Brussels View: Remembrance of Things Past
Can China and Europe Get Over a Failed GNSS Partnership?
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In 2003, China committed to investing €200 million (US$270 million) for the privilege of participating in the development of Europe’s Galileo program. But by 2007 it had been forced out of major decision-making because of security concerns and the collapse of the original financing plan for the program, which was to include public and private money.
At the time, bringing China into Galileo was seen by some as simply an anti-American gesture on the part of the Europeans, while others have argued that they truly thought China’s membership in Galileo would help European companies to gain a strengthened commercial position in the Asian nation’s huge and growing market.
In any case, China’s contribution to the program ultimately turned out not to include a policymaking role, and who could then blame officials there for feeling badly used — perhaps even humiliated — after having paid for the privilege of joining the Galileo consortium as a partner only to see themselves shut out of its governing bodies?
Seeking a New Path
This problematical history seemed ripe for review at a recent European Institute for Asian Studies roundtable event in Brussels that brought together representatives of the European Commission (EC), the European Space Agency (ESA), and the Chinese Aerospace Science and Technology Corporation (CAST) to discuss EU-China relations in space. (CAST is a state-owned company that serves as the main contractor for China’s space program.)
But satellite navigation received only a grudging and oblique treatment at the event.
The “EU-China Galileo fiasco,” as some have gone so far as to refer to it, turned out to be the elephant in the room that no one wanted to see or touch, at least none of the panelists. This despite the fact that the title of the conference itself —“The Ups and Downs of Euro-China Space Cooperation” — might have led some of the attendees to expect a few words on the subject.
However, Hartwig Bischoff, Space Unit policy officer at the EC’s Directorate-General for Enterprise and Industry, started the ball rolling in a very different direction. Emphasizing that he was there to discuss EU-China co-operation in research, Bischoff laid out the Commission’s plans to launch a new “space dialog” with China, listing a number of wide ranging potential topics for discussion, including remote sensing, climate change, exploration of the solar system, space weather, space and life sciences, space debris, et cetera, et cetera.
Satellite navigation, however, was not on Bischoff’s list. Later in his presentation he showed another list, this time representing ‘opportunities’ for EU-China cooperation. Once again, GNSS-related matters were notable by their absence.
When asked later about these omissions, Bischoff replied that satellite navigation was not on his lists because he was there to talk about cooperation in research, and Galileo is an operational system, not a research project.
Oka-a-y. Awkward pause and perplexed looks passing among the panelists.
A growing suspicion arose that perhaps no one was at the roundtable to talk about the “downs” mentioned in the conference title. No one, that is, except for the man who got the party together in the first place: David Fouquet, a senior associate at the European Institute for Asian Studies who conceived the event and acted as a sort of moderator. Fouquet said point blank that he wanted to hear more about the lingering effects of the EU-China falling out over Galileo.
After this direct prodding, Gongling Sun, chief representative of CAST’s European office, made an attempt to address the subject. He was brief and, by his comments and “body language,” seemed to want to minimize any sense of hard feelings, or indeed any feelings at all.
“As for our participation in the Galileo project,” he said, shrugging his shoulders, “we were invited, and then we were uninvited. And that’s the way it is. We just keep our heads down, we stay quiet, and we keep on going.”
And keep going they have. By 2009, while Galileo was falling behind schedule, the Chinese had moved forward and were making rapid progress in the development of their own Compass (BeiDou-2) system. What’s more, China had announced its plans to transmit signals on the wavelength that the Europe wants to use for Galileo’s Public Regulated Service (PRS), an encrypted frequency for governmental, immigration, public safety, and potentially military use.
“It’s incredible,” said Jean-Michel Fobe, anticipating the direction of the conversation before the presentations had even started. Fobe is President of Belgium’s Eutralex Aerospace and a man with some experience working with Chinese collaborators.
“The Chinese government sets its priorities and makes the decisions, and that’s all there is to it,” Fobe added. “There is no argument, no negotiation. It’s not like here in Europe where 27 different opinions have to be brought together before we can do anything.”
The price of pan-European democracy? China pays no such price. Today BeiDou, not Galileo, could well become the third fully operational global satellite navigation system, after GPS and GLONASS. Despite years of effort, negotiations to resolve the signal overlap question have made little progress. As recently as last year, EC officials said that the issue represented “a major problem for the security of the EU.”
Invited speaker Brian Weeden, who spent nine years as an officer in the U.S. Air Force and worked at the U.S. Strategic Command’s Joint Space Operations Center, chimed in on the subject.
“China does not recover easily from slights, often reacting in a calculating manner,” he said bluntly, suggesting that the BeiDou/Galileo PRS frequency overlay issue was just another example of China’s grudge-holding, a well thought out and pointed reaction to not getting the value they expected out of the aborted Galileo deal.
ESA’s Not So Eloquent Silence
For his part, ESA representative Karl Bergquist had little to say about the EU-China and Galileo story. Asked what he understood to be the current state of affairs regarding China’s planned overlay on PRS, Bergquist pled ignorance.
“I don’t really know,” he said. “I don’t know what happened with that story. We were all sort of following it a few years ago, but now, no one talks about it any more.”
Perhaps it’s a question better posed to the technicians, he suggested, whom he could not name and of whom he is not one.
Bergquist has worked as an administrator in ESA’s International Relations Department since 1993. He holds a degree in Chinese from the Language Institute of Beijing and is currently in charge of ESA’s relations with China, Russia, and Israel.
All of which makes it a bit surprising that, sent by ESA to address the ups and downs of EU-China cooperation in space, he would have had so little to say — nothing at all, actually —about EU-China cooperation on GNSS.
Perhaps what this really tells us is something about the determination with which ESA would like to leave behind — and get everyone else to leave behind — the entire story of Galileo’s China venture. After all, what is the point of rehashing that old sordid affair? This kind of conference should be about the future, right?