By Jessica Stewart
Overview
Summit of the Future 2024 took place on September 22 and 23. A high-level global gathering led by the United Nations (UN) Secretary-General, it involved all 193 UN member states. Its intent: “to forge a new international consensus on how we deliver a better present and safeguard the future." This year’s focus: enhancing global governance and shared decision-making on such emerging issues as sustainable development, peace and security, science and technology, and safeguarding youth and future generations.
The chief outcome document from this Summit is the Pact for the Future, which provides a framework to enhance multilateral cooperation and encourage nations to commit to action on global challenges. Negotiated, drafted, and repeatedly revised over several months, the Pact was designed to secure consensus among member states.
In this document, outer space is recognized as a domain of crucial human activity in which all member states have a stake and an interest in progressive regulation. Cooperation in space activities and regulation is shown to foster collective security, advance global governance, and address shared challenges such as climate change, resource management, and technological advancements.
Unfortunately, there was insufficient consensus among member states on key issues relating to space activities, including inclusivity, security, and sustainability. Thus, Pact for the Future does not fully address these issues.
Why outer space matters when planning a better future
Human activities in outer space play an integral role in development on Earth. There has been a surge in the number of space actors, which now include start-ups and emerging space nations. Often, they cooperate to produce technologies that will benefit society. Consider the UN Sustainable Development Goals (SDGs). Earth Observation and Global Navigation Satellite Systems contribute to the achievement of nearly half of the 17 SDGs by supporting a variety of sectors, including agriculture, disaster response, environmental protection, and education.
But more and more space actors also view outer space as a military domain – possibly even a military battleground. Military defence technologies are being developed, but often technologies are actually dual-use, employed in both civilian and military contexts. The lines between commercial and military roles in space are becoming increasingly blurred, with commercial actors taking on more prominent roles in military operations. For instance, commercial space firms are providing civilian tech that supports Ukrainian military forces in the current war with Russia by monitoring Russian troop movements and providing secure communication. These companies have also greatly enhanced connectivity for individuals living in remote areas.
As our reliance on space grows, the need for governance frameworks that ensure that outer space remains a domain for peaceful cooperation that can benefit all humanity becomes more urgent. The recent Summit highlighted the important role space will play in securing global peace and advancing SDGs. Yet, it is not certain that states will take the necessary actions needed to ensure the peaceful use of outer space. In the meantime, the space domain in which human activity is currently confined is becoming increasingly congested with satellites and debris – another possible source of impending disaster.
Inclusivity lost: From zero draft to final text
Like many multilateral documents, Pact for the Future underwent extensive revisions as it incorporated compromises proposed by various states and worked toward a document acceptable to all member states. The initial draft proposed an ambitious vision for the governance of outer space, advocating for “inclusive, pragmatic, and future-proof” decision-making on space sustainability and the use of technologies for the benefit of all humanity. This vision had the potential to encompass all stakeholders, including the private sector and civil society, while also bringing in underrepresented groups such as women, racialized communities, and Indigenous peoples.
However, as the document evolved during attempts to reach consensus, inclusivity was lost. In the final version of the Pact, the private sector and civil society were only involved in outer space governance “where appropriate and applicable.” This more limited approach inadequately addresses the concerns of many who both benefit from and are harmed by certain activities in space, and who are often overlooked in these big international discussions.
Actions relating to outer space
Action 27 of the Pact states: “We will seize the opportunities associated with new and emerging technologies and address the potential risks posed by their misuse.” Point (a) focuses on outer space, expressing the decision to “advance further measures and appropriate international negotiations to prevent an arms race in outer space in all its aspects.” As the Pact text indicates, this Action aligns with the 1967 Outer Space Treaty (OST). So does Action 56: “We will strengthen international cooperation for the exploration and use of outer space for peaceful purposes and for the benefit of all humanity.”
Action 56 includes a decision to “discuss the establishment of new frameworks for space traffic, space debris, and space resources through the Committee on the Peaceful Uses of Outer Space” (COPUOS). It also invites “the engagement of relevant private sector, civil society and other relevant stakeholders, where appropriate and applicable, to contribute to intergovernmental processes related to the increased safety and sustainability of outer space.”
These actions, even if watered down, represent a positive step toward governance by prioritizing disarmament and peaceful practices.
How the Pact helps us to move forward
What now for PAROS?
While Action 27 emphasizes the importance of preventing an arms race in outer space, it doesn’t refer to UN General Assembly Resolution 75/35 Prevention of an Arms Race in Outer Space (PAROS), which addresses the militarization of space. Nevertheless, this commitment in the Pact presents an opportunity to reignite dialogue on PAROS. As states and relevant stakeholders engage in negotiations and decision-making on space-based military capabilities, the conversation around PAROS could gain new momentum.
Banning destructive weapons testing
The Pact addresses the growing risk of the militarization of space. Banning the destructive testing of weapons in outer space is crucial in any attempt to regulate space so that military activities do not threaten peaceful uses. A ban, which promotes both sustainability and security, benefits all space actors. The testing or use of destructive weapons, such as anti-satellite (ASAT) systems, would create significant amounts of debris and could lead to heightened conflicts or an arms race in outer space, endangering both civilian and military space assets.
Tackling space debris
Action 56 commits to “discuss the establishment of new frameworks for space traffic, space debris and space resources” through COPUOS. The UN could target space debris by incorporating initiatives such as the European Space Agency’s Zero Debris Charter. Among the important strategies for mitigating space debris, the Charter, notably, encourages the responsible disposal of defunct satellites and promotes sustainable practices for all space faring actors. Using the ESA’s Charter as inspiration, the UN can develop actionable policies that provide clear guidance for responsibly managing space as a resource. This approach would not only promote the sustainable use of outer space but also ensure that it remains accessible for future generations.
What next for space governance?
If humans are to continue to benefit from the use of outer space, we must embrace collaborative agreements that promote sustainability, disarmament, and peaceful behaviour in this domain. The Pact lays a foundation for future governance, building on past agreements and consensus on militarization, debris mitigation, and nuclear capabilities that can help to shape a more peaceful, sustainable future in space.
Pact for the Future encourages the UN to prioritize the inclusion of all voices in discussions on space and to encourage greater acceptance of existing frameworks that are geared toward the prevention of an arms race in outer space. New frameworks will need to build on existing resolutions that promote peace and sustainability in outer space.
Space is an integral part of our future. We need to create governance structures now that will preserve this domain for peaceful uses that benefit everyone on Earth.
Jessica Stewart is the Fall 2024 Balsillie Technology Governance Intern at Project Ploughshares
