Defense Primer: National Security Space Launch
Updated October 10, 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
“improving reliability, operability, responsiveness, and
infrastructure, critical component engineering,
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
Space Force to enable the company to proceed with
Grumman in 2018.
certification activities for New Glenn.
Congress may monitor the execution of Phase 3 of NSSL to
In contrast, LSP awards are an ongoing procurement
determine whether the two-lane approach has successfully
competition. DOD awarded the Phase 1 LSP contract to
increased competition and/or led to a greater number of
ULA in 2013 and later expanded the contract to include
launch service providers.
SpaceX under Phase 1A of the program. In 2019, the Space
and Missile Systems Center (later renamed Space Systems
Reliability
Command), together with the National Reconnaissance
DOD identifies mission success as the NSSL program’s
Office, released a request for proposals to award two Phase
foremost priority. The FY2021 SAR notes that NSSL has
2 LSP contracts. ULA, Northrop Grumman, SpaceX, and
had “100% mission success and now stands at 91
Blue Origin submitted bids for Phase 2. ULA and SpaceX
consecutive successful NSS launches over the program’s
were selected and are to share the responsibility for NSS
existence.” Some analysts have previously argued against
launches through FY2027. DOD awarded 60% of the
expanding the NSSL program due to concerns that new
launch services orders to ULA and 40% to SpaceX.
entrants or launch vehicles could increase program risks
and the potential for mission failure. Other analysts have
DOD issued requests for proposals for Phase 3 of NSSL in
argued that greater competition could lead to lower program
October 2023. Phase 3 is to adopt a two-lane approach: the
costs and greater innovation. Congress may consider these
first lane is to provide smaller launches and is to be open to
potential tradeoffs as it evaluates the NSSL program.
any provider that has successfully completed a mission to
orbit, while the second lane is to provide heavy-lift
Supply Chain Security
launches and is to be open to certified providers. The
Congress has expressed sustained interest in conducting
solicitation notes that DOD may award contracts to up to
oversight of supply chain security for NSSL launch
three launch service providers.
vehicles. For example, in the FY2014 NDAA (P.L. 113-
Potential Issues for Congress
291), Congress placed certain restrictions on DOD’s
acquisition of the Russian-made RD-180—the rocket
Although both Congress and national space community
engine used by ULA’s Atlas V. In the FY2017 NDAA (P.L.
stakeholders broadly support the NSS requirement to
114-328), Congress authorized DOD to acquire a total of 18
promote robust competition and assured access to space,
RD-180s. This number was intended to allow the Atlas V to
challenges to meeting these requirements remain—
continue NSS missions until ULA’s Vulcan launch vehicle
particularly with regard to controlling costs while ensuring
could be certified. However, “technical and funding
launch reliability and performance.
challenges” will reportedly require DOD to use the RD-180
Competition
through around 2025.
Some analysts have questioned the Space Force’s decision
In March 2022, in response to growing tensions between
to award only two LSP contracts in NSSL Phase 2. For
the United States and Russia due to Russia’s invasion of
example, a 2020 RAND Corporation study concluded that
the “current
Ukraine, Russia announced that it would no longer deliver
acquisition plan is unlikely to provide
RD-180s to the United States. Russia additionally stated
sufficient supply of launch vehicles certified to carry U.S.
that it would no longer service the 24 RD-180s remaining in
NSS payloads in the 2022–2025 time frame.” The Space
the U.S. inventory. Both ULA and Secretary of the Air
Force responded, however, that its acquisition plan was
“deliberately [focused]
Force Frank Kendall responded that they did not expect
... on mission assurance to sustain
Russia’s decision to impact U.S. NSS launches. However,
100% mission success but [that the Space Force will] work
some analysts have argued that Russia’s actions, in
to minimize the risk to Assured Access to Space to the
combination with growing commercial demand for launch
maximum extent practicable.”
services, could challenge DOD’s ability to execute NSS
Congress may consider the implications of the Space
launches as planned. Congress may monitor the Atlas V
Force’s current acquisition strategy for competition. Since
program and encourage DOD to explore alternative options
any company not selected for Phase 2 LSP contracts could
for NSS launches, if necessary (e.g., accelerating Vulcan
not continue receiving LSA funding, those not selected—
certification [assuming technological feasibility], shifting a
Northrop Grumman and Blue Origin—were faced with the
portion of Phase 2 launch service orders to SpaceX,
choice of either (1) ending NSSL development to focus on
accelerating the Phase 3 competition).
competing in the commercial launch sector, or (2) investing
significant company reserves to self-fund development.
This report was originally authored by Stephen M. McCall,
Blue Origin, which had been eligible for up to $500 million
former Analyst in Military Space, Missile Defense, and
under its LSA, elected to continue development of its New
Defense Innovation.
Glenn rocket, while Northrop Grumman, which had been
eligible for up to $792 million, elected to end development
Kelley M. Sayler, Coordinator, Analyst in Advanced
of OmegA. In November 2022, Blue Origin signed a
Technology and Global Security
Cooperative Research and Development Agreement with
IF11531
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Defense Primer: National Security Space Launch
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https://crsreports.congress.gov | IF11531 · VERSION 7 · UPDATED