Origins and Provisions
In 2011, the U.S. Congress passed legislation that included a provision known as the Wolf Amendment, named after its sponsor, then-Representative Frank Wolf of Virginia. The amendment prohibits NASA from using federal funds to engage in direct, bilateral cooperation with the Chinese government and China-affiliated organizations without explicit congressional approval.
The amendment was motivated by concerns over technology transfer and China’s record on human rights. A 1999 congressional report had alleged that American satellite manufacturers provided China with technical information that improved its missile capabilities. Rep. Wolf stated that his “efforts to limit new collaboration with China [were] until we see improvements in its human rights record”.
The key provisions of the Wolf Amendment state that no NASA funds may be used to “develop, design, plan, promulgate, implement, or execute a bilateral policy, program, order, or contract of any kind to participate, collaborate, or coordinate bilaterally in any way with China or any Chinese-owned company” unless specifically authorized by Congress. It also prohibits the hosting of official Chinese visitors at NASA facilities.
Effects on U.S.-China Space Cooperation
The Wolf Amendment has significantly hindered bilateral civil space projects between the U.S. and China over the past decade. Although it does not completely prohibit all cooperation, it has had a chilling effect, making NASA and other agencies reticent to seek permission for collaboration.
Some limited cooperation has still occurred on a case-by-case basis when NASA has received congressional approval. For example, during China’s Chang’e 4 mission in 2019, NASA collaborated with China to monitor the lunar lander and rover using NASA’s Lunar Reconnaissance Orbiter. NASA stated this specific interaction did not violate the amendment’s prohibitions on technology transfer or interactions with human rights violators.
However, being largely excluded from working with NASA has pushed China to develop its own capabilities independently. After being left out of the International Space Station program, China launched its own space labs and is now constructing the Chinese Space Station, set to be completed in 2022. China is also pursuing an ambitious robotic exploration program with missions to the Moon, Mars, and asteroids. Some argue this demonstrates the Wolf Amendment has not deterred China’s space ambitions.
Debate Over the Amendment’s Effectiveness
A key question is whether the Wolf Amendment has been effective at its stated goals of preventing technology transfer and improving China’s human rights record. Many experts argue it has not accomplished either objective.
Proponents say the amendment’s requirements for FBI certification and congressional notification on any NASA-China cooperation are reasonable precautions. However, critics contend China has still been able to acquire U.S. space technology through commercial interactions and cooperation with other nations. And in the years ATM since the amendment’s passage, China’s human rights policies have not markedly improved.
Some, like Representative John Culberson who urged President Obama to prohibit NASA-China contact in 2010, argue the U.S. should not work with China on space exploration until it makes progress on human rights and other concerning behaviors. But others say that by restricting engagement, the U.S. has less ability to influence China and given it an opening to position itself as the partner of choice for other nations.
Calls for Relaxing Restrictions
In recent years, some in the space community have advocated for relaxing the Wolf Amendment to allow more NASA-China cooperation in select areas. Possibilities floated include collaboration on scientific research and human spaceflight, with appropriate safeguards against technology transfer.
Proponents argue that by working together on some civil space projects, the U.S. and China could reduce misunderstandings and tensions in space. Former NASA Administrator Charles Bolden said that when the U.S. cooperates with competitors like Russia on the ISS, it enhances NASA’s leadership. During his tenure, Bolden met with his Chinese counterpart to discuss potential cooperation.
Others caution that the geopolitical relationship between the U.S. and China is trending in a negative direction, which will constrain space cooperation more than the Wolf Amendment. Current NASA Administrator Bill Nelson has expressed support for keeping the amendment in place, calling it “sufficient for where it is right now”. He has described the U.S. and China as being in a “space race” and warned about Chinese plans to establish a presence on the Moon.
Conclusion
After more than a decade, the debate continues over the Wolf Amendment and the appropriate level of U.S.-China collaboration in space. Opponents say the amendment has not been effective at its goals, has spurred China to develop rival space capabilities, and reduces the potential benefits of cooperation. Supporters argue it remains a necessary precaution and that the U.S. should be wary of working too closely with China. Ultimately, space cooperation between the two nations will likely be shaped as much by the larger geopolitical context as by the specific provisions of this one piece of legislation. But the Wolf Amendment’s impact on the past years of space relations is undeniable.