acid foods and their quality control programs. Joseph p. hile,
executive director of regional operations for the fda, explained, “Some firms
had no real quality control program until after fda made its haccp inspection
and identified the crucial needs.” other food plants, hile stated,“ceased operations
as a result of these inspections until major equipment improvements are made and
meaningful plant quality control procedures instituted.”

this was the case for Western natural growers, inc., of Ulysses, Kansas. in the fall

of 1973, an inspector reported that “processing procedures, equipment and the firm’s
general knowledge of retort operations are so grossly inadequate that the production
of low acid canned foods from this firm could represent a threat to consumer safety.”
the plant’s retort operators had not attended any fda- or nca-approved schools and
the plant failed to maintain any processing and production records with the exception
of temperature recording charts. following the inspection, the fda Bureau of foods
requested that the plant cease operation until the agency believed that they understood
and could comply with low-acid canned food regulations. on november 1, the plant
was voluntarily shut down. notes from a december inspection indicate that conditions

39. U.S. government accountability office,

Dimensions of Insanitary Conditions in the Food Manufacturing

Industry; Report to the Congress [on the] Food and Drug Administration, Department of Health, Education,
and Welfare

(Washington, dc: gao, 1972), p. 2.

40. pillsbury company,

Development of a Food Quality Assurance Program,

iii, 733; f. leo Kauffman,“how

fda Uses haccp,”

Food Technology

28, no. 9 (September 1974): p. 51.

41. Sperber, telephone conversation, 21 June 2006.
42. Joseph p. hile,“haccp—a new approach to fda inspections,”

Food Product Development

8, no.

1 (february 1974): p. 52.

230

ocietal

mpact of

paceflight

at Western natural growers, inc., had substantially improved; retort operators, for
instance, were scheduled to attend an fda/nca school at the University of arkansas
and were maintaining processing and production records.

naturally, these equipment

and operation changes resulted in some increased costs for the company.

other smaller canners were not as fortunate as theWestern natural growers. Some

went out of business as a result of the adoption of these regulations.the rules also had
significant impact upon the canned seafood industry, where many smaller plants closed.

aside from the impact on quality assurance in canneries, plant inspections also

changed as a result of the fda’s use of the haccp concept. hile, who had at one time
worked as an inspector for the agency,recalled that the inspections previously conducted
by the fda varied; some were brief while others were in-depth, and the length of
inspections was determined at the local level. haccp guidelines, by contrast, laid out
the details by which all plants across the country would be inspected by the agency and,
in general, haccp inspections followed a nationwide, uniform model.

another key difference between traditional factory inspections and the

haccp  inspections  was  the  approach  taken  by  the  investigator.  customarily,
canning plant inspections were limited in scope by the time the inspector spent
at  factory. haccp  inspections, by  contrast, entailed  the  examination  of  records,
thereby  giving  inspectors  a  broader  picture  of  how  the  plant  operated  over  the
course of the year, not just the hours the investigator spent at the plant.

fda records indicate that canning safety programs improved over a period of

four years from 1973 to 1977. during this time, fda inspectors found fewer factories
processing food that had either major or critical deviations from low-acid canned food
regulations. most companies complied with fda requirements and approximately
10,000 people attended about 100 fda-approved canning courses.

in 1980 the fda commissioned a study to determine the total costs of the

low-acid canned food regulations on plants. arthur d. little, inc., of cambridge,
massachusetts, conducted the study, and more than 800 plants participated in the
review. arthur d. little calculated that the industry spent $85 million to comply
with the regulations, with an average cost of $102,000 per factory. compared to

43. establishment inspection endorsement, 18–19 September 1973, general Subject files (1938–1974),

fda records, rg 88, archives ii; establishment inspection endorsement, 9 november 1973,
general Subject files (1938–1974), fda records, rg 88, archives ii; haccp-eir evaluation
critical factors-potential hazard to public health, 19 december 1973, general Subject files
(1938–1974), fda records, rg 88,archives ii.

44. U.S. food and drug administration,

Total Industry Cost of Compliance with Low-Acid Canned Food

Regulation Report to the Food and Drug Administration

, prepared by arthur d. little, inc., 21 november

1980 (rockville, md: U.S. food and drug administration, office of planning and evaluation) p. iV-6.

45. hile,“haccp,” p. 50.
46. ibid.
47. “canning Safety practices improve,”

FDA Consumer

13, no. 1 (february 1979): p. 23.

“From Farm to Fork”: How Space Food Standards Impacted

231

the Food Industry and Changed Food Safety Standards

smaller facilities, larger plants tended to spend less on compliance. overall, however,
the burdens of compliance were insignificant, amounting to less than 1 percent of
the low-acid canned food’s shipment value.

By 1974 pillsbury had achieved its objective of implementing a new product safety

standard at its facilities.the company’s annual report boasted that the haccp system
was in use in the pillsbury food plants and in its Burger King restaurants.the concept
employed three principles: 1) conduct a hazard analysis, 2) determine critical control
points, and 3) establish monitoring procedures.

Soon the concept would be employed

in its more recent acquisitions, the Souverain wineries and Wilton plants.

the attainment of Keith’s goal represented a significant accomplishment for

the  company  and  a  distinct  turning  point  in  the  history  of  food  safety. instead
of  relying  solely  on  end-product  testing  to  ensure  the  safety  of  their  products,
pillsbury  had  implemented  a  total  safety  system  which  affected  not  only  their
quality  assurance  programs  but  all  phases  of  production. Bauman  contrasted  the
old  and  new  safety  systems  in  an  fda  training  seminar. Under  the  old  system,
product development, testing, and marketing were quick and relatively easy; all of
the  pillsbury  offices  conducted  their  work  in  relative  isolation. By  contrast, the
total  safety  system  integrated  the  research  and  development  work  to  involve  all
employees.Where the company once viewed quality control as a final, isolated step,
pillsbury now viewed all stages of development as interrelated. conducting a hazard
analysis and identifying critical control points involved not only the quality control
employees  but  individuals  from  all  parts  of  the  company—engineers, scientists,
marketers, and attorneys. in addition, the company organized a number of offices
to ensure product safety, such as the product Systems Safety office which verified
that all new products had undergone an haccp assessment.aside from processing
modifications, the culture of the company’s middle management also changed.

for his part, Bauman kept his word to the ceo of pillsbury. Under his

watch, the company did not have a major recall.

pillsbury was pleased with their

implementation of haccp, saying, “there have been more than 130 food safety-
related recalls of product from the marketplace from 1983 to 1991. none were
pillsbury products. haccp works!”

48. fda,

Total Industry Cost of Compliance

, pp. i-4, i-5, i-6.

49. William h. Sperber,“haccp and transparency,”

Food Control

16 (2005): p. 506.

50. the pillsbury company,

Annual Report for the Year Ended 1974

(minneapolis:the pillsbury company,

1974), p. 14.

51. pillsbury company,

Development of a Food Quality Assurance Program

, pp. 315–328, 514.

52. Bauman,“the origin of the haccp System,” p. 69.
53. “a dividend in food Safety,” p. 53.

232

ocietal

mpact of

paceflight

even with pillsbury’s successful implementation of an haccp program in the

early 1970s, interest in the system dwindled until the 1980s, when haccp began
to  be  revisited. in  1980, at  the  request  of  the  national  marine  fisheries  Service,
the  USda, the  fda, the  U.S. army  natick  research  and  development  center,
and the national research council’s food and nutrition Board Subcommittee on
microbiological criteria formulated microbiological standards for food and drafted
a  plan  of  action  for  regulatory  agencies  to  implement  an  haccp  system. two
members of the committee, James J. Jezeski and John h. Silliker, had previously served
as panel members at the first national conference on food protection where the
idea had been unveiled.the committee’s final report made mention of the historic
event, noting that haccp inspections provided a better approach than traditional
inspections.as an example, the committee noted that the haccp system helped the
low-acid canned food industry control microbiological hazards.the group concluded
that the haccp concept was a valuable approach to securing the food system, and
members urged regulatory agencies and the food industry to adopt the system.

the food and Safety inspection Service (fSiS, a USda agency) made a similar

request of the food and nutrition Board of the national research council in 1983.they
asked the board,which coincidentally included norman d.heidelbaugh,a veterinarian
who had worked on the food systems at naSa, to evaluate the agency’s meat and
poultry inspection system. Upon completing its study, the board recommended that
fSiS adopt haccp principles in slaughterhouses and processing plants;in addition,the
board encouraged the agency to train inspectors in the haccp concept.

together,

these two reports rekindled widespread interest in haccp in the U.S.

in response to the recommendations, the fSiS established the national

advisory committee on microbiological criteria for foods (nacmcf) in
1988. cosponsored by the fda, the cdc, the national marine fisheries Service
(nmfS), and the department of defense Veterinary Service activity, the committee
provided an interagency look at microbiological standards for food. Bauman, who
still worked at pillsbury as vice president for science and regulatory affairs, served
on the first nacmcf and remained on the committee until 1992. his colleague,
William Sperber, joined in 1990.

in 1992, the committee recommended haccp

as an effective food protection system. a number of experts came out in favor of
haccp and another key report, “cattle inspection,” encouraged the U.S. federal
regulatory agencies to adopt haccp-based systems.

54. national research council (U.S.) food protection committee Subcommittee on microbiological

criteria,

An Evaluation of the Role of Microbiological Criteria for Foods and Food Ingredients

(Washington,

dc: national academies press, 1985), pp. 50–51, 308.

55. national research council committee on the Scientific Basis of the nation’s meat and poultry

inspection program,

Meat and Poultry Inspection:The Scientific Basis of the Nation’s Program

(Washington,

dc: national academies press, 1985), pp. 8, 134–136.

56. Sperber, telephone conversation, 21 June 2006.

“From Farm to Fork”: How Space Food Standards Impacted

233

the Food Industry and Changed Food Safety Standards

pressure to adopt haccp systems also came from international governing

bodies. in the summer of 1993, the codex alimentarius commission (cac), a
joint program of the United nation’s World health organization and food and
agriculture organization, adopted

Guidelines for the Application of the Hazard Analysis

Critical Control Point System

. But, in spite of the urging of experts, no change came

about in the meat and poultry industry.

the impetus came when hundreds of people fell sick and four children died after

eating

E. coli

-contaminated hamburgers from a Jack in the Box fast food restaurant in

the winter of 1993. the incident might have been avoided if the beef industry, food
service establishments, or the USda had implemented haccp inspections. eight years
earlier, the national research council’s Subcommittee on microbiological criteria had
encouraged restaurants to adopt haccp systems in their operations because research had
overwhelmingly linked such establishments to most outbreaks of food-borne illness.

the deaths of several small children from this incident led many to question the safety

of the nation’s meat.in a televised pBS

Frontline

interview,caroltucker foreman,director

of the food policy institute at the consumer federation of america, explained how the
deaths altered america’s view of safety and the role of the USda in preventing food
crises.the

E. coli

outbreak indicated that the USda inspections had not kept pace with

america’s increasing dependence on prepared and processed foods.“[i]t exposed the fact
that the meat inspection system has not changed a bit since 1906.We were using methods
that were essentially a century old in an industry that had changed radically,”she said.

for

instance, USda inspectors continued to use the “sniff and poke” method to determine
whether carcasses were safe for consumption, rather than rely on microbiological testing.

as Jack in the Box saw its sales slip, the fast food giant hired food scientist

david m.theno to prevent another disaster.theno was a proponent of the haccp
system and he had previously used such methods to eliminate nearly all traces of

Salmonella

in the poultry at foster farms, the largest poultry producer in the western

U.S. after reviewing Jack in the Box records, he laid out a plan to implement an
haccp program in the chain’s restaurants. Jack in the Box was the first fast food
chain to implement the system and require its suppliers to implement such plans.
the standards were strict. for instance, meatpackers selling to Jack in the Box had
to conduct microbiological tests on their beef every 15 minutes during processing,
and managers were required to attend food safety courses.the implementation of
the haccp system increased beef costs by a mere penny per pound.

57. instead, fSiS conducted an haccp study to determine how to implement haccp procedures in

the meat and poultry industry.“a dividend in food Safety,” p. 54.

58. national research council,

An Evaluation of the Role of Microbiological Criteria

, pp. 314–315, 326.

59. pBS,

Frontline: Modern Meat, http://www.pbs.org/wgbh/pages/frontline/shows/meat/interviews/foreman.html

(accessed 3 august 2006).

60. eric Schlosser,

Fast Food Nation:The Dark Side of the All-American Meal

(new York: perennial, 2002),

pp. 208–210.

234

ocietal

mpact of

paceflight

the Jack in the Box incident proved that USda inspection methods were

antiquated, as inspectors could not necessarily see microbiological hazards. in
response, fSiS issued a proposed a pathogen reduction/haccp (pr/haccp)
rule in the

Federal Register

in february 1995.the proposal had three parts: the first

section required the meat and poultry industry to develop and implement sanitation
standard operating procedures (steps taken to prevent food contamination); second,
the agency aimed to reduce

Salmonella

in meat and poultry plants and proposed

daily microbiological testing at slaughterhouses and at facilities grinding meat;
and third, the proposal would require all meat packing plants, slaughterhouses, and
food processors handling meat and poultry to adopt haccp plans.

industry had

120 days to comment. the proposal pleased those who hoped to modernize the
inspection process.“it may not be

Star Trek the Next Generation

, but it gets the USda

out of the horse and buggy era,” said foreman.

When the rule was finalized in 1996, the press touted the achievement as a

landmark in food safety. in a Saturday morning radio address, president Bill clinton
proclaimed that the new rules strengthened regulations, protecting families and
those most vulnerable to pathogens—children. recalling the Jack in the Box
incident, he said,“parents should know that when they serve a chicken dinner, they
are not putting their children at risk.”

experts, however, disagreed with clinton’s assessment. William Sperber,

a food safety expert now with cargill, believed that this rule, known more
commonly as the “megareg,” and the additional haccp regulations passed by
the fda in 1997 and 2001 did not follow the principles of haccp as outlined
by the nacmcf and later by the cac. as an example, Sperber explained that
sometimes meatpacking plants failed to meet the

Salmonella

performance standards

as outlined by the USda regulation. the rule gave the USda the authority to
close the plant if a packer failed the

Salmonella

monitoring plan three times in

a row. fSiS rarely employed such drastic measures, however. instead, the USda
waited to conduct another round of samples that consumed several months, and
the meatpacking plants continued shipping meat until the results came back.this
process sometimes took two years to complete.Very rarely did fSiS proceed to
close a plant.the hesitancy with which the agency took action is not reflected in
the haccp principles outlined by the nacmcf. “Several hallmarks of a valid
haccp plan are that monitoring procedures and corrective actions, insofar as
possible, should be taken in real time, and should be as continuous as possible,”
Sperber noted.

in other words, the USda failed to implement a true haccp

61.

Federal Register

, 25 July 1996.

62. marian Burros,“Sweeping changes proposed on meat Safety,”

The NewYorkTimes

, 1 february 1995.

63. todd S. purdum,“meat inspections facing overhaul, first in 90Years,”

The NewYorkTimes

, 7 July 1996.

64. Sperber,“haccp and transparency,” p. 507.

“From Farm to Fork”: How Space Food Standards Impacted

235

the Food Industry and Changed Food Safety Standards

system because the agency allowed certain meatpackers to ship inferior and
potentially unsafe meat, and because it relied on product testing for

Salmonella

rather than more practical process controls.

likewise, food inspectors voiced concern about the rule, which, they argued,

put the public at greater risk for food-borne illness.the regulation had taken away
their authority to check contaminated meat. instead of visually examining carcasses,
inspectors had to ensure that companies followed the haccp system they had
drawn up.the acronym, which had once outlined the steps to ensure food safety—
hazard analysis and critical control points—was now dubbed “have a cup of
coffee and pray” by those inspectors opposed to the megareg.

in spite of the criticism leveled against the pr/haccp regulation, the

economic research Service (erS) of the USda linked the implementation of
the rule to a 20 percent reduction in food-borne illness and lower medical costs.

Similar trends were noted by another federal agency: the cdc cited haccp as
one factor contributing to the decrease in the number of

Salmonella

infections over

a five-year period.

after further review, the costs of developing and implementing an haccp

plan were higher than previously assumed. fSiS had estimated that the costs of
pr/haccp would be relatively insignificant, about 0.12 cents per pound. the
erS found that the actual overhead was higher than anticipated, 0.4 cents a pound
for poultry and 1.2 cents for beef.this amounted to a 1.1 percent increase for plant
operators. for cattle slaughterhouses the rates were higher, about 5.5 percent of all
costs.

although costs have been higher than expected, this has not hindered the

adoption of haccp systems in the U.S. and abroad.

the emergence of new pathogens in foods, as well as consumer demands for safe

food,has driven the use of haccp in other nations.in australia,for instance,an

E.coli

outbreak sickened more than 100 people and killed one child, forcing changes in food
safety requirements.the passage of the australian Standard for hygienic production
of meat for human consumption required plants to implement haccp systems
in their meatpacking plants.

Scotland required its butchers to employ haccp

65. Schlosser,

Fast Food Nation

, p. 215.

66. michael ollinger and Valerie mueller,

Managing for Safer Food:The Economics of Sanitation and Process

Controls in Meat and Poultry Plants

,agricultural economic report no.aer817 (april 2003): pp. vi,

59,

http://www.ers.usda.gov/publications/aer817/

(accessed 3 august 2006).

67. centers for disease control and prevention, “preliminary foodnet data on the incidence of

foodborne illness—Selected Sites, United States, 2001,”

Morbidity and MortalityWeekly Report

, 19 april

2002,

http://www.cdc.gov/mmwr/preview/mmwrhtml/mm5115a3.htm

(accessed 3 august 2006).

68. ollinger and mueller,

Managing for Safer Food

, p. 58.

69. Spriggs and isaac,

Food Safety and International Competitiveness

, pp. 111, 115.

236

ocietal

mpact of

paceflight

procedures after 21 people died from eating tainted meat at a butcher shop.

throughout the past three decades, the widespread use of haccp in the

U.S. and abroad indicates the impact naSa has had on the food industry and food
safety regulations. originally implemented on a small scale for naSa’s gemini and
apollo astronauts, the haccp system is essentially utilized worldwide by many
multinational food conglomerates to ensure food safety for billions of consumers.
in addition to the tremendous growth of the haccp approach, many regulatory
agencies require certain sectors of the industry to design and utilize systems in their
processing plants that can be linked to the techniques first developed to comply
with naSa food safety regulations.

perhaps more important, haccp has changed the manner in which food

manufacturers and regulators look at the issue of food safety. Just 20 years ago many
food manufacturers believed that the issues of food safety belong solely in the hands of
quality control and quality assurance engineers in food processing plants.today this is
not the case.William Sperber explains this shift:“We now realize that some food safety
practices can be applied at each step of the global food chain; from the growing of
crops and the raising of animals, to the processing of these commodities, and through
the production, distribution, and consumption of consumer food products.”

70. food and agriculture organization of the United nations (fao), “escherichia coli 0157: h7

outbreak in Scotland in 1996/97,”fao/Who global forum of food Safety regulators,marrakesh,
morocco, 28–30 January 2002,

http://www.fao.org/DOCREP/MEETING/004/X6925E.HTM

(accessed 3 august 2006).

71. William h. Sperber,“opening remarks,”

Food Control

14 (2003): p. 73.

hapter

The Social and Economic Impact of

Earth Observing Satellites

henry r. hertzfeld and ray a.Williamson

esearch, development, and operational investments of the U.S. government and

naSa for earth observations have had a large impact on the economy of the

U.S. and on the world.With the participation of other federal agencies such as the
national oceanic and atmospheric administration (noaa), the U.S. department of
agriculture (USda),and the department of interior,United States geological Survey
(USgS), new industries have been created. new technologies have been advanced
from the laboratory to the marketplace more quickly than if there had been no space
program. not only have jobs and income been created, but new ways of viewing
the world now exist and other innovations that can be traced to U.S. government
requirements and investments have improved the quality of life. describing these
technological advances is relatively easy; measuring their economic and social benefits
is difficult.this paper reviews economic and other measures that have been applied to
the benefits that earth observation satellites have brought.the process of measuring
benefits faces two major difficulties: 1) economists do not agree on the best approach
to measurement because each issue and problem as well as each application focuses
on a menu of different approaches and 2) no single measure exists that provides a
comprehensive indicator of earth observations impacts and benefits.

this essay will review developments in two areas: 1) a summary and evaluation

of  selected  studies  that  have  attempted  to  quantify  and  describe  the  various
observable  and  measurable  impacts  of  using  earth  observation  satellites  and  2)  a
focus on the value of information used in the economy that can be attributed to
satellite observations.this is different from just trying to measure historical impacts
because it looks to the marginal value of additional information that can be derived
from improved forecasts of many variables, which include weather and climate, river
flow, soil moisture, snow cover, and land use. in general, information about these
variables  is  derived  from  ground, aerial, and  satellite  sources  and  is  combined  in
models that predict near- and long-term conditions. Since much is already known
and  published  about  these  variables  and  the  predictions  are  currently  in  use  by
many economic sectors, with each sector making large contributions to the gross

238

ocietal

mpact of

paceflight

domestic product (gdp), improved forecasts—though constituting only small-
percentage gains—can add up to equal a large impact.

over the past 30 years since the launching of the first civilian earth observation satellite,

ertS-1 (later renamed landsat-1), much has been written about the potential impacts of
the data on various economic sectors.this paper will only briefly summarize these studies
as a background for a more comprehensive analysis of the impacts of the value of improved
forecasts in three areas of growing importance: natural hazards (mainly from weather and
climate),electric energy production,and the management of freshwater resources.

following the discussion of results, this paper also summarizes the assumptions,

methodology, and analytical problems in developing consistent, accurate, and reliable
results with the tools currently available.

The Socioeconomic Benefits of Earth

Observation Satellite Systems

Beginning with the polar-orbitingtelevision infrared observing Satellite (tiroS)

1 in 1960,naSa’s first earth observation satellites focused on providing a view from space
of earth’s cloud patterns.these were extremely useful in both civilian weather forecasting
and in planning military maneuvers. later versions of these satellites added microwave
instruments that could probe layers of the atmosphere to provide estimates of temperature,
pressure, and humidity—measurements that are required as inputs to weather forecast
models.Because many terrestrial weather measurements were available in north america,
earlytiroS satellite data made only modest contributions to forecasting accuracy within
this continent. however, they made a sharp improvement in weather forecasting in other
parts of the world, where weather data were only sparsely available. Steady improvements
in the tiroS series (now called poeS, the polar-orbiting operational environmental
Satellites,and operated by noaa) have made these polar orbiting satellite measurements
indispensable around the world.the U.S. allows all nations, indeed any entity with the
appropriate receiver, to download data from these satellites without cost.

in the late 1960s naSa’s geostationary applications technology Satellites

(atSs)  demonstrated  the  utility  of  making  frequent  observations  of  weather
conditions over north america for tracking severe storms, such as hurricanes and
tornadoes. in the 1970s, naSa and noaa agreed to build an upgraded version
of atS  called  goeS—geostationary  operational  environmental  Satellite. Built
and launched by naSa and operated by noaa, the poeS and goeS systems
now provide some 95 percent of the data that noaa’s national Weather Service
(nWS) uses in its weather forecast models. information provided by the data from
these  satellites  is  credited  with  saving  many  lives  and  reducing  property  damage
from  severe  storms.

every day, weather forecasts provide information used by

1. the national climatic data center,

http://www.ncdc.noaa.gov/oa/climateresearch.html

(accessed 30

november 2006).

The Social and Economic Impact of Earth Observing Satellites

239

industry, government, and the average citizen to lower the risks they face from
adverse weather conditions. many of these uses can be quantified; others can only
be described qualitatively. later sections discuss some of these results.

in the early 1970s naSa created the landsat program to gather multispectral

data about earth’s surface features.

the first of this series of satellites was launched in

July 1972.the satellite proved a technical success, returning images of large areas of
earth’s surface in four different color bands that could be probed for information about
geology, biology, snow and ice cover, and human settlement patterns. even before the
launch, naSa had started an effort to involve other agencies in experimenting with
the data for assisting in their applications. it also encouraged countries around the
world to establish data receiving stations to collect data over their territories.although
the data showed immediate potential utility for use in resource management, mineral
prospecting,and agriculture,naSa found it difficult move the system into operational
status. the software and computer hardware were cumbersome to use and, at first,
analysis was largely carried out using paper imagery.

even today, with the benefit of extremely powerful geographic information

System (giS) and sophisticated imaging processing software, as well as the global
positioning System (gpS) to place landscape details into a geographic reference
system, incorporating earth observations into routine agency resource management
operations continues to be difficult for several reasons. first, potential users do not
feel confident that research sensors will be made operational and data from them
will be available in the future. Second, government budgets often do not include
enough funds for processing and operations once the hardware has been built,
flown, and tested. third, there are cultural and communications barriers between
space researchers and data users that are often difficult to overcome.

nevertheless, landsat data have been used widely for such scientific studies as

the examination of the state of the world’s forests and estimates of the amount of
carbon sequestered by them.they have also contributed to a better understanding
of the rates of deforestation and reforestation around the world. for agencies that
have incorporated landsat data into their routine operations, the data provide a
broad, synoptic view of the landscape and an enhanced ability to manage the natural
and cultural resources of the lands they manage.

naSa’s landsat effort was sufficiently successful for it to obtain the financial

backing from congress to build three satellites that carried similar, 80-meter
resolution multiSpectral Scanners (mSSs) and to extend the landsat mission to
landsats 4 and 5, which carried an enhanced 30-meter sensor called the thematic
mapper (tm). these were launched in 1982 and 1984, respectively; the 25-year
old landsat 5 still returns imagery from orbit, though at a reduced capability.the

2. pamela e. mack,

Viewing the Earth:The Social Construction of the Landsat Satellite System

(cambridge,

ma: mit press, 1990).

240

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mpact of

paceflight

tm sensor carries seven spectral bands, six of which operate between the blue and
near-infrared parts of the spectrum.as detailed below, landsat 6 failed and landsat
7 is now in orbit and supplying data.

lacie and naSa’s applications program

the 1974 to 1978 large area crop inventory experiment (lacie) and its

1978 to 1983 successor program, agriculture and resources inventory Surveys
through remote Sensing (agriStarS) were designed to develop uses for
the landsat data to measure crop production, first in the U.S. and then in other
parts of the world.they were a joint program of naSa, noaa, and the USda.
(agriStarS was primarily a USda program to make operational the results of
lacie, but budget pressures and changing priorities of the reagan administration
greatly reduced the spending for agriStarS.)

in one interesting experiment in the lacie program, landsat and other

data were used to estimate the Soviet Union’s wheat crop. crops yields are heavily
dependent on weather conditions.the lack of knowledge and good forecasts of the
Soviet crop led to significant increases in the price of wheat in 1972.as described by
dr. forrest hall, senior research scientist at naSa’s goddard Space flight center,

in  1972, the  Soviet  Union  experienced  a  major  wheat  crop
failure.the U.S. had sold large quantities of wheat to the Soviet
Union at low prices before the crop failure was announced.the
failure  drove  up  wheat  prices, and  the  U.S. ended  up  buying
wheat  back  from  the  Soviets  at  a  loss  . . . . When  we  started
selling it, we were selling it for $1.92 a bushel, and we ended
up buying some of it back at $4 or so a bushel . . . .that really
made us realize that our conventional (crop-estimation) systems
at that point were not very accurate.

in order to add an element of stability to the world’s agricultural markets,naSa

and the USda began a program to see if landsat data could be used to estimate
global crop production.

the resulting improvements in wheat crop forecasting

from lacie were documented to be within 6 percent of the final Soviet figures,
which were released more than six months later than the lacie estimates.

3. “United States civilian Space programs,Volume ii,applications Satellites,” report prepared for the

Subcommittee on Space Science and applications of the committee on Science and technology,
U.S. house of representatives, 98th congress, may 1983, pp. 231–237.

http://science.nasa.gov/headlines/y2000/ast04dec_1.htm

(accessed 24 august 2007).

5. r. B. macdonald and f. g. hall, “global crop forecasting,

Science

(new Series) 208, no. 4445 (16

may 1980): p. 670. in spite of the overall accuracy, it is noted by others that the value of the accuracy
was somewhat diminished by offsetting errors in area and yield estimates (U.S. general accounting
office,“crop forecasting by Satellite: progress and problems:” pSad-78-52, 7 april 1978, as quoted
in “United States civilian Space programs,Volume ii,applications Satellites,” p. 233.

The Social and Economic Impact of Earth Observing Satellites

241

an economic methodology was constructed to measure the value of these

information improvements in forecasting, which was based on the premise that
more accurate observations affect the commodity-price distribution. By reducing
the variation in prices of highly volatile commodities, consumers receive direct
economic benefits (a marshallian surplus) in the form of more stable prices.

over

time and with improved satellite resolution and additional data, the same type of
analyses have more than adequately demonstrated the value of better information
in forecasting in many other areas, as described in other sections of this paper.
although the landsat satellites proved technically successful, naSa did not want
to operate landsat indefinitely and the office of management and Budget was not
keen to approve continued funding for the system.

in the late 1970s, influential members of the carter administration also felt

that the private sector should assume operation of the landsat system and provide
the data commercially. in order to move the landsat system to a private operator,
the administration crafted a plan that would first transfer operational control over
landsats 4 and 5 to noaa and then later to the private sector.Several years later,the
reagan administration pushed hard to move the system into private hands as soon
as possible. congress supported this decision by passing the land-remote Sensing
commercialization act of 1984 (p.l. 98-365), which also included important
provisions allowing the commercial development and operations of land remote
sensing satellites.

as soon as noaa took over landsat operation, it raised the price of data

from near zero to several thousand dollars per scene, which caused the volume of
data sales to plummet. rca, inc. and lockheed martin corp. formed eoSat,
inc. to operate the landsat system and to increase the small market for the data.
however, eoSat was unable to build a commercial market to a size that would
support fully private development of the landsat satellites. for one thing, the federal
government remained by far the largest user of landsat data. in addition, the price
of data continued to be prohibitive for many users. further, landsat 6 incurred a
complete launch failure and did not achieve orbit.

congress in 1992 decided that landsat did indeed provide sufficient benefit

to the country to be continued, and drafted legislation to ease the restrictions on
private operation of land remote sensing that were in the 1984 law and to bring
future landsat satellites back under government operation.

naSa was instructed

to build and launch landsat 7, which is still orbiting

and supplying data to users

6. david f. Bradford and harry h. Kelejian, “the Value of information for crop forecasting with

Bayesian Speculators:theory and empirical results,”

The Bell Journal of Economics

9 (Spring 1978):

pp. 123–144.

7. the land remote-Sensing policy act of 1992 (p.l. 102-555).
8. landsat 7, however, suffers from a failure in its land-scan corrector that makes part of the data in

each scene unusable.

242

ocietal

mpact of

paceflight

around the world.USgS now operates landsats 5 and 7.naSa will build a successor
to this satellite, which will be operated by the USgS. long-term continuity of this
capability is still in doubt, however.

this abbreviated summary of the trials and tribulations of the landsat system

illustrates that even though a satellite system may prove technically successful for
the economy, finding the will to move it into operational use can be fraught with
difficulties.this state of affairs has come about because earth observation data have
both public and private uses. governments have invested in expensive space systems
because the information obtained fulfills various mission purposes, ranging from
national security to planning and monitoring natural resources. at the same time,
commercial and private for-profit uses of the very same data provide opportunities
for economic growth and benefits.

these dual capabilities have fueled many policy debates over the years that

have led to some very odd compromises. in the U.S., for example, congress has
declared that satellite (and other) weather information is a public good,

while at

the same time leaving all other remote sensing data products undefined and therefore
sometimes treated as public goods and sometimes as private goods.

to further confuse

the policy debate, civil space activities fall under two other legislative mandates: 1)
they are “for the benefit of mankind”

and 2) the information obtained from space

should be openly and widely disseminated.

in addition, government policy also

calls for government-collected information to be disseminated with user charges set
no higher than the costs of dissemination.

also, unlike many other nations, the U.S.

government also prohibits the copyright of government publications.

therefore, all remote sensing data are mixed public-private goods, making

market pricing and measuring benefits on an economic basis extremely difficult.
clearly, private sector value-added firms (those taking and/or purchasing
government information from satellites and processing the images for commercial

9. a forthcoming report by the office of Science and technology policy will reportedly recommend

the development by the government of long-term operation of a landsat-type system to ensure
moderate resolution data continuity for the long term.

10. a public good is one that is non-excludable (nobody can be denied the use of the good) and non-rival

(one person’s consumption of it does not affect another’s). public goods often reflect the intervention
of governments into the marketplace where market systems have failed to provide either competition
and/or service to everyone for necessary services at an equitable price. public goods are also collective
goods where a profit-motivated firm would not provide the service (e.g., national defense).

11. We need a citation for the mid-1980’s legislation.
12. “national aeronautics and Space act of 1958,” public law 85-568, 72 Stat., 426. Signed by the

president on 29 July 1958, §102(a).

13. ibid.
14. executive office of the president, office of management and Budget, circular no.a-130, revised,

management of federal information resources,Washington, dc: 28 november 2000, §8(a)7(c).

The Social and Economic Impact of Earth Observing Satellites

243

purposes) can provide useful, measurable benefits. however, the prices do not reflect
the total costs to society of producing the information since the space component
is often heavily subsidized by government programs. as policy has evolved over
time, the private sector is now developing its own satellites, with data products sold
both to governments and to the private sector. however, the legislative mandates
still allow for a significant amount of competition between government-subsidized
information and for-profit systems, which makes a true economic and benefit
analysis of earth observation data very complex.

although some of the technology in the U.S.commercial satellites derives from

systems developed for classified satellites, much of the hardware and the associated
supporting image processing software sprang from naSa’s efforts to make landsat
data useful for operational applications. further, government investments in gpS
and giS software have made landsat data truly useful for a wide variety of scientific
and applied purposes.these ancillary government inputs can also be considered as
benefits, though extremely difficulty to quantify.

Scientific research on climate has also proved highly beneficial. By the early

1980s,  naSa  began  to  focus  on  developing  a  view  of  earth  as  an  integrated,
interdependent  system. naSa  scientists  reasoned  that  global  satellite  observations
would  be  essential  in  developing  global  climate  models. in  1987, at  a  time  when
naSa was reappraising its role in space research and development following the loss
of Space Shuttle

Challenger

, naSa published a report entitled

Leadership and America’s

Future in Space

among other things, this report included a proposal for a “mission

to planet earth” that would study and characterize earth on a global scale.this report
was rescoped, rebaselined, and reshaped (naSa’s terminology) in steps over several
years to fit a much smaller $7-billion budget profile in which the original large, polar
orbiting platforms were replaced by several smaller, less capable versions, but which
have been highly successful in producing excellent scientific data.

Some of the instruments from the earth observing System (eoS) satellites

could provide the basis for operational instruments operated by another federal
agency. nevertheless, naSa and these agencies will still face the difficulty of making
the transition from research to operations unless the relevant agencies (noaa and
USgS) are able to take over the development and operation of their own satellites or
find ways to involve the private sector in supplying such information commercially.

the issue becomes clear in an examination of the longevity of the tropical

rainfall measuring mission (trmm),launched in 1997.trmm is a joint Japanese-
U.S. mission to study the effects of tropical rainfall, which orbits in an inclined orbit
between +/- 35 degrees latitude. data from the trmm microwave imager (tmi)

15. ride,Sally K.,“naSa leaderShip andamerica’s future in Space,”a report to theadministrator,

august 1987.

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and the precipitation radar (pr) instruments on this satellite have not only led to
enhanced understanding of the role of tropical rainfall in earth’s system but have
also proven extremely capable of providing improved estimates of rainfall amounts
in tropical cyclones. data from the pr have also led to much-improved estimates of
tropical cyclone path and intensity.

however, by 2004, although the satellite was still in excellent operating

condition (well beyond its planned scientific mission), for budget reasons naSa
decided to stop collecting data from the satellite and to deorbit it.that move would
have saved the agency about $4 million per year (though much of that savings would
be consumed by deorbit maneuvers over several years).the outcries of dismay from
scientists and from weather forecasters in Japan and in the U.S., and a national
research council report on trmm, caused naSa to rethink its approach. Some
weather forecasters, especially in Japan and europe, were already using the data for
operational purposes in measuring rainfall and in tropical cyclone warnings.

therefore, in may 2005 naSa reversed its earlier decision and extended the

operation of trmm either until it fails or its fuel runs out sometime in 2010 or
2011.trmm is still operating and in 2005 contributed to improved observations of
hurricanes Katrina and rita as well as other tropical cyclones.although its benefits to
society have not been quantified, the national research council report enumerated
many of its contributions to weather and climate prediction models.

these successes

make it clear that a satellite system,if extended to the globe,would provide continuing
and improved data which would result in benefits to all nations.

the following sections summarize results of several studies carried out by the

Space policy institute on the benefits of eoS systems.

Natural Hazards, Mitigation, and Response

Some of the most familiar and recognizable earth observation images in the

U.S. popular mind are the dramatic pictures of major hurricanes headed for the
U.S. coast. the pictures, captured by the noaa goeS satellites, serve to illustrate
the danger these enormous storms pose for the affected coastline and assist in urging
citizens reluctant to evacuate the area that they should leave.to the extent that the
satellite systems that produce images of these and other weather-related natural disasters
save lives and allow affected communities to prepare their homes and businesses to
withstand the storms’ onslaughts, they bring a clear benefit to the U.S.

in general, more accurate prediction of severe weather can help to reduce

substantially the economic and social costs of weather-related disasters. Better

16. national research council,

The Future of theTropical Rainfall Measuring Mission:Interim Report

(Washington,

dc: national academies press, 2005).

17. 4.3.1.2 operational assimilation oftmi and pr data forWeather and climate 21 prediction models,p.61.

The Social and Economic Impact of Earth Observing Satellites

245

information  induces  governments, businesses, and  individuals  to  invest  in  loss-
reduction  activities;  it  can  also  reduce  economic  costs  from  unnecessary  loss-
reduction  activities  that  derive  from  uncertainty  about  adverse  weather  (e.g.,
evacuations during hurricanes).this section summarizes what is known about these
types of benefits as applied to weather-related natural hazards such as hurricanes.

a few economists have attempted to quantify the economic impacts of severe

storms in specific industries. for example, research by timothy considine et al. on
the costs of evacuating energy production platforms in the gulf of mexico estimated
that achieving a 50 percent reduction in hurricane and tropical storm forecast error
would save producers about $18 million annually.according to his analysis, a perfect
forecast could lead to savings between $225 million and $275 million, illustrating
the nonlinear nature of forecast value in this case. however, for energy producers in
the gulf, averting the risk of losing lives is generally far more important than saving
short-run operations costs.the costs of evacuation from a platform are much lower
than the perceived costs of loss of life. if “losses are perceived to be very substantial,
producers will always take preventive action regardless of evacuation costs.”

preparing for and responding to hurricanes

Satellite data from several instruments can contribute to the delivery of more

accurate, timely hurricane forecasts (table 13.1). Satellite data also have a role in
mitigating the damaging effects of hurricanes and in responding to and recovering
from hurricane damage (table 13.2). for example, digital elevation models, coupled
with land cover information and estimates of storm force,allow modelers to estimate
the force and extent of storm surge along the coast.

Table 13.1–SaTelliTe ConTribuTionS To More aCCuraTe,

TiMely HurriCane ForeCaSTS

Satellite Instrument

Measurement

Utility

TMI-TRMM Microwave
Instrument

Precipitation Radar

Precipitation rate and
distribution

Storm track, rain rate in storm

Rain estimates, flood warnings

Increased accuracy of evacuation
warnings

QuikSCAT

Surface winds speed and
direction

Storm force, track predictions

GOES, POES

Imagery, atmospheric
soundings

Storm track, rain estimates, force

18. t.J.considine,c.Jablonowski,B.posner,and c.h.Bishop,“theValue of hurricane forecasts to oil and

gas producers in the gulf of mexico,”

Journal of Applied Meteorology

43 (2003): pp.1270–1281.

19. lidar-derived digital elevation models (from aircraft instruments) of Broward county, fl, have

allowed the county to avoid significant evacuation costs during severe hurricanes by reducing the
required evacuation area. ray a. Williamson, henry r. hertzfeld, Joseph cordes, and John m.
logsdon,“the Socioeconomic Benefits of earth Science and applications research: reducing the
risks and costs of natural disasters in the USa,”

Space Policy

18 (2002): pp. 57–65.

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Table 13.2–SaTelliTe ConTribuTionS To MiTigaTion, reSponSe, and

reCovery oF HurriCane daMage

Satellite Instrument

Measurement

Utility

Landsat Thematic Mapper,
SPOT

Land cover, flooding extent

Flood modeling, recovery planning

QuickBird
Ikonos
Orbview

Damage type, extent; detailed
digital elevation model

Insurance estimates, detailed
cleanup planning

Shuttle Radar Topographic
Mapper

Digital elevation model

Storm, flood modeling

Radarsat

Flooding

Flood extent, disaster designation

the most destructive tropical cyclone in recent years to strike the U.S. was

hurricane Katrina, which made landfall southeast of new orleans in late august
2005 and quickly moved northeast, spreading death and destruction across southern
louisiana and western mississippi. much of the storm damage was directly related
to the massive amount of rain.the heavy rainfall and storm surge destroyed parts of
new orleans levees, flooding the city and displacing much of the city’s population.
less than a month later, this storm was followed by hurricane rita, which made
landfall near the texas-louisiana border.the storm surge it caused led to extensive
damage along the louisiana and southeastern texas coasts. Both storms were among
the most well-forecast storms in U.S.history because of the early concern they raised
among forecasters and the public. despite highly accurate forecasts for both storms,
they caused at least 2,000 deaths directly or indirectly, massive short- and long-term
population displacement, and thousands of destroyed homes and businesses.

earth observation satellites had a major role in tracking the storms and in

response,recovery,and rebuilding efforts immediately afterwards.information derived
from noaa’s goeS and poeS satellites was used to estimate storm intensity with
considerable accuracy. naSa contributed data from the trmm satellite, which
had led to improved hurricane path and rainfall predictions. however, even though
the information was highly accurate, response at all levels of government was slow
and halting, which led to a much higher death rate—demonstrating that better
information does not always lead to better decision making in times of crisis.

during response and recovery after the storm, noaa, naSa, and private

companies contributed time and considerable effort to acquiring both aerial and
satellite imagery of the damaged areas. this helped citizens, some of whom were
several hundreds of miles from their homes,view the damage to their neighborhoods
and houses and decide how to respond appropriately. in addition, the international
disaster charter was activated to assist.

the charter is an international consortium

20. the formal name is charter on cooperation to achieve the coordinated Use of Space facilities

in the event of natural or technological disasters; see

http://www.disasterscharter.org/main_e.html

(accessed 1 november 2006).

The Social and Economic Impact of Earth Observing Satellites

247

of space-capable nations, including the U.S., that have pledged to provide imagery
to countries afflicted by major disasters.

potential international Benefits of improved Weather and climate

information

the international benefits of improved weather and climate information

involve virtually the same list that we would put together for the U.S., with the
important difference that for developing countries, especially, these improvements
could have even greater primary economic and social benefits. as one example,
table 13.3 summarizes the immediate economic damage and recorded deaths for
the 1998 hurricane mitch, which swept across central america in november 1998.
however, these figures do not reveal the costs associated with damaged agricultural
production or the long-term displacement of residents.

Table 13.3–eSTiMaTed deaTHS and daMage CoSTS FroM HurriCane MiTCH

Country

Deaths

Damage Costs

Honduras

6,500

$4 billion

Nicaragua

3,800

$1 billion

El Salvador

239

Not available

Guatemala

256

Not available

Mexico

Not available

Other

Not available

Source: http://lwf.ncdc.noaa.gov/oa/climate/severeweather/extremes.html (accessed 24 August 2007).

el niño and the Southern oscillation (enSo)

recent development of forecast models of the short-term climate variation

of the el niño and la niña cycle has proved a significant success. these models
could not have been developed without the data from global satellite observations.
the temperature and precipitation changes caused by the enSo phenomenon
have led both to significant losses and benefits, depending on which region of the
world is studied. among other things, this interannual climate swing is responsible
for a significant level of uncertainty in the prediction of long-term weather patterns.
hence, U.S. and global climate research has focused considerable attention on not
only a deeper understanding of the biophysical mechanisms behind enSo, but also
on the ability to predict enSo effects. Scientists have also focused on the economic
and social effects of enSo in order to reduce the level of uncertainty and risk faced
by agriculture, fisheries, and the general public throughout the world.

the climate research community has made significant progress in the past

decade in understanding the physical relationships between the warming or cooling
of the ocean along the western coast of South america and changes in weather

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patterns elsewhere in the world.this understanding, coupled with data from several
satellites, has led to an improved ability to predict the return of el niño, which can
then be used to alert weather-sensitive industries around the world that they may face
increased risk of experiencing abnormal weather phenomena in their regions.

learning to predict the onset of el niño and its sister phenomenon la niña

with sufficient accuracy, can have a major impact on the U.S. economy.table 13.4
summarizes one analyst’s estimates

of the socioeconomic gains and losses from

the el niño of 1997–1998. note that, contrary to popular belief, in this case the
gains vastly outweigh the losses for north america. Similar charts for other regions
for the same incident would probably show a different picture, with greater losses
than gains. Whether gains or losses are at stake, however, better knowledge of the
timing and strength of the enSo cycle would assist governmental policy makers
and private sector investors to capitalize on the benefits of this climate cycle and
reduce the risk of loss.

Table 13.4–1997–1998 enSo loSSeS and beneFiTS

in THe uniTed STaTeS

Source

Losses

Property losses

$2.8 billion (insured losses were $1.7 billion)

Federal government relief costs

$410 million

State costs

$125 million

Agricultural losses

$650–$700 million

Lost sales in housing and snow-related
equipment

$60–$80 million

Losses in the tourist industry

$180–$200 million

Source

Savings/Benefits

Reduced heating costs

$6.7 billion

Increased sales of merchandise, homes,
and other goods

$5.6 billion

Reduction in costs for snow/ice removal
from roads

$350–$400 million

Reduction in normal losses because of the lack
of snowmelt flood and Atlantic hurricanes

$6.9 billion

Income from increased construction and
related employment

$450–$500 million

Reduced costs to airline and trucking industry

$160–$175 million

Cost/benefit Summary

Costs

Benefits

Human lives lost: 189

Human lives not lost: 850

Economic loss: $4.2 to $4.5 billion

Economic benefit: $19.6 to $19.9 billion

21. richard a. Kerr,“Signs of Success in forecasting el niño,”

Science

, 297 (26 July 2002): pp. 497–498.

22. Stanley a. changnon,

El Nino 1997–1998: The Climate Event of the Century

(new York: oxford

University press, 2000), pp. 144, 149, 152

The Social and Economic Impact of Earth Observing Satellites

249

The Benefits of Weather and Climate Information for

the Electric Energy Industry

Weather is an important component in the analysis and operational components

of both the demand and supply of electricity. it strongly affects electricity demand via
heating and cooling needs in businesses and residences. accurate weather forecasts
are extremely valuable for accurate electricity demand forecasts, which are used to
determine the load carried by the electric infrastructure, conduct transactions on the
electricity market, and manage electricity flows across the power grid. on the supply
side of the electric power industry, weather data have applications in both electricity
transport  and  generation. high  temperatures  and  severe  weather  events  (such  as
hurricanes,  lightning,  and  ice  storms)  can  damage  transmission  and  distribution
systems and interrupt electricity supply.Weather also affects the capacity to generate
electricity  from  fossil  fuels  and  renewable  sources; the  latter, which  represents  an
ever-growing  portion  of  the  electricity  supply, is  particularly  sensitive  to  weather
conditions. noaa’s  operational  environmental  satellites, augmented  by  land- and
sea-based systems, gather meteorological data that lead to valuable information inputs
on both the demand and supply sides of electricity production. innovation in space
meteorological technology, as well as more extensive understanding and utilization of
current capabilities, will provide the electric power industry with more sophisticated
weather information of even greater economic value than that available today.

accurate weather forecasts are crucial in maintaining the reliability of the

supply of electricity to users through management of the power grid (especially,
close  monitoring  of  overload  conditions)  and  the  prediction  of  severe  weather.
partly  as  the  result  of  the  increasing  deregulation  of  the  electricity  industry,
electric utilities have installed more efficient transmission technologies to compete
effectively.Yet these measures have often also introduced new vulnerabilities to the
grid from weather by making it more sensitive. in the U.S. the aging of the hardware
and equipment in the electric power grid has also led to reduced reliability.these
changes  have  increased  the  need  for  the  industry  to  make  more  efficient  use  of
weather and climate data than ever before.

temperature is the most important weather factor influencing electricity demand.

people use more energy on hot days to cool indoor environments and on cold days
to warm them. heating degree days (hdds) and cooling degree days (cdds) are
commonly used measures of energy demand. they indicate the variation of daily
temperatures from a temperature that would require no external energy inputs for
heating or cooling.

differences in temperature above or below 65°f determine the

need for heating and cooling, the largest component of electricity use.

23. daily temperature is calculated as the average between the daily minimum and maximum, and the

hdd/cdd is the absolute value of the difference between this and 65°f. energy information
administration, “Short-term energy outlook,” July 2007,

http://www.eia.doe.gov/emeu/steo/pub/

a2tab.html

(accessed 24 august 2007).

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decreasing forecast errors can reduce the costs of unnecessarily buying and

selling electricity on the open market. error grows more costly as the time between
purchase and consumption diminishes, which becomes apparent in high spot-market
prices. commercial weather information vendors such as itron, inc.,Weather Bank,
inc., and Weather Services international specialize in providing load forecasts and
forecasting software to energy utilities and independent system operators (iSos).they
obtain raw data from the nationalWeather Service and other data providers and then
turn this information into forecasts tailored to the specific needs of each customer in
the electric power industry.the most common electric power applications are for the
very-short-term (minutes to hours ahead) to the short-term (1 to 10 days ahead).

the costs to utilities of an inaccurate forecast can be very high, especially for

day-ahead or hour-ahead forecasts. hourly changes in weather can result in over- and
underestimating demand and costly decisions regarding the operation of electricity
generation units. improved forecasts from the use of satellite weather information
have resulted in direct economic payoffs to the electric utility industry. electric load
forecasts are valuable to utilities and iSos for allocating power over different parts of
the electric grid and for optimizing purchases on the spot and day-ahead markets.

electric utilities derive the greatest economic benefit from weather forecasts

that are accurate over the 2- to 4-day time frame. improved 7- to 10-day weather
forecasts would also provide some economic benefit for utilities.the companies use
monthly and seasonal weather forecasts for scheduling maintenance and for meeting
U.S. environmental protection agency (epa)-set yearly emission allotments. long-
term forecasts assist in planning for new power generation facilities.

the many studies of the value of better terrestrial weather forecasts all indicate

that benefits to the electric utility industry are significant, often reaching millions
of dollars. however, the studies have been made in an uncoordinated way—each
one measuring the benefits at one point in time for one region and often for one
particular application.as enumerated below, economic benefits from better weather
information  are  measured  in  many  ways  with  a  variety  of  methodologies. each
methodology may be particularly relevant to specific case studies and situations.Yet
measures  derived  from  different  methodologies  cannot  easily  be  added  together,
making  it  impossible  at  present  to  calculate  a  single, aggregate  measure  of  the
economic value of improving weather forecasts and other information. however,
more accurate forecasts coupled with intelligent and timely use of those forecasts by
the industry is already yielding benefits in the tens of millions of dollars annually.as
weather forecasts improve with new satellite-based information, and improved data
assimilation into forecast models, these benefits will increase.

24. frank a. monforte, vice president of forecasting, itron, inc., personal communication. See henry

c. hertzfeld and ray a.Williamson,“Weather, climate Satellite data and Socioeconomic Value in
the electric Utility industry,”a report to noaa (Washington, dc: Space policy institute, george
Washington University, december 2004), p.13.

The Social and Economic Impact of Earth Observing Satellites

251

the social benefits of supplying better weather forecasts to the public and

government agencies are equally robust but even more difficult to measure accurately.
nevertheless, because the entire modern infrastructure depends in some way on the
availability of electrical power, it is clear that when the U.S. electrical power grid
operates reliably, the general public and public services benefit substantially from
reduced uncertainty in the supply of electricity.

Satellite information can also provide significant benefits in planning, locating,

and operating electric production dependent on renewable sources of energy such
as wind, sunlight, and water. as of 2007, at least 17 states have mandated the use
of renewable energy sources in generating electrical power; other states are rapidly
adding similar regulatory requirements. Some have followed the federal example
and instituted tax incentives to assist the development of this component of the
industry.Satellite-based remote sensing can aid in realizing the potential of exploiting
renewable energy resources by aiding in the optimal siting of generating facilities
as well as in the operational decisions of generating facilities and electric power
grid management. State and federal governments may wish to consider increased
investment in the research and development of environmental satellites to support
sound and sustainable economic and environmental policies, both in the energy
and space industries.the increasing global demand for energy resources makes this
particular use of satellites very significant and immediately practical.there are clear
economic and social benefits to the use of satellite data for locating sites and for
routine operations of renewable-source generating stations, yet the magnitude of
the economic benefits that satellite data can provide have not yet been quantified.

Satellite Information in Quantifying and

Managing Water Resources

clean, fresh water, so crucial in supporting life and national economies, is

becoming increasingly difficult to obtain, especially in arid and semi-arid climates.
freshwater, with less than 0.5 parts per thousand dissolved salts, may be found
in lakes, rivers, and bodies of groundwater. only 3 percent of water on earth is
freshwater, and more than two-thirds of this is frozen in glaciers and ice caps.

in the near future, ensuring adequate supplies of freshwater to support all

the competitive water needs of the world will likely become one of the most
contentious issues facing global society. improving water resource management
(supply and distribution) has clearly become one of the most important challenges
of modern life. as noted in a recent report,“earth’s water resources can no longer
be taken for granted.Water is an issue that cannot be ignored, if we want the world
to sail safely through the century ahead.”

25. itt industries,

ITT Guidebook to Global Water Issues, http://www.itt.com/waterbook

(accessed

September 2006).

Table 13.5–eleCTriCiTy and WaTer CoMpared

Electricity

Water Resources

Sensitivity to price changes Yes

Distribution system

National/regional

Regional/local

Sources

Coal, hydroelectric, nuclear, oil,
alternatives

Water cycle

Originates (distribution)

Power plants

Rivers; ground

Reusability/recovery

None

In some applications

Social/cultural approaches

Commodity, becoming a
necessity

Basic need, but some uses are
“commodities”

Markets

Sophisticated trading: spot, day-
ahead, long-term markets

No large-scale, organized
economic markets

Legal impediments

Regulatory, but relatively
consistent across the nation

Many different local systems;
different treatment of ground
and river water

Measures of value

Sales, usage, cost savings,
hedging on prices

Gross usage (not $), cost
savings, scarcity

Direct benefits

Industry (profit incentive)
Consumers (price effects)

Agriculture, hydroelectric,
nuclear plant cooling

Indirect benefits

Quality of life

Recreation

Age of industry

Approximately 100 years

Ancient

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information derived from earth observation satellites could improve knowledge

of the supply of freshwater and assist in managing its distribution to water users.
however, so far, few researchers have attempted to assess the value of space systems
in addressing the challenges of improved water management.

as noted in the preceding section,electricity generation and transmission derives

significant benefits from satellite data. Socioeconomic analysis of this industry is aided
by the fact that electricity is a commodity and the prices and markets that exist are
very important in the allocation of electric power among users, despite the distortions
created by the significant amount of government regulation that is also involved.

electricity and water are both treated as public utilities in the U.S., but that

is where the direct comparisons end. electricity is a uniform commodity, being
transmitted to users by wires from power plants.Water stems from many sources, is
transferred to users by different means, and cannot efficiently be transported over
long distances.table 13.5 summarizes some of these differences.

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despite the difficulties of actually measuring the socioeconomic benefits of

satellite data for water resource management, satellite data can contribute numerous
benefits for specific economic sectors of the economy. for example, table 13.6
illustrates the potential use of satellite data for irrigated agriculture.

Table 13.6–reMoTe SenSing in irrigaTed agriCulTure

Agricultural use of water for irrigation is commonly one of the highest-volume usage categories for
freshwater; in the United States nearly 40 percent of freshwater withdrawals in 2002 were used for
irrigation purposes.

Worldwide, on average 70 percent of water use is in the agriculture sector.

However, agriculture is not typically the highest-value use of water; municipal and industrial usages
generally have greater social and economic value. As development occurs and populations grow,
more pressure is felt to provide greater amounts of water to the higher-valued usages. Therefore,
increasing efficiency and productivity in agricultural usage of water may provide benefit in allowing
increased availability of water for higher-valued usages. Remote sensing applications are able to
measure several indicators of performance related to irrigated agriculture. Applying remote sensing
techniques in measuring these indicators may provide avenues to increased productivity and
efficiency. A selection of these indicators is presented in the following chart.

Indicator

Remote Sensing Principle

Potential Satellites/Instruments

Crop water stress index

Surface energy balance

Landsat (Thematic Mapper)

Evaporative fraction

Surface energy balance

Landsat (Thematic Mapper)

Water deficit index

Surface energy balance

Landsat (Thematic Mapper)

Evapo-transpiration

Surface energy balance

ASTER, AVHRR

Spatial geometry of
crop yield

Vegetation index

Landsat, IRS-LISS (Indian Space
Research Organization–Linear
Imaging Self-Scanner)

Irrigation intensity

Multispectral classification

Landsat, IRS-LISS

Crop intensity

Multispectral classification

Landsat, IRS-LISS

Irrigated area

Multispectral classification

Landsat, IRS-LISS

Soil salinity

Microwave

SMOS (planned)

Soil moisture

Microwave

SMOS (planned)

Some of these measurements are relatively robust, and some require additional

research and/or the development of new sensors and new, sophisticated algorithms
and modeling to make operational use of the data they provide.

the preceding sections have illustrated some of the measurable and nonmeasurable

benefits from the use of earth observations satellite data.they also pointed out some
of the practical problems in measuring these benefits.the following sections elaborate
these issues from a methodological standpoint.

26. S. S. hutson, n. l. Barber, J. f. Kenny, K. S. linsey, d. S. lumia, and m. a. maupin,

Estimated Use of

Water in the United States in 2000

(reston,Va: U.S. geological Survey circular 1268, 2004).

27. chris perry,“irrigation reliability and the productivity of Water:a proposed methodology Using

evapotranspiration mapping,”

Irrigation and Drainage Systems

19 (2005): pp. 211–221.

The Social and Economic Impact of Earth Observing Satellites

255

Measuring Socioeconomic Benefits

economic measures

there are several approaches to measuring economic benefits:

a macroeconomic approach that attempts to gauge the impact on the entire
economy through measuring changes in gdp, employment, income, or other
economy-wide parameters.

a microeconomic approach that focuses on the impact of consumer welfare
through the price mechanism; that is, with new technology and new products,
the relative price of a particular good or service will decrease, which, in turn,
makes consumers better off.

an approach that focuses on reducing uncertainty in decision making, which
can be evaluated in a number of ways, including assessing consumer preferences
through surveys, hedonic measures (parameters associated with the attributes
or use of a good or service), avoidance of a particular externality (e.g., costs
of cleanup from pollution), or the value-added by using one method over
alternatives (e.g., irrigated vs. non-irrigated land for agriculture).

other indirect or proxy measures such as counting the number of patentable
inventions, number of users of a good or service, or other measures where the
actual value or affect on the market is indeterminate.

the following two tables illustrate some of the many economic sectors and

applications in which the impact of earth observation data is very important.table
13.7 summarizes some of the uses of weather and climate data in the public sector
and table 13.8 in the private sector and by individuals. often, the economic and
social values of these uses are very difficult to estimate because they are spread
throughout the economy and through a wide variety of entities, including local
communities, families, and diverse businesses.

Table 13.7–repreSenTaTive induSTrieS For WHiCH WeaTHer

prediCTionS Have an iMporTanT FinanCial iMpaCT

Major Industry

Examples of Specific Applications

Agriculture

Crop management
Irrigation decisions
Prevention of weather-related diseases

Energy

Planning purchases of gas and electric power
Managing responses in emergency situations
Managing capacity and resources

Aviation/Transportation

Optimizing flight patterns
Reducing wait times on runways
Avoidance of sudden volcanic plumes

Tourism/Recreation

Improving ski slope demand/production of artificial snow
Marine forecasts/warnings

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Table 13.8–uSeS oF WeaTHer and CliMaTe daTa in THe publiC

SeCTor and by individualS

Entity

Examples

Federal, state, local government

Managing public resources

Managing assistance programs

Managing disasters, emergencies

More efficient emergency evacuation

Reducing operational costs

Improving operational capacity and safety
of U.S. military forces

Citizens

Improving safety

Managing daily choice of activities

Improving quality of life

Reducing lives lost

Macroeconomic Measures of Socioeconomic Impacts/

Benefits of Space Programs

a macroeconomic production function model can be used to estimate impacts

of technological change attributed to r&d spending on the gdp and derivative
measures such as employment and earnings.the results of using this type of model
are expressed as a rate of return to a given investment or as a total value.

this economic formulation is best used to develop estimates of a very large

program or agency because it focuses on the totality of the economic impact on the
entire national economy. even for an agency such as naSa, the $16 billion annual
budget (not all of which is either space- or r&d-related) is comparatively small in
relation to the more than $10 trillion gdp for the United States.trying to ferret out the
technology improvements attributable to a specific program such as earth observations,
attribute these improvements to a particular budget line, and then estimate their impact
on the economy is extremely speculative on a macroeconomic level.

another approach to a consolidated measure of benefits is to add up the

measured benefits in particular industrial sectors from microeconomic studies to
a U.S. or national total.this also yields inappropriate and unreliable estimates.the
reason for this is not the logic of the addition,but simply that different point estimates
for different products and sectors, coupled with somewhat different econometric
methodologies and different time periods, amount to adding up apples and oranges
and fails virtually all tests of validity and reliability.

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microeconomic measures of Space applications

as appealing as a single number to aggregate all of the benefits from space r&d

(or even just from the r&d spent on earth observations) may be, economists have
turned to using more focused examples to measure impacts and benefits through
the tools of microeconomics. analyses at the industry, firm, and product or service
levels have been able to provide a useful window on the benefits derived from earth
observations. Several different tools are used for these analyses.

the first is based on the benefits consumers realize from lower prices and greater

capability from innovations. if the results of r&d can be translated into goods and
services that are less expensive, then the benefits can be measured by the amount
“saved” from not having to pay as much as without the new products or services.
conversely, producers can also benefit from being able to offer more products and
services at lower prices.the distribution of benefits between consumers and producers
depends on the market structure of the industry and products. for earth observations,
these types of benefits can be analyzed by comparing the costs of obtaining weather
and land use data from nonspace sources (airplanes, ground measures, etc.) with the
costs of buying satellite imagery. clearly, the greater the area that needs to be observed
in detail,the larger the benefits from using space imagery.in many cases,space imagery
provides new services that were not available through more traditional methods.

although cost/benefit analyses are derived from this general framework, the

results  of  those  analyses  are  inherently  inaccurate. the  costs  involved  are  largely
from  government  expenditures  for  mission-oriented, dual-use, public  goods  and
are  very  difficult  to  isolate  program-by-program  and  mission-to-mission.  one
should  note  that  cost/benefit  analysis  was  developed  to  analyze  the  impacts  of
regulatory  measures  (a  true  before-after  situation)  rather  than  on  the  impacts  of
new technologies, many of which have no comparable “before” market uses.

another microeconomic method is the examination of data that provide

evidence of the direct transfer of technology from federal space r&d programs to the
private sector.the results of these analyses are reported as actual numbers measured
(number of patents or inventions, value of royalties, value of sales, etc.).they are rarely
compared to associated government expenditures, again because of the difficulty of
linking general government funding to specific products or patents.

Qualitative analyses of the benefits of earth observations, which range from

monitoring vegetation and tracking hurricanes, to national security operations,
focus on descriptive case studies.although these activities may have a clear positive
effect on human life, valuing the information in a market/price format does not
fully describe their impacts.

in summary, there are numerous methods for valuing the impacts of new and

better goods and services from earth observations. each is useful for particular
purposes and in particular situations. no measure can capture the entire impact.the
best that can be done is to take particular uses of earth observation data that have
been studied in detail and report on the benefits from those uses.

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reducing Uncertainty

the creation and distribution of accurate weather forecasts involves several

elements, beginning with scientific research and continuing through to the delivery
of information to government agencies, businesses, and consumers.the process can
be viewed both over time (i.e.,research results may precede actual use of information
by end-users) and at a given point in time (the institutional system structure of
information delivery). measuring the value of information therefore requires
evaluating a complex process and has typically only been attempted through studies
of specific, isolated examples.

Benefits to society derive from public investment in increasing the amount

and the quality of information about natural processes such as weather and climate.
increased scientific knowledge per se generates real benefits. for example, better
observations of the geophysical processes that influence weather and climate help
advance scientific knowledge directly, or indirectly, by providing better data for
calibrating scientific models and/or testing scientific hypotheses. however, despite
considerable research on the topic, no accurate metrics exist that enable economists
to determine both the quality and the future monetary value of economic benefits
that may arise from acquiring new knowledge. indeed, even the use of peer review
and other methods of selecting future scientific missions cannot predict with
accuracy the success of such scientific pursuits in operations.

nevertheless, better information about weather and climate provides tangible

socioeconomic payoffs that, at least in principle, lend themselves to quantification.
these benefits derive from the fact that weather and climate information can help
reduce uncertainty in several ways, as illustrated in the following sections.

Improved Civil Government and Military Planning

Weather conditions have a major role in government planning for such tasks as

administering forests, grasslands, and other lands under federal management.the 2000
fire in los alamos, new mexico, provides an instructive example. in that case, a fire
that was deliberately set by federal officials to reduce the load of dry underbrush raged
out of control when the winds turned unfavorable. Better local weather forecasts of
wind conditions

might have prevented the devastating effects of that fire—reducing

or eliminating the severe social and economic effects of that experience.also, weather
forecasts at airports can reduce operational costs.a 1995 australian study found savings
of $6–$7 million per year from improved fueling decisions.

28. Keith easthouse, “park Service Unfairly Scapegoated for los alamos fire,”

Forest Magazine

, april

2001,

http://www.forestmag.com/losalamosfire-update.cfm

(accessed 24 august 2007).

29. roy J.leigh,“economic Benefits ofterminalaerodrome forecasts (tafs) for Sydneyairport,australia,”

meteorological applications,Volume 2, (royal meteorological Society, 1995), pp. 239–247.

The Social and Economic Impact of Earth Observing Satellites

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military operations, whether in war or peacetime, are affected by weather

conditions. the military services need accurate weather information in order to
increase personnel safety and to gain an information edge over adversaries. accurate
weather forecasts can reduce operational costs by allowing commanders to make better
decisions regarding movements and deployments of troops. for example, accurate
information regarding winds, sea state, and ocean currents can enable ships to follow
more cost-effective courses than would be possible without such information.

responding to natural hazards

the unexpected and severe flooding of the many major rivers in europe and

china in the summer of 2002 and the 1998 devastation in central america from
hurricane mitch serve as reminders of the potentially huge economic costs of natural
hazards. Better prediction of weather and climate cannot reduce the likelihood that
severe weather events will occur but can help substantially lower the costs to society of
such events.these cost savings come in two forms:1) people are more likely to invest in
loss-reduction activities when better information is available and 2) better information
can also reduce economic costs that arise when uncertainty about adverse weather
causes government authorities, people, and business to “err on the side of caution” and
undertake what later turn out to be unnecessary loss-reduction activities.

improved industrial planning

reducing uncertainty about weather and climate facilitates the process of

planning in a variety of industrial sectors. more accurate predictions about future
weather  and  climate  enable  farmers  and  agribusinesses  to  estimate  future  crop
yields, leading to reduced uncertainty about yields and prices. in economic terms,
such  reduced  uncertainty  translates  directly  into  better  use  of  scarce  productive
resources, as well as dampening the fluctuations in prices of agricultural products.
Similarly  in  the  energy  generation  industry, improving  the  predictive  ability  of
forecasts by an average of only one degree can result in more efficient use of power
generating resources and can mean hundreds of thousands of dollars saved each year
for electric utilities.

many utilities employ their own forecasters at a high annual

cost because of these potential large savings. Weather forecasts are also critical for
airline operations since better forecasts will reduce operational costs (mainly by
saving fuel and improving safety) at airports and in-flight.

30. national oceanic andatmosphericadministration (noaa),geostationary operational environmental

Satellite System (goeS),“goeS-r Sounder and imager cost/Benefit analysis (cBa),” prepared for
the goeS Users conference,1–3 october 2002,Boulder,co,

http://www.osd.noaa.gov/goes_R/goesrconf.

htm

(accessed october 2002);del Jones,“forecast:1 degree isWorth $1B in power Savings,”

USAToday

19 June 2001. note that other factors, including political and regulatory actions, can overshadow any
savings from forecasts. for example, the wild fluctuations in price and energy availability in california
over the past several years resulting from a policy of deregulation would make an economic analysis of
separating out the price and efficiency effects of better forecasts very difficult.

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insurance and hedging against Uncertainty

finally, providing better information concerning the probabilities of weather-

related events also enables the emergence of markets that help mitigate the
economic and financial consequences of uncertainty. these markets, which allow
the consequences of uncertainties to be “priced” in the form of insurance and
hedge contracts,are able to function because information about weather and climate
makes it possible to attach probabilities to uncertain events.

in each of these instances, however, new information has value only to

the extent that more scientific information reduces uncertainty in ways that are
economically valuable. in the case of planning for and responding to natural hazards,
information about weather and climate will be valuable to the extent that 1) having
more information provides a measurable or significant reduction in uncertainty and
2) reducing uncertainty “matters” in the sense that having more reliable information
has the potential to affect choices made by individuals, businesses, and government.
Similarly, increased scientific knowledge about weather and climate, by itself, does
not facilitate pricing in insurance and/or hedge markets if this information cannot
be translated into the probability distribution of future weather events and then
efficiently distributed to users.

the value of information has particularly interesting qualities. Before

information is released to potential buyers (ex ante), the value to a potential user
of the information is not known. information has economic value only when it is
actually used.the transmission of information gained from analysis of data from the
environmental satellites to end-users is complex and much information is ignored,
lost, or not used. even if information is disseminated in a timely fashion, sometimes
the interpretation may not be clear and potential benefits will disappear.Who will
ultimately pay for the information, how much they will pay for it, and what is the
actual value of the information are all difficult to evaluate until after the information
is obtained and actually used.

derivatives

Virtually all companies face financial risks from unexpected variations in

temperature, precipitation, and other weather-related events. in order to reduce the
financial risk that unexpected weather variations might cause, companies whose
income depends significantly on the weather are likely to make use of use financial
instruments such as weather derivatives to hedge against major losses from unpredicted
weather.Whether it is a ski resort protecting itself from a warm winter or an electric
utility hedging against price increases in fuels from a cold winter, actual market
transactions can provide a window on the value of these natural events to businesses.

Weather derivatives are financial instruments that act very much like puts and

calls in the stock and futures markets, and are specific to each company, location,
and type of weather condition (temperature, precipitation, wind speed, snowfall,
etc.).they tend to cover short periods of time (typically, two weeks to one season in

The Social and Economic Impact of Earth Observing Satellites

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length) and the contracts are usually written to limit the seller’s financial exposure.
Since they are traded on markets developed for this purpose, the makers of the
markets charge a fee (premium) for this service. Since derivatives are especially
relevant to business market transactions and are not well understood outside of the
industry, they are useful in providing a view of an often-overlooked indicator of the
value of weather forecasts.

purchasing derivatives reveals one facet of the economic value of information

on weather and business activity. in march 2003 an analysis of the weather derivative
market reported a total of 7,239 contracts (from both a survey of the industry and the
contracts reported from the chicago mercantile exchange) with a notional value of
nearly $4.2 billion. more than 98 percent of these weather derivative contracts have
been based on temperature (the rest were based on precipitation).

although satellites play a long-term role in improving the accuracy of forecasts

and of historical data, the information from satellites tends not to affect the short-
term assessment of risks for weather derivatives since these risk assessments are
based on history,not on predictions.nevertheless,future improvements in predictive
capabilities (particularly from improvements in satellite instrumentation and data
distribution) may well influence the derivative market.

clearly, as weather prediction capabilities improve, the

potential

for directly using

satellite data for derivatives (along with other weather information) will become
economically and financially more feasible.as real-time data become more accurate,
the historical time series in future years will improve. Satellite weather data will have a
great influence on the market and price volatility of weather derivatives.

Summary and Conclusions

the preceding short descriptions of socioeconomic benefits from satellite

earth observations data illustrate some of the existing and potential contributions
that these systems make to the economy and to societal well-being. it is clear in
examining such cases in more detail that numerous impediments in U.S. institutions
and in organizational culture prevent government agencies and private companies
from taking full advantage of the benefits these data supply. impediments include
the mixed record of naSa and noaa in moving research findings to operational
use; lack of knowledge within companies and local communities about the benefits
satellite data can bring to them; institutional inertia and reluctance to make
investments in new ways of conducting operations; and the necessary costs of
training and equipment to upgrade operations.

31. pricewaterhousecoopers,“the Weather risk management industry:Survey findings for november

1997 to march 2001,” prepared for the Weather risk management association,Washington, dc,
June 2001 (updated in 2003).

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further, it is apparent that we cannot develop a reliable overall estimate of

what we know intuitively must be true—that the benefits from earth observations
from space have had a huge and significant impact on the economy.the quality of
life, the ability to protect our nation, and the ability to manage environmental and
natural resources are very much improved by the use of space-based instruments.

the considerations in this paper suggest that increases in

scientific

information about

weather and climate do not automatically or immediately create information that is of

economic

value.a direct implication is that the mix of government-funded projects could

change over time depending on how policy makers take into consideration the balance
between the economic and commercial value of earth observations and the research,
scientific, and qualitative (social) value of earth-sensing activities.

the value of weather and climate information itself has been shown to be

relatively small as a percentage of the economy.

however, when dealing with

weather and climate where each year billions of dollars of property is damaged and
many lives are lost as a result of severe weather events, even a small improvement in
predictive capability can add up to major savings.

despite these concerns and the methodological measurement difficulties we

have enumerated, government agencies and private companies derive sufficient
benefit from many of the systems to justify continued and expanded government
investment in them, especially when their utility for nonquantifiable international
and national security operations is taken into account. nevertheless, especially in
an era of substantial pressure on the discretionary portion of the federal budget,
decision makers will continue to press for hard evidence that the investments are
worth the cost. part of this presents a dilemma. increases in technological capabilities
will advance the potential of benefits; however, without a corresponding increase
in providing incentives to users and in moving the research results to operational
capabilities, it will be very difficult to achieve greater economic benefits, particularly
those that can be measured quantitatively.

32. it should be clearly recognized that these two goals and not mutually exclusive, due to the dual-

use nature of most earth observation data. in other words, providing data that has social value also
contributes to economic and commercial uses.

33. a good review of some of the economic issues in measuring the value of weather information can

be found in molly K. macauley, “Some dimensions of the Value of Weather information: general
principles and ataxonomy of empirical approaches,”

http://sciencepolicy.Colorado.edu/socasp/weather1/

macauley.html

(accessed march 2002).

34. for a review of the magnitude of losses from extreme weather, see tom ross and neal lott,

the national climatic data center,

http://www.ncdc.noaa.gov/oa/climateresearch.html

(accessed 30

november 2006);“extreme Weather Sourcebook 2001,”

http://sciencepolicy.Colorado.edu/sourcebook/

data.html

(accessed 28 July 2007). other compilations can be found in “natural disasters 2000,

annual review,” (munich, germany: munich re; also available as a cd-rom); a. arguez and
J. elsner, “trends in U.S. tropical cyclone mortality during the past century,” (florida State
University:tallahassee, fl, 11 april 2001).