Updated March 23, 2023
Defense Primer: National Security Space Launch
Introduction
sustain two major independent rocket-powered launch
The U.S. Department of Defense’s (DOD’s) Launch
vehicle families to reduce the chance of launch
Enterprise consists of two programs: National Security
interruptions and to ensure reliable access to space; (2)
Space Launch (NSSL), which acquires launch services for
license and stockpile the Russian-made RD-180 heavy-lift
heavy and medium lift class national security satellites and
rocket engine, a critical component of the Atlas V; (3)
other assets, and the Rocket System Launch Program,
pursue a block-buy commitment to a number of launches
which “provides procurement of small launch and rideshare
through the end of the decade to reduce launch costs; and
services, suborbital targets and experimental flights, and
(4) increase competition to reduce overall launch costs.
restoration of excess ballistic missile assets for reuse.” This
Congress, in the FY2019 National Defense Authorization
In Focus addresses only the first of these two programs.
Act ([NDAA]; P.L. 115-232), renamed the EELV program
Congress has consistently demonstrated interest in
to the NSSL program to reflect a wider mission that would
conducting oversight of both the scope and execution of the
consider not only expendable launch vehicles but also
NSSL program and is additionally involved in program
reusable launch vehicles. (Both Falcon 9 and Falcon Heavy
authorization and appropriation.
are partially reusable launch vehicles.)
Background
NSSL Program Today
National security space (NSS) launches support the military
The U.S. Space Force, the sixth branch of the Armed
and intelligence community. NSS launches have included
Forces, is responsible for the military space launch mission.
commercial and military communications satellites—
The NSSL program is managed by the Space Systems
including Global Positioning System satellites, lunar and
Command, located at Los Angeles Air Force Base. DOD
other planetary orbiters and probes, earth observation and
requested $2.1 billion for NSSL in FY2024.
military research satellites, weather satellites, missile
warning and reconnaissance satellites, a tracking and data
According to the FY2021 Selected Acquisition Report
relay satellite, and the X-37B space plane (a military orbital
(SAR),
test vehicle).
the NSSL system includes launch vehicles, launch
NSSL’s predecessor in NSS launch services, the Evolved
capability, a standard payload interface, support
Expendable Launch Vehicle (EELV) program, was
systems, mission integration (includes mission
established in August 1994 with President Clinton’s signing
unique requirements), flight instrumentation and
of the National Space Transportation Policy (NSTC-4).
range interfaces, special studies, post-flight data
NSTC-4 assigned DOD with the responsibility for
evaluation and analysis, mission assurance,
developing medium and heavy launch vehicles and
infrastructure, critical component engineering,
“improving reliability, operability, responsiveness, and
safety.” NSTC
Government
Mission
Director
support,
-4 additionally directed DOD and the
system/process and reliability improvements,
National Aeronautics and Space Administration to
“
training, and other technical support. The system
combine their expendable launch service requirements into
also includes launch site operations activities,
single procurements when such procurements would result
in cost savings or are otherwise advantageous to the
activities in support of assured access, systems
government.”
integration and tests, and other related support
activities.
Initially, two companies competed for EELV contracts:
Boeing, which produced the Delta IV launch vehicle, and
DOD expects to achieve cost saving through acquisitions
Lockheed Martin, which produced the Atlas V. In 2006,
and operability improvements through use of common
Boeing and Lockheed Martin formed a joint venture,
components and infrastructure, standard payload interfaces,
United Launch Alliance (ULA), which combined the
standardized launch pads, and reductions in on-pad
companies’ mission management and support, engineering,
processing. To improve acquisitions, the NSSL program
vehicle production, and other assets. ULA was the sole U.S.
offers block buys of launch vehicles and competition
provider of launch services from its establishment in 2006
between certified providers. The competitions are
to 2015, when DOD certified Space Exploration
conducted through two contract vehicles: Launch Service
Technologies Corporation’s (SpaceX) Falcon 9. (DOD
Agreements (LSA) and Launch Service Procurement (LSP)
certified a second SpaceX launch vehicle, Falcon Heavy,
awards.
for NSS launch services in 2019.)
LSAs are a set of Air Force Research, Development, Test,
In response to rising program costs, the Air Force approved
and Evaluation awards intended to facilitate the
a new EELV acquisition strategy in November 2011,
development and certification of NSSL vehicles. DOD
revising it in 2013. That strategy was designed to (1)
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Defense Primer: National Security Space Launch
awarded LSAs to ULA, Blue Origin, and Northrop
directing the Space Force to select more than two launch
Grumman in 2018.
providers in Phase 3;
directing the Space Force to provide a report on the
In contrast, LSP awards are an ongoing procurement
cost-benefit analysis of various models of procurement
competition. DOD awarded the Phase 1 LSP contract to
for Phase 3; and/or
ULA in 2013 and later expanded the contract to include
authorizing and appropriating additional funds that
SpaceX under Phase 1A of the program. In 2019, the Space
would allow the Space Force to extend LSA awards to
and Missile Systems Center (later renamed Space Systems
launch companies not selected for LSP contracts in
Command), together with the National Reconnaissance
Phase 2.
Office, released a request for proposals to award two Phase
2 LSP contracts. ULA, Northrop Grumman, SpaceX, and
Reliability
Blue Origin submitted bids for Phase 2. ULA and SpaceX
DOD identifies mission success as the NSSL program’s
were selected and are to share the responsibility for NSS
foremost priority. The FY2021 SAR notes that NSSL has
launches through FY2027. DOD awarded 60% of the
had “100% mission success and now stands at 91
launch services orders to ULA and 40% to SpaceX.
consecutive successful NSS launches over the program’s
existence.” Some analysts have previously argued against
DOD issued draft requests for industry proposals for Phase
expanding the NSSL program due to concerns that new
3 of NSSL in February 2023. Phase 3 is to adopt a two-lane
entrants or launch vehicles could increase program risks
approach: the first lane is to provide smaller launches and is
and the potential for mission failure. Other analysts have
to be open to any provider that has successfully completed a
argued that greater competition could lead to lower program
mission to orbit, while the second lane is to provide heavy-
costs and greater innovation. Congress may consider these
lift launches and is to be open to certified providers ULA
potential tradeoffs as it evaluates the NSSL program.
and SpaceX.
Supply Chain Security
Potential Issues for Congress
Congress has expressed sustained interest in conducting
Although both Congress and national space community
oversight of supply chain security for NSSL launch
stakeholders broadly support the NSS requirement to
vehicles. For example, in the FY2014 NDAA (P.L. 113-
promote robust competition and assured access to space,
291), Congress placed certain restrictions on DOD’s
challenges to meeting these requirements remain—
acquisition of the Russian-made RD-180—the rocket
particularly with regard to controlling costs while ensuring
engine used by ULA’s Atlas V. In the FY2017 NDAA (P.L.
launch reliability and performance.
114-328), Congress authorized DOD to acquire a total of 18
RD-180s. This number was intended to allow the Atlas V to
Competition
continue NSS missions until ULA’s Vulcan launch vehicle
Some analysts have questioned the Space Force’s decision
could be certified. However, “technical and funding
to award only two LSP contracts in NSSL Phase 2. For
challenges” will reportedly require DOD to use the RD-180
example, a 2020 RAND Corporation study concluded that
through around 2025.
the “current acquisition plan is unlikely to provide
sufficient supply of launch vehicles certified to carry U.S.
In March 2022, in response to growing tensions between
NSS payloads in the 2022–2025 time frame.” The Space
the United States and Russia due to Russia’s invasion of
Force responded, however, that its acquisition plan was
Ukraine, Russia announced that it would no longer deliver
“deliberately [focused] ... on mission assurance to sustain
RD-180s to the United States. Russia additionally stated
100% mission success but [that the Space Force will] work
that it would no longer service the 24 RD-180s remaining in
to minimize the risk to Assured Access to Space to the
the U.S. inventory. Both ULA and Secretary of the Air
maximum extent practicable.”
Force Frank Kendall responded that they did not expect
Russia’s decision to impact U.S. NSS launches. However,
Congress may consider the implications of the Space
Force’s
some analysts have argued that Russia’s actions, in
current acquisition strategy for competition. Since
combination with growing commercial demand for launch
any company not selected for Phase 2 LSP contracts could
services, could challenge DOD’s ability to execute NSS
not continue receiving LSA funding, those not selected—
launches as planned. Congress may monitor the Atlas V
Northrop Grumman and Blue Origin—were faced with the
program and encourage DOD to explore alternative options
choice of either (1) ending NSSL development to focus on
for NSS launches, if necessary (e.g., accelerating Vulcan
competing in the commercial launch sector, or (2) investing
certification [assuming technological feasibility], shifting a
significant company reserves to self-fund development.
portion of Phase 2 launch service orders to SpaceX,
Blue Origin, which had been eligible for up to $500 million
accelerating the Phase 3 competition).
under its LSA, elected to continue development of its New
Glenn rocket, while Northrop Grumman, which had been
This report was originally authored by Stephen M. McCall,
eligible for up to $792 million, elected to end development
former Analyst in Military Space, Missile Defense, and
of OmegA. In November 2022, Blue Origin signed a
Defense Innovation.
Cooperative Research and Development Agreement with
Space Force to enable the company to proceed with
Kelley M. Sayler, Coordinator, Analyst in Advanced
certification activities for New Glenn.
Technology and Global Security
Congress could consider
IF11531
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Defense Primer: National Security Space Launch
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https://crsreports.congress.gov | IF11531 · VERSION 6 · UPDATED