The development and testing of rocket propulsion systems are foundational to space exploration. Rocket engine testing is a vital phase of the engine development process, ensuring that engines perform safely and effectively under the extreme conditions they will encounter during launch and space flight. These conditions include high temperatures, pressures, and vibrations, all of which can lead to potential engine failures with catastrophic consequences for crew and spacecraft.
NASA has long been a leader in rocket propulsion testing, with its Rocket Propulsion Test (RPT) Program playing a key role in verifying engine and component reliability. From testing the Saturn V rocket for the Apollo program to certifying engines for the Space Shuttle, NASA’s RPT facilities have been critical to the success of the United States’ space endeavors. However, with the rise of commercial space companies and the changing needs of space missions, NASA faces new challenges in managing its aging infrastructure and maintaining its testing capabilities for future missions. This article is based on NASA’s Rocket Propulsion Test Program Report, released by NASA’s Inspector General on September 24, 2024.
NASA’s Rocket Propulsion Test Program
Established in 1997, NASA’s Rocket Propulsion Test Program was designed to strategically manage the agency’s chemical propulsion test capabilities. The program ensures that NASA maintains the necessary infrastructure and critical skills for both current and future propulsion testing needs. It operates across eight NASA centers, including the renowned Stennis Space Center, which has been a hub for propulsion testing since its establishment in the 1960s.
The RPT Program functions as a portfolio management system, balancing the needs of various internal and external customers. The Rocket Propulsion Test Management Board (RPTMB) oversees all decisions related to facility modifications, test assignments, and budget allocations, while working closely with NASA’s customers, which include other NASA programs, commercial space companies, and international partners.
NASA and the Department of Defense Collaboration
Since 1996, NASA and the Department of Defense (DOD) have collaborated in the management of rocket propulsion testing through the National Rocket Propulsion Test Group (NRPTG). This partnership allows both agencies to coordinate their resources, share best practices, and improve efficiency in rocket testing. Through this collaboration, NASA and the DOD have avoided redundant facilities and saved millions of dollars in testing infrastructure costs.
Aging Infrastructure and Decreasing Utilization
NASA’s rocket propulsion testing infrastructure is aging and becoming increasingly costly to maintain. Much of this infrastructure was built during the Apollo and Space Shuttle programs and, while significant investments have been made to maintain it, many of these test stands now sit idle. For example, Stennis Space Center’s A-2 and A-3 test stands, which were used to test Saturn V and Space Shuttle engines, went unused for nearly a decade before being leased to external customers.
Between fiscal years (FY) 2022 and 2026, NASA projects a significant decline in the utilization of its RPT infrastructure, with only 26 percent of its test stands expected to be actively used by 2026, compared to 47 percent in 2022. NASA’s largest test facilities, built for large-scale rocket testing, are seeing reduced demand as commercial space companies like SpaceX increasingly perform testing on their own facilities. The move toward smaller, more efficient engines and components has also decreased the need for NASA’s large-scale test stands.
Budgetary Challenges
The RPT Program is operating within a flat budget, which poses additional challenges. While the program’s annual budget of approximately $48 million is sufficient to maintain core staff and facilities, it does not provide the resources needed to address the significant maintenance required for aging infrastructure. NASA has had to make difficult decisions about which facilities to maintain, which to mothball, and which to lease or demolish.
The lack of funding for major maintenance projects has placed pressure on the RPT Program to find creative solutions. For example, NASA has turned to leasing its facilities to commercial companies, allowing these companies to use the infrastructure while relieving NASA of some of the costs associated with maintenance. Five of NASA’s test stands are currently under lease, and leasing is seen as a viable strategy for reducing operational costs while still maintaining core capabilities.
Commercialization and NASA’s Response
The rapid growth of the commercial space industry is transforming the landscape of rocket propulsion testing. Companies like SpaceX and Blue Origin have developed their own test facilities, reducing their reliance on NASA’s RPT infrastructure. Additionally, NASA’s shift toward commercial partnerships, such as the Commercial Lunar Payload Services program, has lessened the need for NASA’s large-scale testing facilities. These commercial partners are now responsible for delivering payloads to space, including integration, launch, and landing services.
To adapt to these changes, NASA has taken steps to better align its RPT capabilities with the needs of the commercial space industry. The agency has conducted multiple studies to assess future demand for rocket propulsion testing and determine the appropriate mix of capabilities. In 2020, NASA completed a “right-size” study to recommend which facilities to divest from or decommission. Stennis Space Center, which remains NASA’s busiest RPT facility, is receiving targeted investments to upgrade its capabilities and support both NASA and commercial customers.
New Cost Models and Leasing
One of the key strategies NASA is implementing to address its budgetary constraints is a new cost model that requires customers to pay for the maintenance and operational costs associated with using NASA’s test facilities. This model, currently being piloted at Stennis, could bring in up to $1 million per year and may be implemented at other NASA centers in the future. By shifting the costs of infrastructure maintenance to the customers who use the facilities, NASA aims to ensure that its RPT capabilities remain financially sustainable.
In addition to cost-sharing, NASA is increasingly relying on leasing agreements with commercial space companies. For example, Rocket Lab USA is currently leasing Stennis’s A-3 test stand for $3.4 million, and Relativity Space has signed a seven-year lease for the A-2 test stand. These leases not only generate revenue for NASA but also help avoid the costs associated with maintaining underutilized infrastructure.
NASA’s Plans for the Future
While NASA is divesting from some of its legacy test stands, it is also investing in the future. The E-Complex at Stennis is receiving funding to improve its operational efficiency, with upgrades planned for power generation, cryogenic propellant delivery, and high-pressure gas distribution. These changes are intended to ensure that NASA can continue to support both government and commercial rocket testing needs in the years to come.
NASA is also planning to conduct recurring right-size studies to continually reassess its RPT capabilities. These studies, which are expected to be conducted every five years, will help NASA ensure that it is maintaining the right mix of testing facilities to meet both internal and external customer needs. Additionally, NASA is conducting a Commercial Capability Survey to better understand the propulsion testing capabilities of the commercial space sector and how NASA can best support the industry’s evolving needs.
Summary
NASA’s Rocket Propulsion Test Program is at a critical juncture. With aging infrastructure, declining demand for large-scale rocket testing, and a flat budget, the agency faces significant challenges in maintaining its RPT capabilities. However, by divesting from underutilized facilities, leasing to commercial companies, and implementing new cost models, NASA is working to ensure that its rocket propulsion testing infrastructure remains viable for the future.
The increasing commercialization of the space industry presents both challenges and opportunities for NASA. While demand for some of its large-scale test stands is decreasing, NASA continues to play a vital role in supporting both government and commercial space missions. With targeted investments in its busiest facilities and ongoing collaboration with the commercial space industry, NASA’s RPT Program is positioning itself to meet the evolving needs of space exploration in the 21st century.
