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Soviet Space Cooperation

Soviet Attitude Toward International Cooperation in Space *

* Prepared by Joseph G. Whelan, Senior Specialist in International Affairs, Senior Specialists Division, CRS.

SPACE COOPERATION: AN IMPERATIVE IN THE PRESENT

ERA

COMMITMENTS IN ACCORD

AN EXPANDING UNIVERSE FOR SPACE ACTIVITIES

SOVIET ROLE IN SEARCH AND RESCUE SATELLITE EXPERIMENT

(SARSAT)

ORIGINS AND AGREEMENT ON SARSAT COOPERATION

Cooperation is imperative in establishing a global meteorological system; it is also imperative in international arrangements for a global search and rescue operation. In these cases, as in so many others in space cooperation, enlightened self-interest binds all participants into achieving a common purpose. Such was the case of the search and rescue satellite experiment (SARSAT) undertaken by the United States, the Soviet Union, Canada, and France.

In the fall of 1976, Dr. Lovelace conferred in Washington with Dr. Boris Petrov, at the latter's request, on possible joint scientific endeavors to be carried out during the next decade. Two ideas surfaced: one, taken on Soviet initiative (already noted above) dealt with monitoring the pollution of the Earth's upper atmosphere, that is, the ozone problem; the other, taken on American initiative related to setting up a global satellite system to pinpoint the location of crashed airliners and ships in distress anywhere in the world. (62) Such a network could improve coverage of distressed air and seacraft, reduce alert time, and provide more accurate initial location. (63) "We suggested this one and the Soviets saw immediate merit in this idea," said Lovelace. "Both sides agreed to look very hard at this suggestion." (64)

Both sides did, indeed, look into the matter and reached a preliminary agreement in the spring of 1977. On March 18, 1977, NASA and the Soviet Ministry of Merchant Marine agreed on Soviet participation in a planned U.S.-Canadian search and rescue demonstration project using satellites. As explained by NASA, the Soviet side would provide and launch one or more satellites equipped for search and rescue missions and establish ground stations in their country. Soviet activity would be technically compatible and on schedule with the U.S.-Canadian program. Each side would be responsible for their own ground stations and would conduct their own search and rescue operations. The protocol stipulated further that the parties would establish a joint working group to plan the project in detail. (As of March 1978, the joint working group had not met.) (65)

PROGRESS ON SARSAT EXPERIMENT

Progress on SARSAT moved apace during 1977 through 1979, and NASA looked forward with anticipation, and optimism, to "wide international use of such a Search and Rescue System * * * after the initial experimental phase." (66) The Soviet Union and France agreed to join the United States and Canada, and after, apparently, extensive discussions among their specialists, a division of responsibilities was established between all four countries. On March 15, 1979, Arnold Frutkin gave this account of the status of the project, including the division of responsibilities:

We are close to completing arrangements with Canada, France and the Soviet Union for an experimental satellite-aided search and rescue project. Canada will provide spacecraft repeaters to relay distress signals from ships and aircraft. France will do on-board receiver/processors, which provide initial position location information. These equipments will be integrated by the United States in three polar orbiting environmental spacecraft. The United States will also provide spacecraft antennas. The Soviet Union will provide compatible spacecraft in phase with ours. All four countries will operate ground facilities and demonstrate and evaluate the system.

The United States, Canada and France are near agreement on the text of a Memorandum of Understanding covering their cooperation; we anticipate that this document will be signed within the next few months. Thereafter, an understanding will be concluded among the United States, Canada, France and the Soviet Union confirming the four-party collaboration. Other countries have expressed interest in the project and are considering participation. (67)

By February 1980, all four participants in the experiment signed a Memorandum of Understanding (MOU) that only awaited final certification. Thus, Dr. Calio could report: "The search and rescue program is moving along quite well, within schedule and cost and we expect to begin the experiment in the 1982-83 time frame." (68) At the same time Kenneth Pedersen gave a full accounting of the project. After discussing the role of France and Canada, he gave the following appraisal of what NASA expected from the Soviets:

Another MOU related to SARSAT was signed in November between the Sarsat partners and the Soviet Ministry of Merchant Marine, which provides for interoperability between Sarsat and a similar Soviet system known as Cospas. This understanding is awaiting confirmation by the appropriate agencies within these countries, and we expect this confirmation to happen quite soon.

The Soviet Union intends to equip two Soviet spacecraft with transponders and will establish ground terminals in the U.S.S.R. and will be conducting experimental test and demonstration activities. The important thing from the international perspective, Mr. Chairman, is that Soviet participation will be technically compatible with the Sarsat activities and will be conducted at the same time. We believe that this will help improve the system's alert and response times and will give us a more comprehensive test on the basis of which we can determine whether an operational system makes good sense. (69)

SARSAT EXPERIMENT, 1980: FORWARD MOTION

Remarkably, the downturn in Soviet-American relations seemed not to have radically affected the SARSAT experiment. In testimony before the Senate Subcommittee on Science, Technology, and Space, Pedersen explained the state of things, noting at the outset that NASA coordinated its activities with other agencies of the executive branch. (70)

In explaining the "current state of our dealings with the Soviet Union," Pedersen emphasized that NASA has determined "to continue to undertake a number of low level technical exchanges" with the Soviets in accordance with existing agreements—exchange of data, for example, and in some cases an exchange of individual scientists. With the notable exception of the SARSAT experiment, NASA has "deferred or postponed any major undertaking with them." By that Pedersen meant "any joint working group meetings, any large-scale projects which we might have been discussing." The meeting of the interplanetary working group scheduled for March 1980 was "indefinitely postponed," and so the Soviets were advised.

"We have no major meetings or projects currently planned with them," except the SARSAT experiment, Pedersen continued. He then explained NASA's view: "This is worthwhile going forward with on two grounds"; first, the experiment was "essentially a humanitarian activity"; second, "it's a multilateral activity involving France and Canada, as well as ourselves and would be detrimental to our own interests as well as theirs to not go forward."

Pedersen explained that the Soviet (COSPAS) and American (SARSAT) were "quite separate systems." They were not interoperable, and thus did not involve an exchange of technology or hardware with the Soviets in any way. Hence, the determination to go forward with the experiment.

In response to the comment by Senator Adiai E. Stevenson (D-111.) that, "It sounds as if nothing has changed except new projects are deferred," Pedersen gave a response that was applicable to virtually all cooperative ventures with the Soviets, except SARSAT, in the post-Afghanistan period:

Well, that's not true. Not only are new projects deferred, but meetings that have been scheduled to discuss ongoing projects as well as the results of ongoing projects have been postponed. We're essentially not carrying on any activity with the Soviets at the moment other than very basic low level technical data exchange. (71)

Still, NASA seemed hopeful that the door would not be closed on this solitary remnant of space cooperation. To be sure, Soviet withdrawal from the project would not have an adverse impact on NASA's planning within the SARSAT partnership. But, as Dr. Calio stressed, "the participation of the Soviet Union will not only enhance the effectiveness of the demonstration but will also contribute to the international acceptance of the system of operational use as envisioned by all parties." (72)

References:

A. SOVIET SPACE PROGRAMS: 1976-80, SUPPORTING VEHICLES AND LAUNCH VEHICLES, POLITICAL GOALS AND PURPOSES, INTERNATIONAL COOPERATION IN SPACE, ADMINISTRATION, RE-SOURCE BURDEN, FUTURE OUTLOOK PREPARED AT THE REQUEST OF HON. BOB PACKWOOD, Chairman, COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION, UNITED STATES SENATE, Part 1, Dec. 1982.

62. O'Toole, Thomas. U.S., Soviet Exploratory Talks Probe Joint Efforts in Rescue Systems, The Washington Post, Oct. 27, 1976, p. A2.

63. Statement of Frosch, Senate Commerce, Science, and Transportation Committee, Hearings, NASA Authorization for Fiscal Year 1979,1978, pt. 1, p. 60.

64. The Washington Post, Oct. 27, 1976, p. A2.

65. Questions and answers. Senate Commerce, Science, and Transportation Committee, Hearings, NASA Authorization for Fiscal Year 1979, 1978, pt. 3, p. 953. For text of protocol, see p. 955

66. NASA Highlights of 1977 Activities, Release No. 77-257, Senate Commerce, Science, and Transportation Committee, Hearings, NASA Authorization for Fiscal Year 1979, vol. 1, p. 23.

That the Soviets valued this experiment was evident by the comments of G. S. Khozin in his article, "New Space Exploration Agreement" appearing in U.S.A.: Economics, Politics, Ideology, No 8, September 1977: "The importance of cooperation in the last field [study of satellite search and rescue systems] is attested to by the fact that around 350 ships and up to 200 airplanes are lost annually as a result of various types of accidents. Joint action by Soviet and American specialists will aid in the organization of more timely and effective assistance for disaster victims. (Translated in, JPRS 69794, Sept. 15, 1977, p. 63.)

67. Senate Commerce, Science, and Transportation Committee, Hearings, NASA Authorization for Fiscal Year 1980, 1979, pt. 3, p. 1661.

68. Senate Commerce, Science, and Transportation Committee, Hearings, NASA Authorization for Fiscal Year 1981, 1980, pt. 3, pp. 1300-1301.

69. Ibid., p. 1650.

70. Senate Commerce, Science, and Transportation Committee, Hearings, NASA Authorization for Fiscal Year 1981, 1980, pt. 3, p. 1700.

71. Ibid., p. 1701. Dr. Calio made similar explanations on the difference between the Soviet and American systems to be employed in this mission, and he noted that the project would go forward: "In the event that the Soviet Union unilaterally decides not to proceed with the Joint Project, it would not impact our planning within the SARSAT partnership." (House Science and Technology Committee, Hearings, 1981 NASA Authorization, 1980, vol. 4, p. 1568.)

72. Ibid., p. 1568.