16. Space security governance

In the past decade, the number of states conducting space activities for economic, scientific and military purposes has grown considerably, and more states have adopted national and regional space policies. While outer space has been used for military purposes since the dawn of the space age, current geopolitical tensions and increased competition in space activities pose rising threats to space systems. The growing interest in ‘counterspace’ capabilities is particularly concerning, given the parallel growth in civilian space activities and overall societal dependence on space systems.

Space for military purposes

In 2025 several states accelerated their pursuit of new military space capabilities. This trend to pursue sovereign space capabilities dovetailed with new national and regional policies from China, the United States and within Europe that prioritize space security. US policy changes included plans to invest in space-based interceptors, policies for ‘space warfighting’ and steps to ‘ensure American space superiority’. Outer space also featured prominently in China’s white paper on arms control, disarmament and non-proliferation published in 2025. France, Germany and the United Kingdom introduced new national strategies that included planned investment in counterspace capabilities, while the European Union proposed new legislation (a draft EU Space Act) aimed at securing independent access to space and expanding European industry. This development of independent European space capabilities is being spurred by growing uncertainty in transatlantic relations and perceived threats from Russia.

Multilateral discussions on space security

While multilateral discussions on space governance have been under way for decades, progress has been slow. In United Nations space security talks, progress stalled in 2025. In April the first session of the UN open-ended working group on prevention of an arms race in outer space (PAROS) in all its aspects grappled with procedural debates, although the second session in July moved to substantive talks. Tensions at the UN General Assembly First Committee worsened, with the USA and Israel opposing foundational UN space resolutions, particularly the annual resolution adopted on PAROS.

Nonetheless, opportunities exist to minimize risks in outer space through dialogue among several key actors, including China and European states. China signalled a willingness to engage in multilateral space security governance through its 2025 white paper, and there are several avenues for Europe, China and other states to build shared understandings of specific terminologies and concepts in space security. These could help to reduce risks of misperception, misunderstanding and miscalculation in the space domain.