{"id":1417,"date":"2018-07-11T11:34:17","date_gmt":"2018-07-11T15:34:17","guid":{"rendered":"http:\/\/groundbasedspacematters.com\/?p=1417"},"modified":"2018-07-22T15:06:25","modified_gmt":"2018-07-22T19:06:25","slug":"noaas-anprm-for-remote-sensing-licensing-is-an-opportunity-for-comment","status":"publish","type":"post","link":"https:\/\/groundbasedspacematters.com\/index.php\/2018\/07\/11\/noaas-anprm-for-remote-sensing-licensing-is-an-opportunity-for-comment\/","title":{"rendered":"NOAA’s ANPRM for Remote Sensing Licensing is an Opportunity for Comment"},"content":{"rendered":"

On Friday, June 29, 2018, the National Oceanic and Atmospheric Administration (NOAA) published an Advanced Notice of Proposed Rulemaking (ANPRM)<\/strong><\/a> in the Federal Register for its licensing of private remote sensing satellite operations.\u00a0 It requested comments from the public, including industry, by August 28, 2018.<\/p>\n

Congress is looking at changing NOAA’s governing statute to reform the way NOAA regulates private space remote sensing systems.\u00a0 Nonetheless, NOAA sees opportunities for streamlining its regulations itself within the boundaries of the current authority given it by Congress.\u00a0 NOAA does not, however, explain what legal authority it may have for imposing insurance requirements.<\/p>\n

Background<\/strong>.\u00a0 In Subchapter VI of Title 51, National and Commercial Space Programs (51 U.S.C. 60121 et seq.,) Congress requires that anyone operating a remote sensing system in space must obtain a license to do so from the Secretary of Commerce.\u00a0 The Secretary has delegated this task to NOAA.\u00a0 NOAA carries out its role under the regulations it created to implement the law Congress passed.\u00a0 The regulations may be found in Title 15, part 960 of the Code of Federal Regulations.\u00a0 NOAA last updated its regulations in 2006.<\/p>\n

NOAA is considering a rulemaking to change its regulations.\u00a0 The Trump Administration has found that ensuring American industry leadership in remote sensing would best serve U.S. national security and foreign policy interests.\u00a0\u00a0 Accordingly, NOAA wants to relieve industry of any unnecessary regulatory burdens.\u00a0 It wants input from the public, including industry, about ambiguities in the current regulations.\u00a0 Some areas of concern include, among others:<\/p>\n

\u2022 An increase in remote sensing capabilities in other countries<\/div>\n
\u2022 Cubesat constellations<\/div>\n
\u2022 Non-Earth imaging<\/div>\n
\u2022 Satellite servicing<\/div>\n
\u2022 Innovative systems capable of imaging in different spectral bands<\/div>\n
\u2022 Live video broadcasting from space<\/div>\n
\u2022 Venture capital investment, including significant amounts from foreign nationals and corporations<\/div>\n
\u2022 New entrants to space markets<\/div>\n
\u2022 Hosted payloads<\/div>\n
\u2022 Satellite servicing missions, including proximity operations<\/div>\n
\u2022 Ground station networks located in multiple countries with different regulatory regimes<\/div>\n
\n

\u2022 Launch vehicles imaging on orbit<\/p>\n

<\/div>\n

Recall that SpaceX had to turn off its cameras during launch because it didn’t have a remote sensing license.\u00a0 A satellite servicing operation that can record the satellite it approaches is also capable of sensing the Earth.<\/p>\n<\/div>\n

NOAA’s regulations define a remote sensing system as one that includes “any device, instrument, or combination thereof, the space-borne platform upon which it is carried, and any related facilities capable of actively or passively sensing the Earth’s surface, including bodies of water, from space by making use of the properties of the electromagnetic waves, emitted, reflected, or diffracted by the sensed objects.”<\/p>\n

Opportunity for Comment<\/strong>:\u00a0 Because NOAA kicked off this process with an advanced notice of proposed rulemaking\u00a0 (ANPRM) rather than the more common notice of proposed rulemaking (NPRM), industry and the rest of the public have a good opportunity to help inform NOAA’s thinking.<\/p>\n

Statutory authority<\/strong>.\u00a0 Although it acknowledges at the beginning of the notice that Congress is considering reform to NOAA’s ability to authorize and regulate remote sensing, some of NOAA’s ideas appear to get ahead of Congress.\u00a0 One thing to remember is that Congress is the legislative branch.\u00a0 It writes the laws.\u00a0 NOAA can only carry out the laws.\u00a0 Just as the FAA could not start regulating the meat packing industry merely because it has a good idea for doing so, NOAA may only perform the functions that Congress has charged it to carry out.\u00a0 Congress frequently and regularly delegates broad swathes of its legislative power to regulatory agencies, but that makes it even more important for a regulator not to take on more duties than Congress gave it.<\/p>\n

NOAA listed items that would appear to require a statutory change.\u00a0 For example, NOAA asked whether it should “consider a license condition requiring licensees to obtain some level of insurance to cover [an operator’s] potential liabilities?”\u00a0 A review of the statutory authority does not show that Congress gave NOAA any authority to impose insurance requirements on its licensees.\u00a0 When Congress grants such authority, it looks like what it provided the FAA<\/strong><\/a>. Nor does the Liability Convention provide NOAA the necessary legislative authority.\u00a0 The Liability Convention only spells out the U.S. government’s obligations in the event of an accident causing damages.\u00a0 It does not address the obligations of private actors, so we need not even reach the question of whether the Convention might be self-executing with respect to private entities.<\/p>\n

Another example might be if NOAA is considering\u00a0 licensing operators who sense different spectral bands.\u00a0 The authority–or lack of it–is more unclear.\u00a0 On the one hand, the statute defines “land remote sensing” to mean “the collection of data which can be processed into imagery of surface features of the Earth<\/em> from an unclassified satellite or satellites, other than an operational United States Government weather satellite.”\u00a0 (Emphasis added).\u00a0 The spectral bands likely do not satisfy the Congressional requirement that they be “surface features of the Earth.” \u00a0 On the other hand, the licensing provisions in sections 60121 and 60122 of the statute address something different than “land” remote sensing.\u00a0 They authorize the agency to license “private sector parties to operate private remote sensing space systems” and forbid any U.S. person from operating “any private remote sensing space system” without a license.\u00a0 Might NOAA consider the operation of a private remote sensing system as broader than the statutorily defined “land remote sensing”?\u00a0 The agency is asking for comment on how to define a private remote sensing space system.\u00a0 NOAA’s notice says it wants to discuss changes to its regulations within the confines of its statutory authority.\u00a0 Is it considering broadening its interpretation of its statutory mandate so as to license remote sensing of more than surface features of the Earth?\u00a0 As the definition above shows, NOAA does not currently interpret its statute to extend beyond the surface of the Earth.<\/p>\n

Other issues<\/strong>:\u00a0 NOAA also raises other questions for commenters to address.\u00a0 For instance, it seeks comment on whether it should reduce oversight of and requirements for systems that pose less risk:<\/p>\n

Those systems categorized as posing only a de minimis risk would be subject to an expedited review process, less restrictive license conditions, and less burdensome compliance requirements (note: Comments are sought on factors potentially relevant for defining review categories and review processes for different categories (Topic 2, below), on license conditions (Topic 3), and on compliance requirements (Topic 4)). The Department seeks input on whether such a strategy is advisable, and if so, how to implement it.<\/p><\/blockquote>\n

\n

NOAA also seeks comment on its license conditions.\u00a0 In section 60122(b), Congress directed the agency to impose certain license conditions, including, among others, how to operate a system so as to preserve national security, and how to dispose of a satellite at the end of its life.\u00a0 The list does not include a mandate to require operators to purchase insurance.\u00a0 NOAA seeks input on:<\/p>\n

\n

a. Considering the default conditions in 15 CFR 960.11, are there any conditions that should be added, removed, or modified in light of technological changes or impacts to the industry?<\/p><\/blockquote>\n<\/div>\n

\n
…<\/div>\n
c. When considering license conditions, how should NOAA think about the cost and benefit of conditions? What information could licensees provide to NOAA to inform that analysis?<\/div>\n
d. How should Commerce respond to emerging and unforeseeable national security, foreign policy, and international obligation issues for existing licensed systems (e.g., retroactive conditions, temporary restrictions)?<\/div>\n
e. Should the U.S. Government be required to attempt to mitigate any national security or other risks before imposing conditions? If such mitigation would be costly, how should Commerce balance the taxpayer cost with any avoided cost to licensees?<\/div>\n<\/blockquote>\n
\n

…<\/p><\/blockquote>\n

\n
\n
g. How should Commerce adjust conditions in response to the increasing capabilities of non-U.S. entities? How frequently should NOAA evaluate those increasing capabilities?<\/div>\n
\n

h. How can Commerce best provide transparency to licensees regarding classified national security risks?<\/p>\n<\/div>\n<\/blockquote>\n

Lastly, NOAA seeks input on compliance and enforcement.<\/p>\n

\n

Comments due<\/strong>:\u00a0 August 28, 2018.\u00a0 NOAA may also hold a public meeting.<\/p>\n

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