sou · H9B391 · 2021-11-24 00:00:00 — En förutsättning är emellertid att utsändningarna utgör rymdverksamhet i lagens mening. Rymdverksamhet – oavsett om den är bemannad eller inte – är tillståndspliktig och omfattas av vissa villkor som kan anpassas till den särskilda verksamheten såväl genom föreskrifter som i enskilda tillståndsbeslut. Kommersiell bemannad rymdfart genom horisontell utsändning har hitintills skett på höjder som inte utgör rymdverksamhet enligt den nya lagen. Denna verksamhet faller i stället under luftfartslag- stiftningen. Vår bedömning är att bemannad rymdfart genom hori- sontell utsändning, som oftast sker från flygplatser, bör kunna han- teras enligt luftfartslagstiftningen. Denna lagstiftning är anpassad för bemannade flygningar och innehåller säkerhetskrav för såväl far- koster som anläggningar och personal. För att bemannad vertikal rymdfart från svenskt territorium ska kunna genomföras krävs enligt vår bedömning ett utvecklat regelverk. Motsvarande säkerhetsföreskrifter och andra regelverk som finns för flygplatser och verksamhet i luftrummet, och som gäller för bemannad horisontell rymdfart, behöver utarbetas för bemannade vertikala ut- sändningar från en svensk rymdbas. Eftersom kommersiell bemannad rymdfart bör regleras enhetligt oavsett om det rör sig om vertikal eller horisontell utsändning talar övervägande skäl för att ett sådant regelverk bör utarbetas inom ramen för luftfartsregleringen. Vi föreslår att beslut i tillståndsärenden ska få överklagas av sökan- den i ärendet och att beslut i tillsynsärenden ska få överklagas av till- ståndshavaren. Beslut om tillfälligt förbud föreslås få överklagas särskilt. Eftersom tillståndsprocessen kan ha inslag som föranleder överväg- anden kring säkerhet eller andra utrikes-, säkerhets- och försvarspolitiska intressen föreslår vi en särskild överklaganderätt för Försvarsmakten, Säkerhetspolisen och Inspektionen för strate- giska produkter (samrådsmyndigheterna). också vårt förslag om en ordning med olika överprövningsinstanser. Sökanden i tillståndsärenden ska överklaga beslut till allmän förvalt- ningsdomstol. Denna ordning gäller även för tillståndshavare som ska överklaga beslut i tillsynsärenden. Samrådsmyndigheterna ska emellertid överklaga beslut till regeringen. Om ett mål hos allmän förvaltningsdomstol innehåller frågor som rör säkerhet eller andra utrikes-, säkerhets- och försvarspolitiska intressen, föreslås domstolen överlämna målet till regeringen för prövning. Detsamma föreslås gälla om samrådsmyndigheterna begär att målet av sådan an- ledning ska överlämnas till regeringen. För att Rymdstyrelsen ska kunna pröva frågor om tillstånd och ut- öva tillsyn på ett effektivt och rättssäkert sätt är det av avgörande betydelse att myndigheten får tillgång till information som kan ha be- tydelse för bedömningar om säkerhet eller andra utrikes-, säkerhets- eller försvarspolitiska intressen. Vi föreslår därför att det införs sekretessbrytande bestämmelser i offentlighets- och sekretess- lagen (2009:400) för Säkerhetspolisen, Försvarsmakten och Inspektio- nen för strategiska produkter inom ramen för tillstånds- och tillsyns- ärenden enligt rymdlagen, så att myndigheterna – när det är lämpligt – kan lämna sekretessreglerade uppgifter till Rymdstyrelsen. Av samma skäl föreslår vi en sekretessbrytande bestämmelse, i form av en uppgiftsskyldighet, för Rymdstyrelsen i förhållande till Säkerhetspolisen, Försvarsmakten och . Vår sammantagna bedömning är att den nya lagen kommer att främja svensk rymdverksamhet som strategisk tillgång för utveckling av kunskapssamhället, som den bidrar till att skapa en ökad internationell attraktionskraft för svensk högteknologisk verksam- het och bättre förutsättningar för svensk industri och teknikutveck- ling. Att forskning, utveckling och industrins innovations- och kon- kurrenskraft stärks förväntas medföra positiva samhällsekonomiska effekter. Rymdinfrastrukturen tillhandahåller samhällsviktiga tjänster och lagen kommer enligt vår bedömning att tillgodose samhällets behov av rymdrelaterad kunskap och teknik. Vidare kommer lagen att säkerställa säkerhet och andra utrikes-, säkerhets- och försvarspolitiska intressen genom att omfattningen av tillståndsplikten, tillstånds- och tillsynsprocesserna samt överklagandereglerna har ut- formats med beaktande av dessa intressen. Förslagen som vi lämnar bedöms, åtminstone inledningsvis, rym- mas inom befintliga anslag för Rymdstyrelsen, samrådsmyndigheterna och övriga myndigheter som berörs av förslagen. förväntas emellertid ärendetillströmningen öka och det kan då finnas anledning att återkomma i frågan om anslagsökning då behövs. Den nya rymdlagen med anslutande förordning föreslås träda i kraft . Vi föreslår övergångsbestämmelser som innebär att de ärenden om tillstånd och tillsyn som har inletts före ikraft- trädandet, men ännu inte har avgjorts, ska handläggas enligt äldre före- skrifter. In accordance with our remit, we carried out a review of the Space Activities Act of 1982 and its related Space Activities Decree. A review of ’s space activities legislation is warranted for many different reasons, including the technology development since the Space Activities Act came into existence, the rise in non-state actors in the space sector, and changes in the world around us which have led to a greater focus on ’s national security. The current Space Activities Act contains only a few provisions of a horizontal nature and an expanded, more predictable, and plainer regulatory framework is needed. Other European countries have carried out equivalent work on their legislation recently. In this report we submit a number of proposals which aim to achieve a regulation of space activities that is sustainable in the long term, that is in line with international regulatory frameworks and national security needs, and that provides predictability and good foundations for the business community and for research. In essence, the proposals mean the introduction of a new Space Activities Act covering state actors and activities with sounding rockets, expanded permit and supervision arrangements, and provisions governing damages, insurance, and protection of the space environment. Fur- thermore, the proposed Act contains several provisions which aim to safeguard ’s national security and foreign, security, and defence policy interests in general for the space sector. Our starting point has been that any new space activities legislation should fulfil ’s responsibilities and obligations arising from the international rules that has undertaken to comply with. Since these international agreements only deal with relations between states, ’s space activities legislation should also ensure that obligations equivalent to the Swedish state’s international obligations are also imposed on operators under private law. The space sector has grown from a few space-faring nations where the state was involved in all space activities, to an increasing number of nations where private actors are involved, and in addition these activities have become increasingly technologically advanced. Therefore, a starting point for new space activities legislation must be that both permit and supervision rules are designed to be capable of handling a larger number of cases. Another starting point is that a new Space Activities Act should ensure that space activities can be conducted without jeopardising ’s national security or the activity coming into conflict with security, defence, or foreign policy interests. A new Space Activities Act In view of the need for reform in the space sector and the fact that the current Space Activities Act is relatively fragmented, we propose the introduction of a new Space Activities Act and the repeal of the current Act. Like the current Act, this new Act would be titled lagen om rymdverksamhet (the Space Activities Act) and be supplemented by a förordning (Space Activities Decree). A key objective of the proposed new Act is to promote Swedish space activities in order to strengthen ’s research and develop- ment and industrial innovation and competitiveness, and to satisfy the community’s needs for space-related knowledge and technologies. At the same time, it is essential that the new Act safeguards ’s national security and other foreign, security, and defence policy in- terests. The scope of the new Act Space activities include activities that have clear interfaces with activities. However, there is no coherent regulatory frame- work for these activities, as there is in some other countries. Instead, they are dealt with in separate regulatory frameworks. Since it is pro- posed that even in the future space activities will require a permit – and a failure to comply with the permit obligation can result in criminal penalties – we have identified compelling reasons for demarcating the scope of the new Act in relation to activities more clearly than is the case in the current Act. The need for clear demarcation is particularly important given that high-altitude operations has increased and can be expected to increase further. We therefore propose that the terms ‘space object’ and ‘space activity’ be defined in the Act and its applicability is tied to these definitions. This will provide clear and unambiguous regulation concerning which activities are covered by the Act. The new Space Act is to apply to space activities conducted from Swedish territory, but also to space activities conducted outside Swedish territory from a craft registered in , or space activities con- ducted by a Swedish citizen, or a legal person established in . The Act is not only to apply to space activities conducted by private actors, but also by state actors. According to our proposal, sounding rocket activities, which are exempt from current space legislation, can constitute a space activity and thus be covered by the new Act. The limitations on the scope of the Act ensue from ’s com- mitments under international space law. However, the reception of signals from space is not covered by the Act because it is not an activity conducted in space but on Earth. However, the transmission of signals for communication with a space object to change its position or function falls within the scope of the Act. Permits for space activities Activities that constitute space activities, state or private, must require a permit. However, it is proposed that in the new Act, the Swedish Government may provide for an exemption from the permit require- ment for space activities conducted by the Swedish state. exemption should be applied very restrictively and should primarily be applicable to authorities in the defence and security sector. We pro- pose that authorities under the should get such an exemption. We propose that the examines applications for permits. The holder of the permit is to be the person or company who conducts or intends to conduct space activities and is responsible for or has a controlling influence over the activity (the operator). In permit cases, the regulatory authority is to consult with the Swedish Armed Forces, the and the Inspectorate of on questions concerning ’s national security or other foreign, security or defence policy interests. According to our proposal, there are to be different permits for different types of space activities. These are permits for the launching of space objects, manoeuvring or other interaction with space objects, the re-entry of space objects, an activity or other interaction with celestial bodies other than the Earth, and other activities conducted in space other than those mentioned above. One reason for different permit procedures is to make the permit process faster and more efficient. This is particularly relevant given that the number of per- mit cases will most likely rise in the future. The number of operators requiring a permit will increase in part as a result of activities in- volving sounding rockets and that activities conducted by state actors will require a permit; and in part due to innovations in concert with a rapid spread of technology and new actors. In addition, there is the Swedish Government’s declared commitment to launching satellites from the Space Center (hereinafter ). Another reason for differentiating the permit procedure is that different activities prompt different conditions on permits and different degrees of super- vision. Another reason is that different activities involve different obli- gations under space law with respect to questions of liability, among other things. We propose that the Act sets outs clear conditions over what is required for a permit to be granted. The conditions may be adapted to each specific permit type by means of regulations. So that processing applications for permits can be carried out in an efficient, uniform and legally certain way, we also propose regulating what information an application must contain. Furthermore, it is proposed that a permit may be subject to certain specific conditions to adapt the individual activity so that it is conducted in an appropriate and secure way. Another proposal is that a permit is required if space activities are transferred to another operator. The proposed permit regime pro- vides clarity and predictability for both the applicant and the issuing authority and means that uniform requirements are imposed on the operators. It is also fundamental to safeguarding ’s national security and other foreign, security, and defence policy interests. Registration of space objects In order to meet our international obligations, we propose regula- tion governing the registration of space objects. It is proposed that the maintains a national register of space objects and reports data from the register to the United Nations. To perform supervision of space activities in a robust, efficient, and legally certain way, the supervision should be expanded and clarified compared to current regulation. We are therefore proposing regula- tion governing the mission and powers of the regulatory authority, but also governing intervention measures and administrative sanctions. The regulatory authority must have the right to obtain, on request, the information and the documents necessary for supervision along with access to areas, premises and other spaces where space activities are conducted. In addition, the regulatory authority must be allowed to issue orders which can be accompanied by a fine for non-compli- ance. There should be both milder and stricter sanctions so that the intervention can be proportionate to the nature of the deficiencies and breaches. We propose that revoking the permit be the most stringent intervention measure and that this measure can only be taken in the event of serious breaches and where no other measures constitute sufficient intervention. A permit should not be revoked if the purpose of revoking it can be equally well served by changing the conditions of the permit. Instead of revoking the permit, a warn- ing may be issued, provided that it is a measure constituting suffi- cient intervention. In the case of minor breaches, a notification may be issued. In some cases, an activity should cease immediately, or a planned activity should not be carried out. Such a case could be a breach by or a deficiency in the activity that entails a security risk or that an incident affecting ’s national security or other foreign, security or defence policy interests has occurred. In such situations, the regu- latory authority must be able to notify the activity that its permit is invalid until further notice. Such a temporary decision is to apply immediately. It is proposed that the penal provision contained in the current Space Activities Act be transferred into the new Act. is to be the regulatory au- thority. A state operator that has been granted an exemption from the permit requirement is not subject to supervision but must keep the Swedish Government informed about the activity it conducts. In exercising supervision, the must be able to receive assistance from the Swedish Armed Forces, the , and the Inspectorate of . These authorities must also be able to initiate a permit revocation case and make temporary decisions or amendments to permits. To the extent necessary, the Swedish Enforcement Authority or the Swedish Authority must assist with the enforcement of decisions concerning access to documents and the inspection of spaces where space activi- ties are conducted. The Space Activities Act currently in force does not provide for tortious liability. We therefore propose that the new Space Act introduces a damages regime which makes it clear that the operator has strict liability for damage caused by the space object to persons or pro- perty on Earth or on aircraft during flight. The provision corresponds to the strict liability that has under international agreements, but also provides for tortious liability for damage caused by a space object to Swedish citizens, Swedish territory or Swedish aircraft. This liability shall not apply if the injured party has contributed to the damage intentionally or through gross negligence. it apply if the injured party has participated in the activity that caused the damage. We propose that the current right of recourse for the state should continue to apply so that the state is able to claim compensation for damages paid by the state consequent on its obligations under inter- national agreements. However, the amount of compensation paid under strict liability or recourse liability shall not exceed million. The amount limit shall not apply if the damage has been caused inten- tionally or through gross negligence. To ensure that the operator can compensate damage suffered, we propose provisions governing insurance obligations. The Act there- fore contains a requirement for third-party liability insurance or some other financial guarantee to cover strict liability or recourse liability up to an amount of million. The regulatory authority is able to decide on a lower amount if appropriate in consideration of the activity. The third-party liability insurance obligation shall not apply to a person covered by the state insurance scheme. An exemption from the third-party liability insurance obligation must also be possible if another actor participating in the space activity already has third-party liability insurance or has furnished a guarantee covering the strict liability or recourse liability amount. Space environment and space debris Space debris is a major problem today. It is therefore important that space activities do not contribute additional space debris. We there- fore propose, in line with the and the inter- national guidelines and recommendations on the long-term sus- tainability of outer space activities, that an environmental provision be included in the new Act. Space activities must be conducted in ways that are sustainable with respect to the environment and the utilisation of space and the operator must strive to ensure that the activity does not give rise to space debris or lead to harmful environ- mental impacts. Furthermore, we propose that a provision be included in the new Space Activities Decree to the effect that the operator should ensure that a space object in space is transferred to the atmo- sphere or to an orbit where it cannot cause damage to other space activities within 25 years of the end of the activity. There is an ongoing international trend driven by private actors to- wards offering services in the field of commercial manned space , i.e. As far as commercial manned space is con- cerned, our task was to identify the areas in which supplementary regu- lation may be needed for such activities to be conducted in as the basis for the Swedish Government’s future consideration. Vertical launching of manned space capsules, which can be com- pared to sounding rocket launches, is covered by the new Space Activities Act. The same applies to the launching of a manned cap- sule from a Swedish aircraft. However, such launches must consti- tute space activities within the meaning of the Act. Space activities, whether manned or not, require a permit and are subject to certain conditions which can be adapted to the specific activity by means of regulations as well as individual permit decisions. Commercial manned space through horizontal launching has so far been at altitudes that do not constitute space activities under the new Act. These activities are instead subject to ’s legislation. Our assessment is that it should be possible to deal with manned space through horizontal launching, which is most often from airports, under ’s legislation. This legislation is adapted for manned flights and provides for safety re- quirements for crafts as well as installations and personnel. It is our assessment that an elaborated regulatory framework would need to be implemented in order to operate manned vertical space from Swedish territory. Corresponding safety regulations and other provisions that exist for airports and airspace activities, and which apply to manned horizontal space , would need to be framed for manned vertical launches from a Swedish spaceport. Since commercial manned space should be regulated uniformly, whether vertically or horizontally launched, there are overriding rea- sons why such a regulatory framework ought to be developed within the framework of ’s regulation. We propose that decisions in permit cases may be appealed by the applicant in the case, and that decisions in supervision cases may be appealed by the permit holder. It is proposed that a decision on a temporary ban may be appealed separately. Since the permit process may have elements prompting considerations related to ’s national security or other foreign, security, and defence policy interests, we propose a special right of appeal for the Swedish Armed Forces, and the Inspectorate for (the consultation authorities). These interests also motivate our pro- posal for a system involving separate review bodies. The applicant in a permit case can appeal the decision to an administrative court. This system also applies to permit holders who intend to appeal decisions handed down in supervision cases. However, the consultation author- ities can appeal decisions to the Swedish Government. If a case before an administrative court contains matters pertaining to ’s na- tional security or other foreign, security, and defence policy interests, it is proposed that the court declines the case and submits it to the Swedish Government for examination. The same is proposed when the consultation authorities request that the case be submitted to the Swedish Government for such a reason. In order for the to be able to exa- mine applications for permits and exercise supervision in an efficient and legally certain , it is crucial that the authority has access to information that may be relevant for assessments of ’s national security or other foreign, security or defence policy interests. We therefore propose the introduction of information disclosure provisions in the Public Access to Information and Secrecy Act (SFS 2009:400) for the , the Swedish Armed Forces and the Inspectorate of Strategic Products covering permit and supervision cases under the Space Activities Act, so that the au- thorities – where appropriate – can submit classified information to the . For the same reasons, we propose an information disclosure pro- vision in the form of a reporting requirement for the Swedish Natio- nal in relation to the , the Swedish Armed Forces and the Inspectorate of . Our overall assessment is that the new Act will promote Swedish space activities as a strategic asset for the development of the know- ledge society, while at the same time helping to increase the inter- national appeal of Swedish high-tech industries and create better conditions for Swedish industry and technology development.