March 20, 2015
Space Exploration
Act of 2010 (P.L. 111-267) authorizes U.S. use of the ISS
Overview
through 2020. In January 2014, the Administration
proposed extending that date to 2024.
The National Aeronautics and Space Administration
(NASA) is the primary federal agency for civil space
To encourage more widespread use of the ISS for research,
programs. The National Oceanographic and Atmospheric
the NASA Authorization Act of 2005 (P.L. 109-155)
Administration (NOAA) and the U.S. Geological Survey
designated the U.S. portion of the ISS as a national
(USGS) also operate civil satellites. The U.S. commercial
laboratory. As directed by subsequent legislation, NASA
space industry provides equipment and services to both the
has contracted with the nonprofit Center for the
government and the private sector. Several federal agencies
Advancement of Science in Space (CASIS) to manage the
have regulatory and other roles in commercial space.
ISS national laboratory function. ISS research utilization
and the nature of ISS research continue to be of
NASA
congressional interest.
With a budget of $18.0 billion in FY2015, NASA develops
NASA used to rely on the space shuttle to carry crews and
and operates both manned and unmanned spacecraft. It also
cargo to and from the ISS. The space shuttle fleet was
has programs in aeronautics research and education.
retired after the final flight of Atlantis in July 2011. Since
then, ISS cargo has been carried by Russian, European, and
Legislation in the 113th and 114th Congresses
Japanese spacecraft, and more recently, by two U.S.
commercial providers—Space Exploration Technologies
In the 113th Congress, committees in both chambers
(SpaceX) and Orbital Sciences—under contract to NASA.
developed NASA reauthorization bills. The House bill
Since the end of the space shuttle program, ISS crews,
(H.R. 4412) passed the House in June 2014. The Senate bill
including U.S. astronauts, have been carried exclusively by
(S. 1317) was reported by the Committee on Commerce,
Russian Soyuz spacecraft.
Science, and Transportation in December 2014 but did not
receive floor action. The most contentious issue for both
Commercial Crew. NASA is funding two U.S.
bills was the authorization of appropriations, but both also
companies—Boeing and SpaceX—to develop a commercial
contained numerous policy provisions about the scope,
capability to transport astronauts to and from the ISS and
direction, and management of individual NASA programs.
potentially other destinations in Earth orbit. The target date
In the 114th Congress, the House has passed H.R. 810,
for the start of operations is 2017. Advocates argue that
which is similar to H.R. 4412.
using commercial providers will reduce NASA’s costs
through competition and encourage development of a new
The 113th Congress passed appropriations legislation to
commercial industry. Skeptics anticipate few non-NASA
fund NASA in FY2015. As usual, committee reports
customers, doubt that the market can support more than one
accompanying the House and Senate bills, as well as the
provider, and express concerns about astronaut safety.
explanatory statement accompanying the final omnibus bill,
Congress and the Administration have often disagreed
gave substantial programmatic guidance to NASA as well
about the funding needs of the commercial crew program
as directing the allocation of funds. The 114th Congress has
relative to NASA’s development efforts for exploration
begun to consider appropriations for FY2016 following the
beyond Earth orbit.
submission of the President’s FY2016 budget, which
includes $18.539 billion for NASA.
Orion and the Space Launch System. As directed by the
NASA Authorization Act of 2010, NASA is developing
Human Spaceflight
new spacecraft for future human missions beyond Earth
orbit. These are the crew capsule Orion and a new rocket,
NASA’s current efforts in human spaceflight include
known as the Space Launch System (SLS), to carry Orion
operation of the International Space Station (ISS), support
into space. A first (unmanned) test flight of Orion, using an
for the commercial development of U.S. spacecraft to take
existing rocket, took place on December 5, 2014. The first
astronauts to and from the ISS, and development of
test flight of Orion on an SLS, again without a crew, is
spacecraft for future human exploration beyond Earth orbit.
planned for late 2018. The first test flight with a crew is
expected in FY2021 or FY2022.
International Space Station. The ISS, which orbits Earth
at an altitude of 200 to 250 miles, is composed of crew
Mars is widely agreed to be the next long-term destination
living space, laboratories, remote manipulator systems,
for human exploration of space. A mission to Mars,
solar arrays to generate electricity, and other elements.
however, would require substantial additional development,
Crews have occupied the ISS on four- to six-month
so Orion and SLS are expected to visit other destinations
rotations since November 2000. The NASA Authorization
first. NASA has proposed redirecting an asteroid into orbit
www.crs.gov | 7-5700

---

Space Exploration
around the Moon, where it could be visited by astronauts on
Landsat. The USGS operates Landsat satellites for land
an early Orion/SLS mission. This proposal has met with
remote sensing, with applications in agriculture, regional
some skepticism in Congress. Other possible destinations
planning, emergency response, and other areas. As with
include the Moon itself, an asteroid or comet in its original
weather satellites, there is some overlap with NASA’s
orbit, and a Mars fly-by with no landing.
research-oriented Earth science program. Views differ on
the best approach to future land-imaging satellites. Some
Science
stakeholders advocate alternative approaches, such as
privatization or international partnerships. Others prefer the
NASA’s science program consists largely of unmanned
current model: stand-alone satellites under USGS
spacecraft such as the Hubble Space Telescope and the
management. Other issues for Congress include cost control
Mars rover Curiosity. The program also conducts some
and data continuity.
research from aircraft. There are four main research areas:
planetary science, Earth science, astrophysics, and
Commercial Space
heliophysics. In addition, NASA’s Science Mission
Directorate acquires and launches satellites on behalf of
A survey by the Department of Commerce found that U.S.
other agencies, such as NOAA.
companies had $62.9 billion in space-related sales in 2012.
While U.S. government programs provided much of this
Planetary Science. Following the launch of two major
market, about one quarter of sales were within the
Mars missions in 2011 and 2013, the Administration
commercial sector.
proposed reducing funding for NASA planetary science in
order to fund science in other research areas. Congressional
New Space. Some observers have identified an emerging
supporters of planetary science, especially Mars
“new space” sector of relatively new companies focused on
exploration, have opposed these proposed reductions each
private spaceflight at low cost. One factor driving this trend
year since FY2013, with partial success.
is NASA’s reliance on commercial providers for access to
the ISS, but “new space” companies are also focused on
Two NASA planetary science probes will reach their
other markets. These include the launch of national security
destinations in 2015. Dawn arrived at the asteroid Ceres in
satellites for the Department of Defense, the launch of
March, and New Horizons will arrive at Pluto in July. These
commercial satellites for U.S. and foreign companies, and
will be the first two spacecraft to study dwarf planets at
even space tourism.
close range.
FAA Regulation. The Federal Aviation Administration
Earth Science. NASA funding for Earth science has risen
(FAA) licenses commercial space launch and reentry,
from a low of $1.2 billion in FY2007 to about $1.8 billion
including commercial spaceports. As part of the FAA
in FY2015. Recent congressional debates over NASA
licensing process, the federal government indemnifies
science funding have often balanced support for Earth
launch providers against certain third-party liabilities. The
science against support for planetary science. Climate
114th Congress may revisit this indemnification policy,
research is a major element of NASA’s Earth science
which has been renewed eight times since 1988 and
program. As a result, congressional attitudes toward the
currently expires on December 31, 2016. Although the FAA
program often align with positions on climate change.
has the authority to regulate the safety of crewed
spaceflight, a statutory moratorium restricts the application
James Webb Space Telescope. In NASA’s astrophysics
of that authority until October 1, 2015. This moratorium has
program, the James Webb Space Telescope (JWST) is
been a focus of recent congressional interest because of
intended to be a successor to Hubble. Following a series of
NASA’s plans for commercial crewed flights to the ISS.
schedule delays and cost overruns between 2005 and 2010,
NASA developed a revised plan for the JWST in 2011. In
Other Federal Roles. Several other federal agencies are
2012, Congress capped the telescope’s formulation and
also involved in the commercial space industry. NOAA
development costs and mandated annual reports on the
licenses commercial imaging satellites. The Federal
program by the Government Accountability Office. The
Communications Commission licenses the use of radio
third such report, in December 2014, stated that the
frequencies by commercial satellites and assigns locations
program remains on schedule and on budget, but that
for satellites in geostationary orbits. The National
technical challenges have increased schedule risk. The
Transportation Safety Board investigates certain spacecraft
JWST continues to receive close congressional oversight.
accidents. The Department of Commerce Office of Space
Commercialization supports and promotes U.S. space
Other U.S. Civil Space Programs
commerce. Oversight of export controls on commercial
communications satellites shifted from the Department of
NOAA Weather Satellites. NOAA operates geostationary
State to the Department of Commerce in 2014.
and polar-orbiting satellites to provide data for weather
forecasting and other purposes. Although NOAA’s
Daniel Morgan, dmorgan@crs.loc.gov, 7-5849
operational satellites differ from NASA’s research-oriented

Earth science satellites, they share some characteristics, and
improving coordination between the two agencies has long
IF10016
been a focus of congressional interest.
www.crs.gov | 7-5700

---