独家解读 | 美国“商业航天局”来了！！

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当我们的很多商业航天企业在你掐我斗，轮番粉墨登场哗众取宠的时候；当我们的商业航天变成一些新入局者资本运作的概念，弄点资本市场的钱花花的时候……我们来看看，美国的商业航天，正在下一盘什么样的棋局？

美国商业航天局来了！！

作者 | 刘雨菲赵步云

特朗普作为近几十年来最为特立独行的美国总统，非常喜欢在社交媒体上大放厥词。他有时口出狂言，有时前后颠倒。如果人们因此认为他逻辑混乱，那么肯定是看错了这位事业成功的亿万富翁。特朗普在实际政策中，不遗余力地采取措施，增强美国经济的竞争力和活力。他在5月24日签发的第二号总统航天政策令，清晰地为人们展示了这个有雄心、有魄力、雷厉风行的商人，早已切实认识到了商业航天对于美国国家竞争力的价值和意义。现在，他要亲自按下产业大发展的这个按钮了。

成立商业航天局

第二号总统航天政策令的正式名称叫做《理顺对空间商业使用的管控》。该政策令共分成7个部分，其中实质性部分一共有5个，依次是第二部分《发射与再入许可》、第三部分《商业遥感》、第四部分《商务部的重组》、第五部分《无线电频率》、第六部分《评估出口许可管控》。每个部分中，都对商务部、运输部提出了明确要求，为简化商业航天活动审批流程、提高管理效率、促进产业发展而实施机构改革和流程改革。

这样细致的政策指令，意味着美国从国家顶层对商业航天给予了正式的认可和高度的重视，以最高行政当局的名义为商业航天提供了实质性的支持，并落实到了具体政府部门。

在这些文本中，甚至给出了明确的时间要求，例如《发射与再入许可》要求商务部和交通部在2019年2月1日前拿出新的管理措施；《商业遥感》要求商务部在90天内重新审查现有的商业遥感管理法规，然后在120天内会同国务院、国防部，向白宫预算管理办公室提出改进措施；《商务部的重组》要求商务部长必须在30天内向白宫预算管理办公室提出关于机构改革的立法建议；《无线电频率》要求，商务部长和白宫科技政策办公室主任要在120天内会同有关机构负责人，向特朗普本人提出如何修订无线电管理政策、增强美国全球竞争力的报告；《评估出口许可管控》要求，180天内向总统本人提出有关的建议报告。

从美国商务部的反应来看，显然早已经做好了准备。商务部长罗斯立刻发表讲话，给出了具体的机构改革方向。他说，打算把美国国家大气和海洋管理局（NOAA）下属的与商务部商业遥感事务管理办公室、商业航天办公室剥离出来，成立一个新的“商业航天企业政策性推进局”，这个机构的英文缩写正好是SPACE局。所以，我们不妨就把它叫做“商业航天局”。

商业航天局将在商务部长的直接管辖下运行，它最大的特点不是抓权，而是“一站式服务”。按照商务部长罗斯的说法，无论是遥感、卫星应用、卫星数据采集、GPS、无线电频率使用、贸易促进、标准化还是空间交通管制，都可以在这个局内解决。

有意思的是，二号令中虽然没有直接提及NASA，但NASA局长布里登斯汀立刻响应，对这份命令表示积极支持。显然，特朗普和这几位重臣早就在幕后商量好了。美国商业航天业界的响应同样积极而热烈，表达出了要大干一场的态度。

强力推动商业航天发展

我们从这些要求中可以读出两层意思：首先，美国商业航天的发展已经到了关键的节点，对政府管理制度改革的需求已经明晰，可以进入具体实施阶段了；其次，为了防止官僚体系的惰性延误改革，特朗普不惜用设立“后墙”的办法来逼着政府机构快马加鞭。

特朗普把这份命令发给了这样一些机构负责人，我们从中似乎可以闻到一种为商业航天“鸣锣开道”的气息：国务卿、国防部长、商务部长、交通部长、国土安全部长、劳工部长、国家情报总监、白宫管理和预算办公室主任、总统国家安全事务助理、NASA局长、科技政策办公室主任、总统国土安全和反恐助理、参谋长联席会议主席。

与此同时，为了避免具体部门难以推动立法机构，白宫还以最高行政当局的身份出面与国会协调。白宫的官员对新闻界表示，已经开始和参众两院的有关势力进行了接触，为商务部机构重组的立法工作寻求支持。我们曾经指出，由于特朗普是意外取得大选胜利的，国会两院的民主党势力对他采取了强烈反对的态度。尤其是在参议院，特朗普和共和党提出什么，民主党就反对什么。因此，白宫的表态，意味着特朗普不惜和民主党正面交锋，也要推动商业航天管理制度改革。

下一盘大棋

回顾特朗普上台以来在航天领域的举措，就会发现，他并不是脑袋一热就发出总统令的。

我们可以按照时间序列，把一系列事件联系起来。

2017年6月30日，特朗普重建了美国国家航天委员会，并任命副总统彭斯为主席；

2017年9月，特朗普提名布里登斯汀为NASA局长；

2017年12月12日，特朗普签发了第一号总统航天令，宣布要重返月球，然后前往火星；

2018年3月8日，特朗普在内阁公开会议上，高度赞扬了商业航天的成就与贡献，尤其是赞扬了“重型猎鹰”火箭；

2018年4月19日，参议院强行表决通过了对布里登斯汀的局长任命，后者旋即走马上任。

再联系到第二号总统航天令的发布，我们可以发现，特朗普在为商业航天谋划一个宏大的格局，用一号令推动技术发展；二号令推动机构改革；用国家航天委员会和NASA局长任命来落实干部基础。而商业航天局的成立，将为美国商业航天提供一个责任明确的推动者和保护者。可以预见，商业航天局的局长肯定是一位备受特朗普信任的、积极推动商业航天发展的人物。此人会不会从现有的各类美国商业航天产业协会中产生呢？

特朗普和美国上层之所以对商业航天如此重视和支持，主要是出于这样的认识：商业航天是美国在全球领先的新兴产业，具有强大的竞争力，能够像芯片、航空发动机一样，把其他国家远远甩在后面。

这样的认识并不是空穴来风。美国不但有强大的传统航天制造企业和运营商，在国际空间站货运合同中，还培养出了太空探索技术公司这样的新兴企业。而在NASA重返月球的新计划中，不但太空探索技术公司、比格罗航天公司将发挥骨干作用，还将有一批商业航天企业参与月球货物运输工作。这些商业航天企业的存在，是特朗普第二号总统航天令的产业基础和舆论底气。

美国显然已经把商业航天作为“Make America Great Again”的重要抓手之一。特朗普看似在推特上胡言乱语，实际工作却雷厉风行、措施到位。高手，一贯善用障眼法或避重就轻、避实就虚，而往往这种人，其实是真狠：当你忽略他或轻视他时，他已经在私底下扎扎实实地夯实着很多基础的工作。不久，我们可以预见，如果不出意外，美国商业航天将在特朗普任期内再次取得全面突破，真正成为支柱性产业。

中国商业航天

如何迎头赶上？

与美国的商业航天相比，中国的商业航天处在全面落后的态势。在工程技术、人力资源、航天器产能等方面的差距略小，在产业生态环境、政策、管理机制、民营企业的参与程度等方面的差距极为巨大。说得严重一点，和美国相比，中国的商业航天还没有走到起跑线上。如果不立即采取措施迎头赶上，差距将越拉越大，造成中国综合国力当中的一个严重短板。考虑到大航天时代的来临，这个短板如果不能解决，会使中国在未来全球竞争中处于极为被动的局面。

解决这个问题的责任，首先在于商业航天界自身。无论商业火箭公司、商业卫星公司还是航天技术应用企业，都要充分认识到自己对于产业发展乃至国家进步的责任。相关的产业领袖要勇敢地站出来，推动专业领域和社会各界重视商业航天，形成关于产业发展的共识。在此基础上，应当形成舆论和理论，充分阐述中国商业航天当前的态势、短板和急需发展的紧迫性，推动国家高层对商业航天的认识和重视。

另外，商业航天界应当自觉组织起来，起草建议，推动相关立法和政策的制定。在这当中，具有全国人民代表大会代表和全国政协委员身份的人士应当充分利用好自己的政治地位，发挥建议建言的作用，为中国商业航天的发展扫除体制上的痼疾，提供发展的可能性。

最后，我们不得不重温两弹一星元勋邓稼先的遗言：“不要让人家把我们落得太远……”

附件

特朗普第二号总统航天政策令原文

Space Policy Directive-2, Streamlining Regulations on Commercial Use of Space

INFRASTRUCTURE & TECHNOLOGY

Issued on: May 24, 2018

MEMORANDUM FOR THE VICE PRESIDENT

THE SECRETARY OF STATE

THE SECRETARY OF DEFENSE

THE SECRETARY OF COMMERCE

THE SECRETARY OF TRANSPORTATION

THE SECRETARY OF HOMELAND SECURITY

THE SECRETARY OF LABOR

THE DIRECTOR OF NATIONAL INTELLIGENCE

THE DIRECTOR OF THE OFFICE OF MANAGEMENT AND BUDGET

THE ASSISTANT TO THE PRESIDENT FOR NATIONAL SECURITY AFFAIRS

THE ADMINISTRATOR OF THE NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

THE DIRECTOR OF THE OFFICE OF SCIENCE AND TECHNOLOGY POLICY

THE ASSISTANT TO THE PRESIDENT FOR HOMELAND SECURITY AND COUNTERTERRORISM

THE CHAIRMAN OF THE JOINT CHIEFS OF STAFF

SUBJECT: Streamlining Regulations on Commercial Use of Space

Section 1. Policy. It is the policy of the executive branch to be prudent and responsible when spending taxpayer funds, and to recognize how government actions, including Federal regulations, affect private resources. It is therefore important that regulations adopted and enforced by the executive branch promote economic growth; minimize uncertainty for taxpayers, investors, and private industry; protect national security, public-safety, and foreign policy interests; and encourage American leadership in space commerce.

Sec. 2. Launch and Re-entry Licensing. (a) No later than February 1, 2019, the Secretary of Transportation shall review regulations adopted by the Department of Transportation that provide for and govern licensing of commercial space flight launch and re-entry for consistency with the policy set forth in section 1 of this memorandum and shall rescind or revise those regulations, or publish for notice and comment proposed rules rescinding or revising those regulations, as appropriate and consistent with applicable law.

(b) Consistent with the policy set forth in section 1 of this memorandum, the Secretary of Transportation shall consider the following:

(i) requiring a single license for all types of commercial space flight launch and re-entry operations; and

(ii) replacing prescriptive requirements in the commercial space flight launch and re-entry licensing process with performance-based criteria.

(c) In carrying out the review required by subsection (a) of this section, the Secretary of Transportation shall coordinate with the members of the National Space Council.

(d) The Secretary of Defense, the Secretary of Transportation, and the Administrator of the National Aeronautics and Space Administration shall coordinate to examine all existing U.S. Government requirements, standards, and policies associated with commercial space flight launch and re entry operations from Federal launch ranges and, as appropriate and consistent with applicable law, to minimize those requirements, except those necessary to protect public safety and national security, that would conflict with the efforts of the Secretary of Transportation in implementing the Secretary’s responsibilities under this section.

Sec. 3. Commercial Remote Sensing. (a) Within 90 days of the date of this memorandum, the Secretary of Commerce shall review the regulations adopted by the Department of Commerce under Title II of the Land Remote Sensing Policy Act of 1992 (51 U.S.C. 60101 et seq.) for consistency with the policy set forth in section 1 of this memorandum and shall rescind or revise those regulations, or publish for notice and comment proposed rules rescinding or revising those regulations, as appropriate and consistent with applicable law.

(b) In carrying out the review required by subsection (a) of this section, the Secretary of Commerce shall coordinate with the Secretary of State, the Secretary of Defense, the Administrator of the National Aeronautics and Space Administration, and, as appropriate, the Chairman of the Federal Communications Commission.

(c) Within 120 days of the date of the completion of the review required by subsection (a) of this section, the Secretary of Commerce, in coordination with the Secretary of State and the Secretary of Defense, shall transmit to the Director of the Office of Management and Budget a legislative proposal to encourage expansion of the licensing of commercial remote sensing activities. That proposal shall be consistent with the policy set forth in section 1 of this memorandum.

Sec. 4. Reorganization of the Department of Commerce. (a) To the extent permitted by law, the Secretary of Commerce shall consolidate in the Office of the Secretary of Commerce the responsibilities of the Department of Commerce with respect to the Department’s regulation of commercial space flight activities.

(b) Within 30 days of the date of this memorandum, the Secretary of Commerce shall transmit to the Director of the Office of Management and Budget a legislative proposal to create within the Department of Commerce an entity with primary responsibility for administering the Department’s regulation of commercial space flight activities.

Sec. 5. Radio Frequency Spectrum. (a) The Secretary of Commerce, in coordination with the Director of the Office of Science and Technology Policy, shall work with the Federal Communications Commission to ensure that Federal Government activities related to radio frequency spectrum are, to the extent permitted by law, consistent with the policy set forth in section 1 of this memorandum.

(b) Within 120 days of the date of this memorandum, the Secretary of Commerce and the Director of the Office of Science and Technology Policy, in consultation with the Chairman of the Federal Communications Commission, and in coordination with the members of the National Space Council, shall provide to the President, through the Executive Secretary of the National Space Council, a report on improving the global competitiveness of the United States space sector through radio frequency spectrum policies, regulation, and United States activities at the International Telecommunication Union and other multilateral forums.

Sec. 6. Review of Export Licensing Regulations. The Executive Secretary of the National Space Council, in coordination with the members of the National Space Council, shall:

(a) initiate a review of export licensing regulations affecting commercial space flight activity;

(b) develop recommendations to revise such regulations consistent with the policy set forth in section 1 of this memorandum and with applicable law; and

(c) submit such recommendations to the President, through the Vice President, no later than 180 days from the date of this memorandum.

Sec. 7. General Provisions. (a) Nothing in this memorandum shall be construed to impair or otherwise affect:

(i) the authority granted by law to an executive department or agency, or the head thereof; or

(ii) the functions of the Director of the Office of Management and Budget relating to budgetary, administrative, or legislative proposals.

(b) This memorandum shall be implemented consistent with applicable law and subject to the availability of appropriations.

(c) This memorandum is not intended to, and does not, create any right or benefit, substantive or procedural, enforceable at law or in equity by any party against the United States, its departments, agencies, or entities, its officers, employees, or agents, or any other person.

(d) The Secretary of Transportation is authorized and directed to publish this memorandum in the Federal Register.

DONALD J. TRUMP