Memorandum 76
Submission from the Ministry of Defence
EXECUTIVE SUMMARY
1. The Ministry of Defence (MOD) as a whole
is re-evaluating its approach to space in the light of the Defence
Industrial Strategy (DIS) and the Defence Technology Strategy
(DTS). While currently primarily a consumer of commercial services
its aspiration is to engage fully with UK industry and academia
particularly in the provision of niche capability. The Assistant
Chief of the Air Staff has recently been nominated as small satellite
champion with the intention of leveraging a UK lead in this important
capability.
2. Overall, the MOD seeks to have sufficient
assured access to space-based capability to maximise and sustain
military effectiveness across Defence. Indeed, the MOD believes
that the importance of space in the prosecution of the UK's military
operations will continue to increase. The MOD makes extensive
use of both military and commercial satellite communications.
The Department is also fortunate to have a privileged relationship
with the US in the exploitation of space capability, particularly
in relation to satellite imagery.
3. As an Executive Agency of MOD, the Met
Office is one of the UK's primary users of high quality satellite
data which plays an essential role in operational meteorology
and climate research. The Met Office maintains a user-driven,
collaborative approach to the provision of data, both within Europe
and internationally. In line with the MOD's forecast as a whole,
demand for data, in particular for climate monitoring purposes,
is growing significantly and continued protection of key radio
frequencies is vital. The Met Office continues to participate
in international initiatives and research activities designed
to maximise the benefit we derive from space data on behalf of
the wider UK community.
4. The DIS explains where MOD is currently
taking forward space-based capability in communications. It also
sets out broad principles that will deliver improvements in long-term
planning for capability, through greater interaction between MOD,
defence industries and academia and by promoting innovation in
science and technology that will enable coherence in Defence spend
across Research & Development (R&D), procurement and support.
The resultant review of the MOD approach to R&D is set out
in the DTS. This recognises that space-related capability represents
a key area for development of priority technologies in order to
maintain a leading edge in Earth Observation for intelligence,
meteorological forecasting and climatology purposes.[12]
It also reflects the value of continued international collaboration
in exchange of space-derived data. The DTS identifies priorities
within the development, design and payload integration of small
satellites[13]
and it recognises the requirement for MOD to support the UK and
European satellite manufacture industries, noting that consideration
must be given to including aspects of space-related capability
in the 2007-08 Defence research programme.
5. Working with industry and academia provides
the opportunity for the MOD to pool resources in order to achieve
its space policy objectives. The leverage provided by this approach
enables the MOD to maximise its use of resource in this increasingly
vital sphere.
MILITARY SPACE
ACTIVITY IN
THE UK
6. The important role of access to space
and space-enabled systems in the conduct of UK Military Operations
is set out in the Future Air and Space Operational Concept (FASOC).
The FASOC describes how space-based capabilities increasingly
influence and dominate every aspect of life, most notably with
regard to communications and data-stream technologies. Recent
operations in Iraq have confirmed that a coherent, structured
approach to space capability enhances operational effectiveness
and increases operational tempo, security and agility. The growth
in capacity and use of satellite communications has been rapid.
For example, during Operation DESERT STORM, a force of 542,000
exploited 99 megabits per second of bandwidth available; however,
during Operation IRAQI FREEDOM (OIF) a reduced force of some 350,000
had 3,200 megabits per second of bandwidth allocated. This allowed
unprecedented shared situational awareness, enabled synchronised
engagements, and allowed operational and tactical commanders to
implement sophisticated campaign plans based on lethality, boldness
and speed of manoeuvre. The FASOC is subject to scrutiny in an
annual RAF-led war-gaming exercise.
7. The MOD, therefore, seeks freedom of
action in space to legally exploit space-based capabilities for
military purposes. The MOD sees space situational awareness as
fundamental to any freedom of action in space. A Recognised Space
Picture (RSP) is central to this freedom, and the MOD draws on
a range of sources, including RAF Fylingdales, to compile the
RSP.
8. The UK is fortunate in its privileged
relationship with the US in the exploitation of space capability.
However, many details of this relationship are classified and
can not be discussed in open forum. The MOD remains committed
to the Global Positioning System (GPS), which is also the NATO
standard, to meet all of our military precision navigation and
timing needs.
PARTNERSHIPS IN
DEFENCE
9. The MOD makes extensive use of both military
and commercial satellite communications. The DIS sets out how
space-based capability is currently being taken forward in the
critical C4ISTAR area that is central to Network Enabled Capability.[14]
The unique SKYNET 5 Private Finance Initiative will provide MOD
with highly robust satellite communication services delivered
over military satellites built largely in the UK, and it will
also allow the UK to offer these services to our allies. SKYNET
5 will provide UK Armed Forces with capacity expected to be about
2.5 times greater than existing system and will use satellite
links provided by commercial operators to supplement military
satellites. Satcom will in future be delivered to users as a complete
service. The Service Provider is able to view the business as
an end-to-end service because SKYNET 5 will include the satellites,
ground stations, and user terminals. This project provides an
example of the type of partnership envisaged in the DIS.
10. The MOD will continue to evolve its
engagement with Europe, and specifically the European Security
and Defence Policy. In an increasingly unstable world, emerging
strategic context work suggests a growing demand for the products
of space-based capabilities. Much of this capability will be provided
by existing space-based assets owned either by the UK, sourced
through established partnerships, such as NATO, or hired from
commercial sources. However, where the MOD identifies niche capability
gaps, and where space-based assets offer the most cost effective
solution, we will consider working with other states to achieve
the desired effect.
THE ROLE
OF SPACE
WITHIN METEOROLOGY
AND CLIMATE
RESEARCH
11. The Met Office is one of the UK's main
users of space data. A major British National Space Centre (BNSC)
Partner, and a member of the UK Space Board (UKSB), the Met Office
is responsible for approximately 12%[15]
of the national civil spend on space. It adopts a user-driven
approach to space; satellite capabilities are only developed to
fulfil a prioritised set of observational user requirements. Space-based
solutions are exploited when they are the most efficient way of
satisfying high priority requirements or when there are no viable
alternatives.
12. Meteorology is reliant on the sustained
provision of data from Meteorological Satellites. Over the last
few decades operational meteorology has become increasingly dependant
on advanced Numerical Weather Prediction (NWP) models that, in
turn, rely on satellite data as a vital input. A major problem
for operational meteorology is to determine the initial state
of the atmosphere on the global scale. This is exceptionally difficult
and costly to do by using only in-situ, ground-based observation
aids. Remote sensing from space is the only cost-effective way
to obtain a truly global perspective in real-time. Noting the
requirement for the UK to operate an independent defence capability
and global aviation services, there will be a continued need for
a global reach in our forecast predictions which in turn is reliant
on the global observational coverage provided by meteorological
satellites.
13. Evidence of the positive impact from
satellite data on the quality of today's weather forecasts is
clear. Many studies have been carried out that demonstrate the
significant impact that satellite data has on NWP, with the quality
of forecasts regressing to that of a decade ago when it is denied.
Satellite data is particularly important over the data sparse
oceanic regions where there is no real ground-based observing
capability. As a result of the growing dominance of the space
component within the Global Observing System (GOS),[16]
ground-based networks, particularly in the Northern Hemisphere,
have been modified and reduced in an effort to implement an "optimised"
total system and reduce the cost (eg decommissioning of weather
ships).
14. Localised severe weather events often
develop very rapidly (frequently within the timescales between
NWP model runs) and can have a devastating affect on the local
region. Early identification of such events is vital so that warnings
can be issued and appropriate emergency responses triggered. Very
short range forecasting, called "Nowcasting", relies
on the use of a rapid sequence of high-resolution satellite imagery
provided by geostationary meteorological satellites. Examples
include:
(a) Early warning to aviation of weather
related risks such as the identification of embedded convection,
mountain waves or dust storms.
(b) Prompt identification and tracking of
severe storms to facilitate the timely issue of warnings to the
public and emergency planning authorities.
15. The Met Office Hadley Centre for Climate
Change provides a focus in the UK for the scientific issues associated
with climate change. The majority of funding for this activity
is provided by the Department for Environment, Food and Rural
Affairs (DEFRA), which benefits from expert advice to inform policy
decision-making. As meteorological satellite data records approach
30 years in length, this is becoming increasingly relevant to
climate research and forms an important input into research activities
carried out by the Hadley Centre, Academic Institutes and Research
Councils such as the Natural Environment Research Council (NERC).
Sea surface temperature, sea-ice cover, atmospheric temperature
and humidity, vegetation and the planet's radiation balance are
key properties that could be delivered by satellite-based observations.
These properties form some of the core underpinning measurements
for the monitoring and modelling of climate. As such, long-term
homogeneity must be ensured without financially compromising the
operational requirement for forecasting.
PARTNERSHIPS IN
METEOROLOGY AND
CLIMATOLOGY
16. An international, collaborative approach
has been adopted by the UK and other European Governments who
have chosen to delegate responsibility for meeting their shared
requirements for data from meteorological satellites to ESA and
European Organisation for the Exploitation of Meteorological Satellites
(EUMETSAT). Member States retain firm control over the definition
of the requirements that these satellites are designed to fulfil
and ensure that technical solutions remain affordable.
17. EUMETSAT is an intergovernmental body
mandated to establish and maintain Europe's system of meteorological
satellites providing operational Earth observations for a current
total of 20 Member and 10 Co-operating States. Member States fund
EUMETSAT on a mandatory basis in proportion to their Gross National
Income, the only exception being the Jason-2 Ocean Surface Topography
Mission, which is the first Optional Programme of EUMETSAT. The
Met Office represents the UK at EUMETSAT and is responsible for
providing delegates for meetings, expert advice within working
groups and paying for the UK subscription, funded through Met
Office Trading Fund agreements (primarily by the MOD).
18. EUMETSAT retains a close working relationship
with ESA, who are responsible for the development of the first
meteorological satellite in each series, from initial definition
to pre-launch delivery. ESA are also responsible for the procurement
of the remaining satellites in the series on behalf of EUMETSAT.
EUMETSAT are fully responsible for the overall system, including
the launch services, the ground segment and the operations for
the duration of the mission. Industrial return for the space component
to the UK is governed, primarily, through ESA development programmes.
19. EUMETSAT have developed important collaboration
agreements with the US National Oceanic and Atmospheric Administration
(NOAA). These agreements cover operational backup arrangements,
data access and collaboration on satellite development activities.
EUMETSAT launched their first Low Earth Orbiting satellite, MetOp,
in autumn 2006 as part of these agreements, which may evolve to
encompass further partners under the Group on Earth Observations
(GEO).[17]
20. Recognising that weather and climate
know no national boundaries, the Met Office regards global coordination
as vital to ensuring that the Global Observing System (GOS) fulfils
our requirements in the most cost effective manner. The Met Office
actively participates within the World Meteorological Organisation
(WMO) to develop both the high level definition and set objectives
for the evolution of the GOS and the Global Climate Observing
System (GCOS).[18]
21. The importance of exploiting existing
satellite capabilities within other international initiatives,
particularly Global Monitoring for Environment and Security (GMES)[19]
and GEO, is strongly recognised by the Met Office. DEFRA are designated
as the lead Department for both GMES and GEO, but recognizing
the relatively mature nature of international collaboration within
the field of meteorology, the Met Office currently provides the
UK GEO Principal, who acts as the lead delegate at non-Ministerial
level meetings, and the national GEO Co-ordination role.
22. The Met Office, through BNSC and EUMETSAT,
also encourages effective global coordination within the Committee
on Earth Observation Satellites (CEOS)[20]
and, more specifically, the Co-ordination Group for Meteorological
Satellites (CGMS)[21]
which provide forums for the exchange of information on geostationary
and polar orbiting meteorological satellite systems.
RESEARCH
23. Turning to research, the DIS set out
broad principles for improving overall Defence capability acquisition
and through life management that have particular resonance with
the "space sector". In particular, the DIS recognises
that MOD must improve the coherency of its joint long-term capability
planning and that, inter alia, this requires it to promote
innovation in science and technology by focusing on R&D, procurement
and support priorities in order to achieve coherent spending in
these fields.[22]
The resultant review of the MOD approach to R&D is set out
in the DTS. The DTS contains specific references to space-based
capabilities and associated technologies, recognising that they
represent key areas for future capability. particularly in respect
of communications, Earth observation and the development of small
satellites.
24. In general terms, the MOD invests in
space science and technology to ensure that the Department retains
an intelligent customer status, understands the opportunities
presented and is seen as a credible collaborative partner. Commercial
and civil space-based services and sources are exploited, when
appropriate, to meet Defence needs. Access to common R&D in
the form of dual-use technologies, capable of delivering militarily
useful capability, are harnessed by the MOD maintaining its close
links and partnership with BNSC. The identification of priority
technology areas within the DTS enables the MOD to focus its interest
in space-related capability research to meet specific needs over
time. This will be achieved by exposing requirements earlier and
through engaging UK industry and academia in international collaborations.
25. In terms of current space-related research,
the MOD is primarily focused on the delivery of future ISTAR and
satellite-based communications capability, and the development
of Precision Navigation and Timing (PNT) capability through exploitation
of programmes such as the Global Positioning System. Within the
ISTAR domain the principal exploitation route for space research
is in a potential contribution to a Deep and Persistent surveillance
capability which is planned for procurement through Project DABINETT.
This exploitation route has been the focus of most MOD sponsored
space research in recent years, which has covered the following
areas:
(a) Demonstration of a small satellite (TOPSAT)
carrying an electro-optical payload. TOPSAT has been a particularly
successful programme. Working collaboratively with BNSC, MOD has
gained invaluable insight into the military utility of low cost
small satellites and key design issues, identifying the critical
design technologies and the component specifications necessary
to deliver a robust capability. Again, this progressive partnership
foreshadowed the approach envisaged in the DIS and is a prime
example of the benefits that can be achieved through collaborative
working.
(b) Modelling of constellations to provide
a space-based ground moving target detection capability.
(c) Maritime wide-area surveillance from
space.
(e) Development of novel space-based surveillance
techniques.
(f) Exploitation of space-based sources,
in which we collaborate extensively with a number of international
partners.
26. In addition to its research programmes,
the MOD maintains wider involvement in international space activities
through participation in a number of forums which include the
EDA CapTech Experts Group on Space Systems and Technologies, the
NATO Space Science and Technology Advisory Group and the US Schriever
Wargames.
27. The MOD's future plans for space research
concentrate on a number of areas:
(a) Development of small satellite technologies[23]—principally
in small, lightweight, low power consumption payloads and their
integration into the satellite.
(b) Exploitation of space-based sources,
including the key linkage with environmental modelling.[24]
(c) Maintenance of a UK understanding of
space science, including orbitology and the impact of space weather.[25]
(d) The requirement for robust, secure telemetry,
tracking, control, dynamic bandwidth allocation and high bandwidth
optical links in the area of satellite communications.[26]
28. Looking further ahead, MOD would welcome
the opportunity to contribute to debates on the need for an indigenous
UK space launch capability, issues associated with space control
and further development and integration of the RSP.
29. Turning to the Met Office, it plays
a very active role in the development of facilities to exploit
satellite data for both operational forecasting and climate research,
primarily through its Meteorological and Ocean Research and Development
Programme and its Climate Prediction Programme.
30. An example of a leading role adopted
by the Met Office is the EUMETSAT Satellite Application Facility
for Numerical Weather Prediction (NWP SAF). This EUMETSAT funded
activity exists to co-ordinate research and development efforts
among the SAF partners to improve the interface between satellite
data and NWP for the benefit of EUMETSAT Member States. The NWP
SAF is led by the Met Office.
31. The Met Office makes efforts to promote
the involvement of the wider UK research community, for example
calls for proposals for EUMETSAT research fellowships and similar
opportunities are brought to the attention of NERC who circulate
them more widely to the UK research community.
BENEFITS DERIVED
FROM METEOROLOGICAL
SATELLITES
32. A number of studies have been undertaken
to assess the benefits derived from meteorological satellites
such as those operated by EUMETSAT. The conclusions have been
broadly consistent; one such example being the DTI Evaluation
of Funding for UK Civil Space Activity, when considering the services
provided by the Met Office it concluded that "the economic
value of the services which space data enable is (at least) several
times the cost of the activities".
CHALLENGES WITHIN
METEOROLOGY AND
CLIMATE RESEARCH
33. The majority of improvements in forecasting
accuracy using satellites have come from using data obtained by
instruments that detect very faint natural emissions from atmospheric
constituents. These emissions occur at specific, fixed radio frequencies
which so far have been absolutely protected from both intentional
and unintentional active emissions under international radio regulations.
However, there is increasing pressure from other users who wish
to actively transmit at these frequencies and for the limits on
unintentional emissions to be relaxed. The impact of this interference
on the forecasts and the public could be very serious, leading
to loss of data and to undetectable corruption of numerical model
input data. Considerable effort is being expended by the Met Office
in repeatedly defending the parts of the radio spectrum that are
essential to the meteorological services. Harmful interference
at protected frequencies is already being detected. Continual
vigilance is essential as once frequencies are lost because of
active use it is very unlikely that they can be regained for remote
sensing for weather and climate monitoring.
34. Noting the need to avoid unnecessary
duplication of effort, and recognising the benefit of fully exploiting
European facilities, the Met Office will encourage the development
of a Framework Agreement between EUMETSAT and the European Commission
to facilitate EUMETSAT involvement within important initiatives,
such as GMES, provided candidate activities are consistent with
the EUMETSAT Convention and have identified funding.
35. If we are to meet the increasingly challenging
requirements set for the evolution of the Global Climate Observing
System (GCOS), resource implications will require careful consideration.
The approach taken to date to meet important GCOS requirements
by exploiting opportunities arising from operational meteorological
missions, will no longer be adequate. We must seek to identify
new sources of funding for climate missions to safeguard the established
funding mechanisms for operational meteorology. GMES, for example,
might offer one such solution. However, at this stage we identify
a lack of focus on climate monitoring within this initiative.
The Met Office supports the user-driven approach towards GMES
adopted by DEFRA (on behalf of the UK) and supports the concept
that climate monitoring requirements should feature strongly.
November 2006
12 See DTS, Section B2, page 56. Back
13
See DTS, Section B2, Table 2, page 69. Back
14
See DIS Executive Summary page 10, paragraph xxxviii, and Section
B8, page 107, paragraph B8.19. Back
15
This is an average figure for the years 1997-98 to 2003-04. Source:
UK Space Strategy 2003-06 and beyond, Annex 1. Back
16
Global Observing System; the global meteorological observing
network collectively operated by National Meteorological Services,
national or internsational satellite agencies and coordinated
by WMO. Back
17
Group on Earth Observations (GEO): an inter-governmental group,
of which the UK is a Member, leading a global effort to build
a Global Earth Observation System of Systems (GEOSS) over the
next 10 years which will build upon existing systems to provide
a comprehensive, coordinated Earth observing network. Back
18
Global Climate Observing System; the global climate observing
network collectively operated by National Meteorological Services,
national or international satellite agencies and coordinated by
WMO. Back
19
Global Monitoring for Environment and Security: a joint initiative
of European Commission and European Space Agency. Back
20
The Committee on Earth Observation Satellites (CEOS) is an international
coordinating mechanism charged with coordinating international
civil space borne missions designed to observe and study planet
Earth. Back
21
CGMS concerns itself with the coordination of a wide ranging
list of operational aspects of the systems and has helped to ensure
that key facilities are standardised across the entire global
system. Back
22
DIS Section C1, pages 131-140. Back
23
See DTS, Section C2, page 159, bullet 4. Back
24
See DTS, Section B2, pages 56 and 57. Back
25
For example, to maintain MOD's understanding of the vulnerability
of space-based equipment (such as SKYNET) and therefore to ensure
continued service provision. Back
26
See DTS, Section B3, page 71 Table 4. Back
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