U ban, Ka h yn
Wo king Pape
Mul i-s akeholde da a access in space-based clima e
moni o ing
CIGI Pape s, No. 299
P o ided in Coope a ion wi h:
Cen e o In e na ional Go e nance Inno a ion (CIGI), Wa e loo, On a io
Sugges ed Ci a ion: U ban, Ka h yn (2024) : Mul i-s akeholde da a access in space-based clima e
moni o ing, CIGI Pape s, No. 299, Cen e o In e na ional Go e nance Inno a ion (CIGI), Wa e loo
(On a io)
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CIGI Pape s No. 299 — Sep embe 2024
Mul i-s akeholde Da a
Access in Space-Based
Clima e Moni o ing
Ka h yn U ban
CIGI Pape s No. 299 — Sep embe 2024
Mul i-s akeholde Da a
Access in Space-Based
Clima e Moni o ing
Ka h yn U ban
Abou CIGI
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Table o Con en s
i Abou he Au ho
i Ac onyms and Abb e ia ions
1 Execu i e Summa y
1 In oduc ion
2 The Cu en S a e o Space-Based Clima e Moni o ing
4 Majo Challenges o he Exis ing Space-Based
Clima e Moni o ing Regime
5 The Need o Mul i-s akeholde Co-ope a ion on Clima e Da a Access
6 Cu en , Fu u e and Po en ial Roles o
Mili a ies in Sa elli e Da a Collec ion
10 A F amewo k o Mul i-s akeholde Clima e Da a Access
12 Po en ial Flashpoin s
14 Conclusion
15 Wo ks Ci ed
i CIGI Pape s No. 299 — Sep embe 2024 • Ka h yn U ban
Abou he Au ho
Ka h yn U ban is a Ph.D. s uden in poli ical
science a MIT, specializing in secu i y s udies
and in e na ional ela ions. He esea ch in e es s
include eme ging mili a y echnologies, s a egy
o mula ion and de ence aid. Be o e coming o
MIT, Ka h yn wo ked in US de ence policy and
academic p og amming, including as depu y
di ec o o B idging he Gap. She g adua ed
summa cum laude om Geo ge Washing on
Uni e si y wi h a B.A. in in e na ional a ai s. She
also holds a mas e ’s om Ame ican Uni e si y’s
School o In e na ional Se ice, whe e she
ecei ed he depa men ’s Academic Pe o mance
Awa d and Ou s anding Resea ch Awa d.
Ac onyms and
Abb e ia ions
CASC China Ae ospace Science and
Technology Co po a ion
CSDA Comme cial Smallsa Da a Acquisi ion
ESA Eu opean Space Agency
ISR in elligence, su eillance
and econnaissance
LEO low-Ea h o bi
MEO medium-Ea h o bi
NASA Na ional Ae onau ics and
Space Adminis a ion
NATO No h A lan ic T ea y O ganiza ion
NOAA Na ional Oceanic and
A mosphe ic Adminis a ion
NORAD No h Ame ican Ae ospace
De ense Command
1Mul i-s akeholde Da a Access in Space-Based Clima e Moni o ing
Execu i e Summa y
Da a collec ed om sa elli e image y and space-
based ins umen s is essen ial o in o ming clima e
modelling. Howe e , he e is a undamen al ension
be ween he public and p i a e en i ies, who und
and main ain mos o he da a collec ion asse s
in o bi , and he ci ilian esea che s, who seek o
use ha da a o u he ou unde s anding o a
changing clima e. This pape pu s o wa d a mul i-
s akeholde amewo k o clima e da a access,
d awing ou exis ing syne gies ac oss he public,
p i a e and scien i ic sec o s o build on cu en
clima e da a ini ia i es. This amewo k po ends
a leading ole o de ence ac o s owing o da a
equi emen s ha mi o gaps in cu en esea che
clima e da a access. The pape concludes wi h
highligh ing po en ial lashpoin s in implemen ing
he amewo k and makes ecommenda ions o
alle ia ing he conce ns o key s akeholde s.
In oduc ion
Ea h is elying on he b igh es scien i ic minds
o ack he impac s o clima e change, p o ide
ample wa ning o impending na u al disas e s and
de ise solu ions o mi iga ing he wo s e ec s
o global wa ming and adap a ion s a egies o
una oidable ou comes. Bu he answe s ha
esea che s a e able o deli e hinge on he quali y
o da a used in modelling and analysis. The e is
a majo disconnec be ween he in e es s o he
go e nmen and comme cial ac o s who ope a e
mos clima e da a collec ion asse s, and he
ci ilian esea che s who seek access o ha da a.
B idging his owne -use gap means scien is s a e
wo king wi h long lag imes be ween collec ion and
publica ion, pa chy da a co e age and compe ing
p io i ies among collec ion o ganiza ions. Nowhe e
is his disjoin mo e keenly el han in space-
based da a collec ion. Ou e space is one o he key
domains o ac ionable clima e da a and is made
up o asse s ha a e p ohibi i ely expensi e o
mos esea che s. Scien is s a e he e o e en i ely
elian on he limi ed body o clima e da a egula ly
eleased by go e nmen sa elli e ope a o s.
The s a us quo s a e o clima e da a access is no
commensu a e o he inc eased demands being
made o he scien i ic communi y. As esea che s
a e asked o de ise solu ions o sa e a plane acing
eco d le els o hea and sea le el ise, issues o
i egula da a co e age, poo sa elli e image y
esolu ion and es ic ions on p ocessing powe
ep esen impo an limi a ions. Bu hese a e
also challenges wi h ela i ely low-cos and low-
e o solu ions. A comp ehensi e ed ess plan o
hese da a access challenges is he e o e a clima e
ini ia i e wi h one o he bes payo a ios.
This pape pu s o wa d a mul i-s akeholde
amewo k o clima e da a moni o ing, p oposing
a whole-o -go e nmen app oach o collec ing,
e iewing and eleasing sa elli e da a on clima e
indica o s ha co e s da a ga he ed bo h
in en ionally and inciden ally. This amewo k
ca es ou con inued lines o e o o go e nmen
scien i ic agencies, ad iso y oles o ci ilian
esea che s and supplemen a y p og ams by which
p op ie a y in o ma ion om comme cial sa elli e
ac o s can be b ough in o na ional eposi o ies
o clima e da a. The mos impo an imp o emen
o e exis ing go e nmen clima e da a collec ion
e o s, howe e , is a lead ole o he de ence
sec o . Mili a y and in elligence agencies a e no
only majo exis ing ope a o s o sa elli es and
o he space-based asse s, bu hei da a collec ion
needs also ep esen c ucial complemen s
o hose o ci ilian clima e esea che s.
The implemen a ion o his amewo k should no
be aken up ligh ly. The e a e immense secu i y
implica ions associa ed wi h eleasing da a
collec ed by mili a y and in elligence agencies,
and app op ia e p ecau ions mus be aken bo h
o secu e buy-in om de ence ac o s and o ensu e
ha clima e da a e o s do no comp omise
na ional secu i y p io i ies. Ne e heless, mili a y
and in elligence agencies ha e gene ally played
a limi ed ole hus a in li ing up o na ional
commi men s o clima e change alle ia ion
and eadiness. This p oposal ep esen s an
oppo uni y o hese ac o s o bea ou he o ic on
clima e change as a na ional secu i y p io i y by
mi iga ing he da a access p oblems ha cu en ly
plague space-based da a collec ion ini ia i es.
In o de o lay he g oundwo k o hese policy
p oposals, his pape p oceeds in six pa s. The
i s sec ion, “The Cu en S a e o Space-Based
Clima e Moni o ing,” de ails he ole space-based
da a plays in clima e esea ch, ou lines he majo
ac o s esponsible o cu en sa elli e collec ion
o clima e da a and desc ibes cu en da a-sha ing
2CIGI Pape s No. 299 — Sep embe 2024 • Ka h yn U ban
p ac ices be ween he public sec o and scien i ic
communi ies. The second sec ion, “Majo
Challenges o he Exis ing Space-Based Clima e
Moni o ing Regime,” highligh s p essing a eas o
imp o emen in he space-collec ed da a cu en ly
a ailable o esea che s. The hi d sec ion, “The
Need o Mul i-s akeholde Co-ope a ion on Clima e
Da a Access,” desc ibes he cu en alloca ion o
da a collec ion sa elli e capabili ies and de ails
di icul ies in c oss-sec o al collabo a ion. The
ou h sec ion, “Cu en , Fu u e and Po en ial
Roles o Mili a ies in Sa elli e Da a Collec ion,”
add esses ajec o ies in he de ence sec o ’s use
o space-based da a collec ion asse s and poin s o
majo syne gies be ween mili a y and in elligence
agencies’ da a equi emen s and hose o ci ilian
clima e esea che s. The i h sec ion, “A F amewo k
o Mul i-s akeholde Clima e Da a Access,” o e s
speci ic ecommenda ions o how ci ilian and
mili a y go e nmen ac o s can e ec i ely engage
esea che s and comme cial sa elli e i ms o
p o ide da a on p essing clima e indica o s. The
six h and inal sec ion, “Po en ial Flashpoin s,”
an icipa es challenges in implemen ing he
amewo k and o e s solu ions o alle ia ing hem.
The Cu en S a e o
Space-Based Clima e
Moni o ing
Space-collec ed da a plays a majo ole in modelling
he ongoing e ec s o clima e change ac oss
he globe. Bu he e is a disconnec be ween
he public ac o s, who und mos o he da a-
collec ion space asse s in o bi , and he ci ilian
scien is s, who d aw on ha da a o p oduce obus
esea ch. Unde s anding he poli ics o clima e
da a collec ion he e o e equi es a su ey o he
ield o he ypes o space-collec ed da a used in
clima e esea ch, he p ima y ac o s who pu sue
ha da a collec ion and agg ega ion and exis ing
policies on sha ing clima e da a ac oss sec o s.
Role o Space-Based Da a
Collec ion in Clima e Science
Good da a is key o how scien is s unde s and
he p og ession and ami ica ions o clima e
change. A e all, acco ding o John E. Ku zbach,
“One golden obse a ion is wo h a housand
simula ions” (Ku zbach 1988, 5). Resea che s d aw
on a a ie y o Ea h-based moni o ing sys ems
o ob ain da a, including om wea he s a ions,
buoys and soil samples. Bu mo e han hal o he
Essen ial Clima e Va iables — he key indica o s
o clima e change — can be ob ained h ough
space-based moni o ing. Sa elli e imaging and
da a om space-based sys ems a e he e o e
an essen ial componen o clima e esea ch.
The ull b ead h o uses o space-based da a in
clima e esea ch is impossible o cap u e he e.
Bu among he mos common applica ions a e:
→ a mosphe ic obse a ions o measu e
g eenhouse gas emissions;
→ adiome e da a calcula ing he amoun o
ene gy adia ing om Ea h and he empe a u e
o he land and sea su aces, acking hea wa es
and small changes in clima e empe a u e;
→ emo e sensing o wind speeds and sa elli e
imaging o ack he scale, cou se and ex en o
se e e wea he pa e ns and looding;
→ sca e ome e obse a ions o measu e su ace
soil mois u e le els, p o iding insigh in o
po en ial d ough condi ions;
→ sa elli e imaging o ack glacie e ea and
emo e sensing o moni o sea-le el changes
wi h up o a millime e o p ecision;
→ mic owa e adiome e da a and images o c ea e
a digi al pic u e o Ea h’s su ace, di e en ia ing
be ween land, wa e and ice and moni o ing
changes in su ace composi ion;
→ ada and lase al ime y o measu e he
hickness o sea ice, deli e ing highly p ecise
da a e en ac oss spo s o une en mel ing o
ough e ain; and
→ sa elli e imaging o ack he bu n pa e ns and
smoke pollu ion om wild i es and o moni o
de o es a ion.
Mos space-based da a collec ion ini ia i es ely
on sa elli es: imaging equipmen and scien i ic
measu emen ools a e moun ed o he ou e
shell o sa elli es ha hen ga he da a du ing an
o bi pa h and ansmi his da a back o Ea h
o be ecei ed by an ennae a g ound s a ions.
La ge ou e space ins alla ions such as he
In e na ional Space S a ion also house scien i ic
ins umen s ha collec and ansmi da a.
9Mul i-s akeholde Da a Access in Space-Based Clima e Moni o ing
and De elopmen Canada exe cise in he A c ic
expe imen ed wi h accessing small comme cial
sa elli es o imaging o he ships ha pa icipa ed
in he exe cises, as well as da a o ma ine au oma ic
iden i ica ion sys em messages. The exe cise aimed
a e alua ing how da a om p i a e i ms could
educe he ime o collec ing, p ocessing and
ac ing upon ele an in o ma ion in he e en o a
eal mili a y c isis (Go e nmen o Canada 2024).
Beyond he clima e space speci ically, secu i y
ac o s lean on comme cial agen s o p ocu e
access o sa elli e da a. This may be ca ied ou
h ough di ec con ac ing, pu chasing comme cial
da a wi h exclusi e igh s and pu chasing
comme cial da a wi h un es ic ed usage igh s.
Each channel is add essed below in u n.
Mili a y and in elligence agencies may con ac
wi h sa elli e p o ide s o und speci ic p ojec s
ca ied ou wi h comme cial asse s. O dina ily,
con ac o s will design o upda e sa elli e asse s,
launch hem and hen coo dina e da a ga he ing
speci ically o accommoda e secu i y ac o s’
equi emen s. The sa elli e con ac o indus y has
boomed in ecen yea s, as mili a ies pou hund eds
o millions o dolla s in o such p og ams. This also
means ha con ac ed p og ams can be subjec
o compa able secu i y equi emen s as ha o
in-house go e nmen missions: secu i y ac o s
e ain he igh s o sc een pe sonnel wo king on
he p ojec and can classi y any collec ed da a.
Fi ms in his space include es ablished mili a y
con ac o s such as Ray heon and No h op
G umman ha also ope a e in non-ou e space
domains; companies such as SES Space &
De ense and In elsa ha es ablished hemsel es
speci ically o mili a y space con ac s; and
companies such as Boeing, Ai bus and SpaceX
ha ac as bo h mili a y con ac o s and ma ke -
o ien ed comme cial en i ies (E win 2023).
An al e na i e o con ac ing ou en i e space
ope a ions is he selec i e pu chase o sa elli e da a
collec ed by comme cial i ms. Secu i y ac o s ha e
he op ion o buying speci ic ele an pieces o da a
on an exclusi e basis — which is ma kedly mo e
expensi e bu p ecludes o he ac o s om accessing
he same in o ma ion — on a non-exclusi e basis,
in which a mili a y o in elligence agency is jus
one o many buye s. Some comme cial sa elli e
i ms also o e subsc ip ion models o cus ome s
o access hei en i e ca alogue o da a, usually
on a non-exclusi e basis. Go e nmen secu i y
p o ocols and acquisi ion es ic ions ha e
his o ically been ba ie s o mili a y o in elligence
agencies pu chasing comme cial da a (Ha ison
and S ohmeye 2022), hough ha is beginning o
change (Coope 2024). No only is pu chasing o -
he-shel da a a cos -sa ings measu e, bu ha ing
access o in o ma ion lows no publicly associa ed
wi h secu i y ac o s also inc eases hei esiliency
in case o a ack on na ional sa elli e in as uc u e.
One end d i ing mili a y and in elligence
ac o s’ eliance on he p i a e sec o is simply he
inc eased demand o sa elli e da a. Con ac ing
and da a acquisi ion emains much cheape han
independen sa elli e launches and in o ma ion
can be mo e eadily p ocu ed. Ano he end wo h
no ing is he ising agmen a ion o he comme cial
sa elli e ma ke . As he numbe o i ms ope a ing
in ou e space has g own exponen ially, i ms a e
able o emain p o i able while deli e ing ex emely
na ow ypes o da a (Pa ia ca, Cos an ino and Di
G a io 2019). This ensu es ha secu i y ac o s can
bid o e y specialized in o ma ion. I also means
ha any ype o coo dina ed e o on clima e
da a access mus necessa ily be s a e d i en,
since he e a e so many dispa a e in e es s and
capabili ies ep esen ed in he comme cial space.
A F amewo k o
Mul i-s akeholde Clima e
Da a Access
Gi en ha ci ilian esea che s a e acing se ious
sho alls in hei exis ing access o space-collec ed
clima e da a and ha de ence ac o s ha e a unique
syne gy o ha dwa e capabili ies and human
capi al o ill hose gaps, an e ec i e amewo k
o clima e da a access necessi a es a whole-o -
go e nmen app oach wi h a mo e limi ed ole o
he comme cial sec o . This sec ion ou lines he
essen ial ene s o such a amewo k and poin s
o le e age buy-in om ele an s akeholde s.
Essen ial Tene s o he F amewo k
Whole-o -Go e nmen Commi men o Clima e
Da a Re iew and Release
Al hough i may no be easible o consis en ly
edi ec mili a y and in elligence sa elli es owa d
10 CIGI Pape s No. 299 — Sep embe 2024 • Ka h yn U ban
clima e objec i es, he inciden al da a collec ed
by hese asse s could be o eno mous impo ance
o ci ilian esea che s. The i s key ene o he
amewo k is he e o e a whole-o -go e nmen
commi men o e iewing he da a ou inely
collec ed by space-based asse s and eleasing
in o ma ion wi h clima e ele ance o he ex en
allowable by na ional secu i y. This necessi a es
he es ablishmen o sa elli e da a e iew o ices
wi hin he de ence es ablishmen s o majo sa elli e
ope a o s such as he Uni ed S a es, Canada,
China and he Eu opean Union. I will ce ainly
be necessa y o da a e iew p ocesses o sc ub
some in o ma ion om he collec ed da a o
p e en comp omising ongoing mili a y ope a ions.
Howe e , e iewe s should be app ised o he
scien i ic alue o collec ion de ails such as p ecise
collec ion da es, imes and loca ions, and should
s i e o main ain comple e eco ds o such da a
poin s as much as possible. S a e ac o s should
also ollow Canada’s example in es ablishing a
single na ional po al h ough which o elease da a
om all go e nmen o ices, maximizing he ease
o access and analysis o ci ilian esea che s.
Oppo uni ies o Ci ilian Resea che s o
Weigh in on Collec ion P io i ies
A second ene o he amewo k is gi ing
clima e esea che s oppo uni ies o engage wi h
go e nmen ac o s in oicing hei p io i ies
o da a access. A mul ila e al body such as
he UN Clima e Change o ice may be a na u al
in e media y o hos egula con oca ions o
op clima e scien is s om a ound he wo ld o
assemble lis s o clima e da a p io i ies o be passed
along o go e nmen ac o s. Fo eme gency clima e
da a access, such as o ack apidly sp eading
wild i es o an impending supe -s o m, his body
o scien is s may pe i ion s a e ac o s o launch o
e- ou e sa elli e asse s o speci ically collec he
needed da a. Fo ou ine clima e da a eques s, he
amewo k should es ablish a egula p ocess by
which ci ilian scien is s can eques da a collec ion
ins umen s be embedded on go e nmen o
comme cial sa elli es wi h compa able o bi pa hs.
In es ing in his on-o bi se icing, assembly and
manu ac u ing app oach by which da a collec ion
ins umen s can be added o sa elli es al eady in
o bi a he han e u ning hem o Ea h means
ha moni o ing capabili ies can be a ached
a minimal cos , can be acked on as sa elli es
app oach a bene icial o bi pa e n wi h minimal
de ia ions, and can be eplaced wi h he mos up-
o-da e moni o ing echnologies as hey become
a ailable. The da a collec ed by ci ilian-placed
ins umen s would also be subjec o go e nmen
e iew, pa icula ly o hose moun ed o de ence
asse s. Bu gi ing ci ilian scien is s access o da a
collec ed by hei chosen ins umen s along an
op imized o bi pa h o e s esea che s g ea e
buy-in o he da a collec ion p ocess, imp o es
he quali y o esul ing schola ship, and does so
a minimal cos o s a e sa elli e ope a o s.
Es ablishmen o Robus Boun y P og ams o
Comme cial Clima e Da a
A inal ene o he amewo k is he es ablishmen
(o expansion) o go e nmen boun y p og ams
o buy p op ie a y da a om comme cial
sa elli e p o ide s ha has ele ance o clima e
indica o s. This ep esen s an addi ional means
by which s a e ac o s can mee he clima e
da a p io i ies se o h by esea che s, should
go e nmen sa elli es be unable o p o ide he
needed da a. Comme cial ac o s may ag ee
o eely p o ide in o ma ion in he case o
clima e eme gencies, as in exis ing ag eemen s
o p i a e sa elli e ope a o s o sha e da a on
imminen h ea s o space asse s wi h na ional
in elligence agencies (E win 2023). O he wise,
s a es should expec o p o ide compensa ion
o p i a e ac o s o hei da a, using ini ia i es
such as NASA’s CSDA p og am as a empla e.
S uc u e and Au ho i y
o he F amewo k
Ideally, a mul i-s akeholde amewo k o clima e
da a sha ing would be implemen ed a he global
le el wi h a UN agency as coo dina o . Howe e , i
is unlikely ha such a mul ina ional e o would
include ull buy-in om all s a es wi h na ional
sa elli e asse s. The Uni ed S a es, Russia, and China
ha e an ex ensi e ack eco d o disag eemen and
mis us su ounding bo h clima e issues and ou e
space go e nance. Ra he han expec ha all h ee
powe s would back an agenda o co-ope a ion
on bo h con en ious issues, he amewo k is bes
implemen ed wi hin exis ing s a e pa ne ships.
One a ea ha may bene i om pilo ing he
amewo k is he A c ic. This is a space o g ea
in e es o clima e esea che s, bu wi h ela i ely
limi ed comme cial sa elli e da a co e age.
Mili a ies, howe e , a e in es ing hea ily in bo h
land-based and space-based A c ic obse a ion
capabili ies. The A c ic Council is a p omising
11Mul i-s akeholde Da a Access in Space-Based Clima e Moni o ing
ins i u ional acili a o o his amewo k o
se e al easons: I has a long ack eco d o
coo dina ing mul ila e al co-ope a ion, including
on sa elli e obse a ion; i al eady coo dina es
wi h scien is s wo king on clima e p o ec ion
and esiliency ini ia i es; and al hough he A c ic
Council explici ly excludes wo k on mili a y issues,
he e is p eceden o secu i y ac o s being in ol ed
in co-ope a ion a ound sea ch and escue and
o he human secu i y issues. The A c ic he e o e
ep esen s he case in which a co-ope a i e
amewo k o clima e da a sha ing could be
bo h mos use ul and mos easily accep ed.
Should he e o s yield p omising esul s in he
Fa No h, go e nmen s may be incen i ized o
expand he amewo k’s co e age elsewhe e.
S akeholde Buy-In
The e is li le eason o ci ilian esea che s
o comme cial ac o s o ejec he p oposed
amewo k. The scien i ic communi y gains
access o be e clima e da a, p ocessing and
agg ega ion assis ance, and oppo uni ies o
mo e di ec pa icipa ion in se ing moni o ing
p io i ies. P i a e i ms ha e limi ed da a epo ing
obliga ions ou side o eme gency ci cums ances
and he e o e ha e he oppo uni y o p o i o
o go e nmen boun ies o da a hey may be
collec ing inciden ally. This e enue channel
becomes pa icula ly a ac i e i go e nmen
ac o s ec ui likely sa elli e endo s ins ead o
elying exclusi ely on eques s o p oposals.
E en ci ilian go e nmen ac o s should ind
he p oposed amewo k a ac i e. Beyond
he esou cing equi emen s associa ed wi h
uni ied na ional po als o clima e da a access,
he amewo k does no ask scien i ic esea ch
agencies o do much mo e han hey a e al eady
doing. The unding and pe sonnel sac i ice hese
agencies a e asked o make emain closely ied
o hei co e mission o scien i ic disco e y.
The s akeholde mos likely o esis he
amewo k, he e o e, is he de ence sec o .
Mili a y and in elligence agencies in mos
coun ies ha e had a limi ed ole o play in na ional
clima e policies, o he han building esiliency
in o mili a y ope a ions. Howe e , NATO (NATO
2023), he Uni ed S a es (Ga amone 2023b),
Canada (B onskill 2023) and he Eu opean Union (
Eu opean Commission 2023) ha e all issued o icial
s a emen s calling clima e change a na ional o
mul ila e al secu i y h ea . The seeming disconnec
be ween hese s a emen s and he subsequen lack
o ac ion has opened up de ence ac o s o c i icisms
o hypoc isy in hei clima e policies. Mili a ies a e
equen ly ci ed as majo pollu e s, wi h he global
mili a y oo p in es ima ed o be esponsible o
5.5 pe cen o g eenhouse gas emissions and he
Uni ed S a es mili a y poin ed o as he globe’s
single la ges consume o pe oleum (De la Ga za
2022). The Uni ed S a es mili a y’s Clima e Ac ion
Plan and simila e o s a e c i icized as g asping
a low-hanging ui such as in as uc u e
ini ia i es by he A my Co ps o Enginee s (Mye s
2022). And mili a y ac o s ha e i ually en i ely
igno ed calls o “supplemen ongoing da a-
d i en e o s” in clima e communi ies (Bes e
al. 2023) and egula ly sha e “in o ma ion ela ed
o clima e change impac s and adap a ion”
(Uni ed Na ions 2015, 11), e en among signa o y
s a es o he Pa is Clima e Acco ds bound by
p o isions o s a e pa icipa ion in “s eng hening
scien i ic knowledge on clima e” (ibid., 6).
Pa icipa ing in he p oposed mul i-s akeholde
amewo k o clima e da a access gi es de ence
ac o s a means o add essing c i icisms ha
hey ha e shi ked e o s o expand he scope
o mili a y missions o add ess he h ea s
p esen ed by clima e change. Bu his is no an
ins ance o cheap alk. B inging he de ence sec o
in o he amewo k would add ess impo an
sho comings in he exis ing quali y and
a ailabili y o clima e da a and would go a long
way owa d imp o ing clima e modelling and
adap a ion and mi iga ion esea ch. Fu he mo e,
he amewo k p io i izes exis ing capabili ies
and alen o minimize he esou ce ou lays o
bu eauc a ic eo ganiza ion asked o go e nmen s.
Po en ial Flashpoin s
A mul i-s akeholde amewo k o space-based
clima e da a collec ion is a ela i ely low-cos
and low-e o way o go e nmen s o ad ance
c i ical clima e esea ch and demons a e hei
commi men o clima e secu i y. Bu despi e
clea bene i s o s a es, comme cial ac o s and
he scien i ic communi y, implemen ing such
a amewo k will no be wi hou con o e sy.
D awing on con empo a y deba es a ound
clima e poli ics and sa elli e da a, he ollowing
a e an icipa ed challenges ha could h ea en he
12 CIGI Pape s No. 299 — Sep embe 2024 • Ka h yn U ban
ini ia i e, as well as p oposals o amelio a ing
hem, ocusing p ima ily on issues ha could be o
majo conce n o mili a y and in elligence agencies,
as he ac o wi h he leas inhe en buy-in.
Go e nmen Fea s o
Na ional Secu i y Risks
Mili a y and in elligence ac o s a e unde s andably
hesi an o elease in o ma ion collec ed as pa o
classi ied ope a ions o ea o ad e sa ies gleaning
insigh in o o hcoming o eign policy o na ional
secu i y e o s. De ence ac o s a e no o iously
plagued by o e -classi ica ion p oblems due o
ea ha e en seemingly innocuous in o ma ion
could la e be weaponized by ad e sa ies. Such
esis ance would likely be magni ied in his
ins ance, since clima e change ends o be classi ied
as a human secu i y challenge as opposed o he
ha d secu i y issues on which mili a y ac o s
usually ocus. S a e ac o s would ob iously
need o e collec ed da a in o de o emo e
obse a ions ha pe ain o ongoing mili a y
ope a ions, iden i ying in elligence asse s o da a
ha could o he wise damage na ional secu i y.
Howe e , secu i y ac o s may emain ea ul ha
comp omising in o ma ion could slip pas censo s.
The e a e se e al easons o belie e ha he
sa elli e-collec ed da a ha would be eleased as
pa o he mul i-s akeholde amewo k would
ha e a negligible isk o comp omising na ional
secu i y. Fi s , clima e scien is s ha e li le use o
high- esolu ion images o o eign mili a y bases
o weapons ins alla ions. The da a ha would be
aluable o hese ci ilian ac o s is inciden al o
mili a y a ge s — images and ins umen eadou s
collec ed du ing he no mal cou se o sa elli e
o bi . Second, mos o he sa elli e-collec ed da a
ha is cu en ly a ailable om ci ilian agencies
is no published in i s aw o m. These s a e
analys s ins ead de o e pe sonnel and esou ces
o agg ega ing aw da a in o da abases ha a e
less compu a ionally in ensi e and in so wa e
eadable o ma s. Ce ain pieces o in o ma ion
collec ed om mili a y and in elligence sa elli es,
such as high- esolu ion images o sea ice, would
be aluable o esea che s. Bu agg ega ing he
majo i y o da a p io o public elease u he
shields esea ch consume s om po en ially
sensi i e in o ma ion and minimizes seepage
o comp omising de ails due o human e o .
I i is highly unlikely ha clima e da a published
by mili a y and in elligence agencies will be
damaging o na ional secu i y, hen he only o he
po en ial isk is ha he eleased da a would
e eal classi ied sa elli e o bi s and he e o e he
a ge s o in e es o s a e secu i y ac o s. This
is no an insigni ican isk, bu i is one ha is
al eady null. I is challenging o shield he p esence
and pa h o sa elli es o he simple eason ha
space is anspa en . Nume ous websi es exis
o ama eu as onome s o moni o he p og ess
o di e en sa elli es and make educa ed guesses
a he pu pose and na ional o igin o each due o
dis inc i e design ea u es and o bi pa e ns.
Cybe secu i y
Cybe secu i y is an ongoing conce n o he
mili a y and in elligence agencies ha ely on
sa elli es o c i ical in o ma ion. Cybe incu sions
om an ad e sa y isk comp omising da a
elays o Ea h, aking down expensi e pieces
o ha dwa e o causing collisions wi h o he
space-based equipmen . And while go e nmen
ac o s a e p io i izing obus de ences agains
cybe ulne abili ies (Gedeon 2023), comme cial
ac o s — especially hose ha p o i o o small,
low-cos sa elli es in LEO — ha e la gely ailed
o engage in cybe conce ns. Gi en he lax
egula o y equi emen s on p i a e i ms o p o ec
agains malicious cybe incu sions (Ve co 2021),
he e is li le incen i e o comme cial sa elli e
ac o s o do so going o wa d. Go e nmen s
may he e o e be conce ned abou deepening
in ol emen wi h p i a e sa elli e i ms i such
pa ne ships isk b inging go e nmen sys ems
in o con ac wi h malwa e o comp omised da a.
Incommensu able cybe secu i y s anda ds
ep esen a challenge, bu no an insu moun able
one. Mos s a es al eady ha e p o ocols in place
o engagemen wi h he p i a e sec o , o ei he
long- e m con ac s o one-o se ices o bo h.
NASA’s CSDA p og am could ac as a empla e o
pu ing in place secu i y p o ocols on ex e nal
sa elli e da a. Al e na i ely, s a e ac o s may ely
on ex ensi e so wa e scanning o o -ne wo k
in o ma ion sys ems o handle any suspicious iles.
Resou cing
Go e nmen spending is a e lec ion o s a e
p io i ies. Implemen ing a whole-o -go e nmen
commi men o clima e da a collec ion and
dis ibu ion he e o e ep esen s an oppo uni y
cos o p io i izing o he domes ic p og ams.
Funding would ce ainly be a s icking poin
o many go e nmen s. One ad an age o his
13Mul i-s akeholde Da a Access in Space-Based Clima e Moni o ing
p oposal is ha clima e da a collec ion makes use
o he ma e ial and human esou ces ha many
s a es cu en ly ely on o o he pu poses. The
addi ional cos s in ol ed o p i a e i ms and
ci ilian esea che s o da a e iew and ou each
a e ela i ely minimal; i is he e o e low isk o
s a es seeking o deli e on hei commi men
o clima e change as a secu i y p io i y. S a es
could also in oke p inciples ensh ined in he
Ou e Space T ea y o UN P inciples Rela ing o
Remo e Sensing o he Ea h om Ou e Space,
bo h o which commi go e nmen s o ca ying ou
ac i i ies in space o he bene i o all humankind.
Despi e hei eliance on exis ing capabili ies and
he i ue-signalling ad an ages o pa icipa ing
in he amewo k, some s a es wi h signi ican
go e nmen sa elli e usage will likely e use. The e
is no easonable way o compel hese s a es o
pa icipa e, bu pa icipan go e nmen s pu ing
p essu e on hei allies and secu i y pa ne s may
be a s a ing poin . The in ol emen o ci ilian
esea che s could also be a bene i in his ega d,
since hei posi ion as in ellec ual eli es may ca y
weigh in lobbying hei home go e nmen s o
public access o s a e-collec ed clima e da a.
Poli iciza ion o Clima e
Da a Collec ion
Clima e change is al eady a poli icized opic in
many s a es, spa king ongoing deba es among
na ional leade s abou he scale o i s impac , he
ole o humans in causing i , he deg ee o which
he s a e should be in ol ed in i s mi iga ion and
adap a ion and he global balance o esponsibili y
o i — and o add essing i s consequences. The e
is he e o e a isk ha implemen ing a whole-o -
go e nmen app oach o collec ing and dis ibu ing
clima e da a could c ea e poli ical backlash.
Opposi ion leade s may co-op such ini ia i es
as a poli ical alking poin . The p og am could
also ace a iabili y ac oss adminis a ions, wi h
sympa he ic poli icians bols e ing suppo only o
ace de unding as a new leade comes o powe .
One sou ce o op imism is ha clima e da a
collec ion is a ela i ely echnical ma e : a na ional
leade o poli ical candida e looking o ake aim
a clima e ini ia i es would likely begin wi h
mo e ob ious a ge s, such as deca boniza ion.
The bes de ence agains poli iciza ion is he e o e
keeping he amewo k as a echnical ini ia i e.
Go e nmen s and ci izens should lobby o b ing
on boa d a di e se se o sa elli e-ope a ing
s a es. Howe e , de ails o he amewo k should
be nego ia ed wi hin he p o essional ci cles o
mul ila e al ins i u ions and secu i y pa ne ships
and ad oca ed o by he scien is s who seek da a
access. I is no an issue ha should be pu o wa d
by na ional leade s as a hallma k o in e na ional
clima e acco ds, used as le e age in clima e
ba gaining be ween he Global No h (which
launches he g ea es p opo ion o go e nmen
sa elli es) and he Global Sou h o hamme ed
as a poli ical alking poin in na ional deba es.
P e en ing clima e da a collec ion om becoming
a ho -bu on poli ical opic can insula e i om
a a iabili y o suppo wi h changes in na ional
poli ics and p e en i om becoming an a i ion
a ge when go e nmen esou ces a e cons ained.
Conclusion
The u gency o add essing clima e change demands
a cohesi e and p oac i e app oach o clima e
modelling. Ye he cu en s a e o sa elli e da a
collec ion and dissemina ion p esen s signi ican
challenges o e ec i e scien i ic en e p ises.
This pape has explo ed he cons ain s o he
exis ing da a-sha ing egime d i en by ci ilian
scien i ic agencies, assessed he ole a ious
sec o al s akeholde s can play in imp o ing
clima e da a, pu o wa d an ini ial mul i-
s akeholde amewo k p io i izing high-quali y
da a o he ype no mally collec ed by he de ence
sec o and closed wi h ecommenda ions o
implemen ing his amewo k wi h ull buy-in.
Ou e space has long been hailed as a domain o
co-ope a ion anscending di isions he e on Ea h.
As he plane aces impending clima e ca as ophes,
he need o such co-ope a ion is mo e impo an
han e e . This mul i-s akeholde amewo k o
clima e da a access is a ela i ely low-cos and
low-e o ini ia i e ha could lay he g oundwo k
o u u e co-ope a ion ac oss sec o s. Le e aging
such poin s o common cause ep esen s he
undamen al e hos o he ideal o he inal on ie .
14 CIGI Pape s No. 299 — Sep embe 2024 • Ka h yn U ban
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