In world politics, using force, blatantly offensive force in particular, rarely comes without costs.–Gil Merom
Space – The Final Frontier?
The space race from the 1950s until the end of the Cold War between the Soviet Union and the United States eventually ended in a tie. Maybe not totally a tie, but the advent of the International Space Station (ISS) and the amount of training performed at Star City just outside of Moscow by both Russians and Americans in preparation for their missions give the appearance that the former rivalry is now a cooperative event. Over the last few years, space is becoming the focus of many nations from a security perspective. Merom’s succinct summation of the cost of using offensive force is a driving reason for the new focus on space either from the standpoint of dominance or of countering other nations’ use of it.This time, instead of claiming dominance by planting a flag on the moon, the idea of controlling a domain that is still not truly understood provides a level of security impacting many areas, like the Global Positioning System (GPS), Positioning, Navigating, and Timing (PNT), and Satellite Communication (SATCOM) (Harrison et al. 2018; Weeden and Sampson 2018). And it is China and Russia that are currently leading the charge of attempting to operationalize and weaponize space to project power.
Countering the threat of the United States is a purpose both China and Russia cite as a reason to develop space and counterspace capabilities, but that is almost the default/de facto motive for any action they take. Achieving space superiority is not on par with becoming a nuclear power in terms of international recognition, but China and Russia both see gaining the upper hand in space as a way to set their nations apart from the rest of the international community. China recently declared space as a military domain. That allows China to expand its military doctrine “that the goal of space warfare and operations is to achieve space superiority using offensive and defensive means in connection with their broader strategic focus on asymmetric cost imposition, access denial, and information dominance.”( Weeden and Sampson 2018, xi). Based off of this statement, the Chinese view space as another avenue to project military power. And space, like cyberspace, is much harder to counter due to the difficulty in attribution.
Russia’s efforts to regain counterspace capability also provides a method for projecting power and is another area to show that they are back as players on the world stage. President Putin laid out four ideas for a 21st century Russia, “(1) the strong, functioning state; (2) the state-guided market economy; (3) the welfare state with attendant safety net; and (4) the state-safeguarded foreign and security policy position that provides Russia a Eurasian – and even global – leadership position.” (Willerton 2017, 211) Pursuing a program of space and counterspace options ties directly into the first and fourth idea presented by the President and could tie into the second and third if Russia is able to export technology or intellectual capital to assist other nations. The Russian perspective sees “modern warfare as a struggle over information dominance and net centric operations that can often take place in domains without clear boundaries and contiguous operating areas.” (Weeden and Sampson 2018, xii) Space falls within this definition so, if by leveraging space to conduct cyberspace or space-enabled information operations, then that provides an even larger platform that Russian targets must defend. After all, Russia has “extensive operational experience from decades of spaces operations.” (Harrison et al. 2018, 13) Although some areas of the Russian space program have atrophied since the end of the Cold War, Russia and the U.S. have maintained a partnership with civil space missions to the ISS. (Harrison et al. 2018, 13)
GPS, PNT, and SATCOM
Most nations widely use GPS and PNT for navigation and the geo-tagging of locations for official and unofficial uses. For China, GPS is how Japan maintains situational awareness in the East China Sea. (Horowitz et al. 2016, 30) If China were able to achieve control over GPS satellites, the advantage it would have over other nations would be hard to quantify. Aside from blinding or manipulating what the Japanese see in the East China Sea, commercial and military pilots rely on GPS, as do many other peoples for navigation via ships, cars or phones. Unmanned Aerial Systems, or drones, are also dependent on GPS, and many military operations use drones for communication relays. If China or Russia manipulated or jammed the link between a ground control station and the drone, then the drone could pose a threat to any airplanes or helicopters in the area. If a weaponized drone, then that capability could be used against unauthorized targets (a rogue drone) or cause chaos due to the lack of communications.
A vast majority of communications today are done by SATCOM. To control or have the ability to deny, degrade, disrupt, destroy, or manipulate any combination of GPS, PNT, and SATCOM gives a nation a huge benefit and should be cause for concern by all. Most systems were built and launched into orbit before cybersecurity became an issue. The distance from Earth to the satellites’ respective orbits provided an inherent level of assumed security, so many measures that are standard on systems today are not on satellites currently in use. Knowing the exact amount of cyber-attacks on satellites or their ground stations is unlikely as the number is either classified or nations and companies are unwilling to admit they were victims publicly. What is known is that both China and Russia are capable, competent cyber and signals intelligence(SIGINT) actors and attacks of this nature are not beyond their abilities.
A 2014 Crowd strike report linked the “People’s Liberation Army General Staff Department Third Department 12th Bureau Unit 61486 – that subset of what is ‘generally acknowledged to be China’s premiere SIGINT collection and analysis agency’ dedicated specifically to ‘supporting China’s space surveillance network.’” (Weeden and Sampson 2018, 7-7) That level of attribution is impressive in such a nebulous environment. Although not an official attribution by the United States Government, Crowd strike and other commercial threat intelligence providers’ identification and designation of threat actors are generally universally accepted as accurate.
A Russian Criminal syndicate, known as Turla, exploited satellite links to hack other targets according to Kaspersky Labs. (Weeden and Sampson 2018, 7-7) The Russian Government can claim Turla was a criminal act and not supported by Russia, but in 1998 Russian hijackers gained “control of a U.S. – German ROSAT deep-space monitoring satellite, then issued commands for it to rotate toward the sun, frying its optics and rendering it useless.”(Weeden and Sampson 2018, 7-8) These few examples demonstrate China and Russia maintain both the intent and capability to conduct operations in space.
Both China and Russia are “developing the ability to interdict satellites both from the ground standpoint and from the space standpoint” according to the Director of the Defense Intelligence Agency. (Tucker 2018) The idea of weaponizing space is enticing and terrorizing. For those nations that are able to develop and deploy technology to disrupt other satellites, a huge advantage exists. Iran, India, and Israel are among other nations seeking to develop a space or counterspace program. (Harrison et al. 2018; Weeden and Sampson 2018) None of these nations, however, is at the level of the space/counterspace programs of China, Russia, or the United States. Nor are they likely to refocus the bulk of their economies and militaries to concentrate solely on space. Much like the alliances developed as nuclear powers emerged, nations that desire space superiority or, simply wishing that the United States not be the dominant space power, may put their efforts toward aligning with a power they feel they can benefit from, even if other strategic objectives do not necessarily align. The threat presented by space does not produce the mass panic that nuclear war does, but when considering that space is the domain where missiles and communications could be jammed or re-directed resulting in an inadvertent nuclear crisis, the legitimacy and severity of threats from space become apparent.
China and Russia launched a 200 million dollar venture in 2015 whose purpose was to innovate technologies. (Harrison et al. 2018, 6) In July 2018, China sent a delegation to Russia to explore potentially building a jointly-run station based on Russian knowledge in an area China is deficient. (Russia, China 2018) Interestingly, in 2013, the European Space Agency considered making China its primary space partner, instead of the United States, “as China’s global ‘rising power’ status now extends to space.” (Johnson-Freese 2015, 91)
China’s messaging that it is serious about becoming a space power resonates with other nations and they appear ready to broker the relationships needed to achieve the goal. Russia has the technical knowledge and perhaps the upper hand in that it is a key partner on the ISS with several other nations, including the United States. If Russia and China continue with either joint ventures or Russia supplying China with expertise, it is unknown how the United States will react, since it vehemently opposes China’s inclusion on the ISS. (Johnson-Freese 2015, 95) In February 2018, the United States Director of National Intelligence identified “Russia and China as continuing to launch ‘experimental’ satellites that conduct sophisticated on-orbit activities, at least some of which are intended to advance counterspace capabilities …some technologies with peaceful applications—such as satellite inspection, refueling, and repair—can also be used against adversary spacecraft.” (Tucker 2018) The issue is on the United States radar at a high enough level that the threats presented by China and Russia were included in the 2018 Worldwide Threat Assessment of the US Intelligence Community from the Director of National Intelligence. (Coats 2018, 13) To what extent the United States will go to deter either China or Russia in space is still unknown at this time, however.
The United Nations maintains an Office for Outer Space Affairs that, among other roles, assists with space law “associated with the rules, principles, and standards of international law appearing in the five international treaties and five sets of principles governing outer space, which have been developed under the auspices of the United Nations.” (United Nations 2018) In addition to the space laws adjudicated by the United Nations, individual states have their own laws regarding the use of space. China and Russia are among those that develop national space laws. China’s 2015 National Security Law made China’s defense of interests in space legally binding and a white paper in that same year stated, “threats from such new security domains as outer space and cyberspace will be dealt with to maintain the common security of the world community.” (Weeden and Sampson 2018, 1-20). Russian National space laws listed on the United Nations website include areas covering space activity, management structure, licensing space operations, Russian Space Agency regulations, and an agreement between the Russian Federation and Cabinet Ministers of Ukraine about technical safeguards on the use of outer space. (United Nations 2018) The bulk of the Russian laws listed were written in the 1990s, with the exception of the Ukrainian agreement which is dated 2009. So, the possibility exists that these laws do not represent what the Russian Federation follows today as a national space law.
One area under that is a potential loophole for any nation is the dual-use nature of most satellites. Unless a country scrutinizes a satellite before launching it into orbit, determining the use is strictly for a defensive or offensive purpose is difficult to prove. Again, the tyranny of distance comes into play trying to establish the true nature of space-related activities. Intelligence collection methods possibly can gather the required information to identify a weapons system or counter-weapons system on a satellite schematic, but for a communications, GPS, or PNT satellite, proving its ultimate use for something more than just supporting commercial or regular military communications and navigation services is not so easy.
International and national laws are in place to ensure the freedom and safety of space for all nations. But those laws only help nations that can afford to operate in space to a certain extent. As China and Russia expand their independent efforts at becoming dominant nations in space, where Chinese-Russian joint ventures go is worth watching. How far these two nations are willing to collaborate and even become true partners in space will have lasting consequences on how other countries will or can react. The space threat is real even if it is difficult to quantify based on it being mostly an amorphous threat today. That does not mean nations are not trying to exploit seemingly ambiguous space as a domain for their own national advantages. Thus, there is no excuse for international organizations like the United Nations to be caught unaware if sometime in the near future a major power shows it has successfully turned space into a domain for waging war or projecting power.