Spain Space Governance

Key Takeaways

• Spain centralized its space governance in 2023 by establishing the AEE to unify strategy.
• The Spanish Space Agency coordinates defence, science, and industrial sectors under one roof.
• INTA and CDTI remain vital supporting bodies for technical execution and industrial funding.

Introduction

The governance of outer space activities in Spain underwent a fundamental transformation with the establishment of the Spanish Space Agency, known locally as the Agencia Espacial Española or AEE. This restructuring represents a strategic shift from a fragmented, multi-ministerial approach to a centralized model designed to streamline decision-making, optimize budget execution, and enhance Spain’s influence within the global space economy. The new framework integrates historic actors such as the National Institute for Aerospace Technology (INTA) and the Centre for the Development of Industrial Technology (CDTI) into a cohesive ecosystem overseen by the AEE, which serves as the primary interface for international counterparts.

The restructuring addresses the increasing complexity of the space domain, which has evolved from a purely scientific and diplomatic endeavor into a strategic sector vital for national security, economic development, and digital infrastructure. By aligning civil and military objectives, Spain positions itself to maximize returns from its contributions to European programs while fostering a robust national “New Space” industrial base.

The International and European Framework

The Spanish space strategy does not exist in a vacuum. It functions within a multi-layered international architecture that dictates regulatory standards, collaborative opportunities, and funding mechanisms. The top tier of the governance structure involves Spain’s interaction with supranational bodies, primarily through the European Union and independent intergovernmental organizations.

European Space Agency (ESA)

Spain is a founding member of the European Space Agency (ESA), an intergovernmental organization that operates independently of the European Union. ESA serves as the primary conduit for Spain’s scientific and exploration ambitions. Through its contribution to the ESA budget, Spain secures industrial contracts for its domestic companies under the principle of “geographic return,” which mandates that a member state receives industrial work roughly equivalent to its financial contribution.

The AEE now manages Spain’s delegation to ESA, a role previously held by the CDTI and the Ministry of Science. This shift ensures that Spanish participation in optional ESA programs – such as human spaceflight or launcher development – aligns with broader national strategic interests rather than solely industrial capability. The relationship with ESA allows Spain to participate in flagship missions that would be too costly to undertake unilaterally, such as the Juice mission to Jupiter or the Euclid space telescope.

European Union Space Programme

Distinct from ESA, the European Union maintains its own space programme, which focuses on operational infrastructures that serve public policy and economic needs. This programme is funded through the EU budget and is managed by the European Commission, with technical implementation often delegated to ESA.

The two pillars of this programme are Galileo and Copernicus. Galileo provides global navigation satellite systems (GNSS), offering an independent European alternative to the American GPS. Spain hosts significant ground infrastructure for Galileo. Copernicus is the Earth observation component, providing vast amounts of data used for environmental monitoring, agriculture, and security. Spain utilizes Copernicus data heavily for managing water resources and monitoring desertification.

EUSPA and Regulatory Bodies

The European Union Agency for the Space Programme (EUSPA) manages the exploitation and service provision of EU space components. While ESA builds the satellites, EUSPA ensures they deliver value to users and markets. EUSPA also oversees the security accreditation of these systems. Spain coordinates with EUSPA to ensure its industries can develop downstream applications based on Galileo and Copernicus data.

At the global regulatory level, Spain participates in the United Nations Office for Outer Space Affairs(UNOOSA) and the Committee on the Peaceful Uses of Outer Space (COPUOS). These bodies maintain the outer space treaties that govern liability, registration of objects, and the peaceful use of space.

Bilateral Agreements and Artemis

Spain strengthened its transatlantic ties by signing the Artemis Accords. These accords, led by the United States and NASA, establish a framework for the peaceful exploration of the Moon and Mars. By joining this coalition, Spain ensures its industry can compete for contracts related to the Artemis program and future lunar infrastructure. This bilateral engagement complements its European commitments, providing a dual track for international cooperation.

The Spanish Space Agency (AEE)

The core of the new governance structure is the Agencia Espacial Española (AEE). Established in 2023, the AEE unifies coordination and strategy that was previously dispersed across multiple ministries. The agency is an autonomous body with a specific legal statute, allowing it the flexibility required to operate in the fast-paced space sector while retaining the authority of a public administration.

The agency is physically located in Seville. This decision aligns with a broader government initiative to decentralize state institutions. The selection of Seville also acknowledges the strong aerospace cluster present in the Andalusia region.

The Presidency and Governing Council

The hierarchy of the AEE reflects the cross-departmental nature of space activities. The Presidency is held by the Minister of Science, Innovation and Universities. This places the agency firmly within the sphere of research and development, acknowledging that science and technology remain the primary drivers of space activity.

However, the governance model requires consensus. The Governing Council acts as the board of directors and includes representatives from all relevant ministries. This council ensures that the agency does not favor one sector over another. For instance, the Ministry of Transport requires assurance that navigation systems function for aviation, while the Ministry of Defence needs secure communications. The Governing Council serves as the forum where these competing requirements are balanced and synthesized into a coherent national position.

The Directorate

Day-to-day operations are managed by the Director of the AEE. The Director is responsible for executing the National Space Strategy, managing the budget, and representing Spain in international forums when the Minister is not present. The Director oversees a structured internal organization divided into specialized directorates that cover the full spectrum of space activities.

Internal Directorates of the AEE

The internal structure of the AEE uses a matrix approach to cover different functional areas.

Science and Exploration: This directorate manages Spain’s scientific roadmap. It oversees participation in planetary science missions, astronomy, and human spaceflight. It acts as the liaison for the scientific community, ensuring that Spanish researchers have access to data and instruments on international missions.

Industry and Technology: This division focuses on the supply chain. It works to improve the technology readiness levels (TRL) of Spanish products. Its objective is to help Spanish companies move from being component suppliers to becoming prime contractors capable of integrating complete satellite systems or payloads.

User Engagement and Services: Space assets generate value only when their data is used. This directorate promotes the downstream sector. It encourages public administrations and private companies to adopt space-based solutions, such as using satellite imagery for urban planning or precision agriculture.

Security and Defence: This is a unique feature of the AEE compared to some other civilian space agencies. This directorate is headed by a General from the Spanish Air and Space Force. The integration of military leadership within the civilian agency structure acknowledges the dual-use nature of space technology. It ensures that national security requirements are baked into the early stages of program development rather than added as an afterthought.

Space and Society: This area focuses on education, workforce development, and public outreach. It manages programs designed to inspire the next generation of engineers and scientists and communicates the value of space investment to the general public.

The Ministerial Matrix

While the AEE provides centralized coordination, the authority and funding for space activities originate from several key ministries. The AEE acts as the focal point where these ministerial interests converge.

Ministry of Science, Innovation and Universities

This ministry is the primary parent of the AEE. It oversees the Centre for the Development of Industrial Technology (CDTI) and funds the majority of civil research and development. The Minister of Science serves as the President of the AEE, ensuring that innovation policy drives the space agenda.

Ministry of Defence

The Ministry of Defence plays a vital role through the Spanish Air and Space Force and the National Institute for Aerospace Technology (INTA). Defence interests focus on secure satellite communications (SATCOM), earth observation for reconnaissance (such as the Paz satellite), and space situational awareness (SSA) to monitor threats to orbital infrastructure. The Ministry of Defence maintains operational control over military space assets, even if the procurement is coordinated through the AEE.

Ministry of Industry, Trade and Tourism

This ministry views the space sector as an engine for economic growth and high-value employment. It supports policies that enhance the competitiveness of Spanish aerospace companies in the global market. Its involvement ensures that space investments translate into exports and industrial capacity.

Ministry of Transport, Mobility and Urban Agenda

As a heavy user of global navigation satellite systems for air, maritime, and rail traffic management, this ministry acts as a key stakeholder. It ensures that the specific reliability and accuracy needs of the transport sector are met by European and national systems.

Ministry of Economic Affairs and Digital Transformation

This ministry oversees the digital agenda. Since satellites are integral to the telecommunications backbone – providing 5G backhaul and rural connectivity – this ministry coordinates with the AEE to align space infrastructure with national broadband strategies.

Ministry of Foreign Affairs

Space is a domain of soft power and diplomacy. The Ministry of Foreign Affairs manages the political aspects of international relations, ensuring that Spain’s space activities comply with international law and support the country’s broader foreign policy objectives.

Key Supporting Public Bodies

The creation of the AEE did not eliminate the existing specialized bodies that have historically sustained the Spanish space sector. Instead, these bodies were integrated into the new governance model as key supporting pillars.

INTA (National Institute for Aerospace Technology)

INTA is a Public Research Institution attached to the Ministry of Defence. It serves as the technological arm of the government for aerospace. Unlike the AEE, which is a management and strategy agency, INTA is an operational and research entity.

INTA owns and operates critical infrastructure, such as the El Arenosillo Experimentation Centre (CEDEA) in Huelva, which is a launch site for suborbital rockets and atmospheric sounding. It also manages the host facilities for ESA’s deep space tracking station at Cebreros and the ESAC astronomy center near Madrid. INTA provides technical certification, testing, and metrology services that are essential for the industry.

CDTI (Centre for the Development of Industrial Technology)

The CDTI is a public business entity under the Ministry of Science. For decades, it was the de facto space agency of Spain, managing the delegation to ESA. Under the new structure, CDTI retains its role as a funding agency. It manages industrial R&D funding and supports companies in their applications for ESA contracts and European Union Horizon Europe grants.

The CDTI provides the financial muscle for the “New Space” ecosystem, offering loans and grants for technology development. It collaborates closely with the AEE to perform technical evaluations of industrial proposals and to ensure that funding allocation matches the national strategy defined by the AEE.

National Space Ecosystem and Beneficiaries

The ultimate goal of this governance structure is to support a thriving national ecosystem comprising three distinct segments: Industry, Academia, and Society.

Industry

The Spanish space industry is diverse, ranging from large prime contractors to agile startups. Major players include the Spanish divisions of Airbus, which have prime capabilities in building satellites and launchers. Thales Alenia Space Spain specializes in communication payloads and optical instruments. GMV is a global leader in ground segment control systems and navigation.

The “New Space” sector is also represented by companies like PLD Space, which develops small satellite launchers (the Miura series), and various startups focusing on nanosatellites and data analytics. The AEE structure is designed to support both the legacy primes and these emerging disruptors.

Academia and Research Centres

Spain boasts a strong network of universities and technology centers that contribute to space science. Institutions such as the Instituto de Astrofísica de Canarias (IAC) are world-renowned. The AEE Science & Exploration directorate works to ensure these academic bodies have the funding and access required to participate in top-tier international science missions.

Society and End Users

The general public benefits from this structure through improved public services. This includes better weather forecasting, more efficient disaster response during wildfires or floods (using Earth observation data), and improved connectivity in remote areas. The “Space & Society” directorate ensures that these benefits are communicated and that the public understands the return on investment for space spending.

Strategic Instruments: PERTE Aerospace

A major driver of the recent reorganization is the Strategic Project for Economic Recovery and Transformation (PERTE) for Aerospace. This is a massive funding instrument financed largely by European Union Next Generation funds. The PERTE Aerospace creates a specific roadmap for investment, targeting key technologies such as zero-emission aircraft and, importantly, autonomous access to space.

The AEE plays a central role in administering the space-related components of the PERTE. This includes the development of the Atlantic Constellation, a cooperative project with Portugal to deploy a fleet of small Earth observation satellites. The PERTE also prioritizes the development of a national launcher capability, allowing Spain to launch small satellites from its own territory, thereby achieving sovereign access to space.

Summary

The Spanish space governance structure represents a mature, integrated approach to a sector that has become vital for national sovereignty and economic prosperity. By establishing the AEE, Spain has moved beyond a fragmented model to a unified command structure that brings together the Ministries of Defence, Science, Transport, and Industry. This centralization allows for a coherent voice in international forums like ESA and the EU, while the retention of strong technical bodies like INTA and CDTI ensures operational continuity. The structure is designed not just to manage orbiters, but to foster a comprehensive ecosystem that links upstream engineering with downstream applications, ensuring that space activity delivers tangible benefits to Spanish society.

Appendix: Top 10 Questions Answered in This Article

Why was the Spanish Space Agency (AEE) created?

The AEE was created to unify Spain’s fragmented space governance, which was previously split among various ministries. This centralization improves strategic coordination, budget efficiency, and provides a single interface for international cooperation.

What is the role of the Ministry of Defence in the AEE?

The Ministry of Defence plays a significant role, with a General from the Air and Space Force heading the Security & Defence directorate. This ensures that national security requirements and dual-use technologies are integrated into the national space strategy.

Does Spain have its own satellite navigation system?

Spain does not have a standalone global navigation system but is a major contributor to and user of the European Union’s Galileo system. The governance structure ensures Spanish transport and security sectors can effectively utilize Galileo services.

What is the relationship between AEE and ESA?

The AEE manages Spain’s delegation to the European Space Agency (ESA). While ESA operates at a European level, the AEE ensures that Spain’s financial contributions result in appropriate industrial returns and alignment with national goals.

Where is the Spanish Space Agency located?

The headquarters of the AEE is located in Seville. This location was chosen as part of a government decentralization effort and to recognize the strong aerospace industrial cluster in the Andalusia region.

What is INTA and what does it do?

INTA is the National Institute for Aerospace Technology, a public research body under the Ministry of Defence. It provides the technical infrastructure, such as test centers and ground stations, required to support the strategies defined by the AEE.

How does the CDTI support the space sector?

The CDTI focuses on the industrial aspect of space by managing R&D funding and technology development grants. It supports Spanish companies in becoming competitive and securing contracts within European programs.

What is the Artemis Accords’ significance for Spain?

By signing the Artemis Accords, Spain aligned itself with the US-led framework for civil space exploration. This facilitates cooperation on lunar and planetary missions and allows Spanish industry to compete for contracts in the Artemis program.

What is the PERTE Aerospace?

The PERTE Aerospace is a strategic funding program financed by EU recovery funds. It directs investment toward critical technologies, including the development of a national small satellite launcher and the Atlantic Constellation.

Who leads the Spanish Space Agency?

The agency is presided over by the Minister of Science, Innovation and Universities, but day-to-day operations are managed by a Director. A Governing Council with representatives from multiple ministries oversees the agency’s direction.

Appendix: Top 10 Frequently Searched Questions Answered in This Article

Is Spain a member of the European Space Agency?

Yes, Spain is a founding member of the European Space Agency (ESA). It contributes significantly to the ESA budget and participates in major scientific and industrial programs managed by the organization.

What does the Spanish Space Agency do?

The Spanish Space Agency (AEE) defines the national space strategy, coordinates the budget across different ministries, and represents Spain in international space forums. It unifies civil and military space activities under one roof.

How much does Spain spend on space?

While specific annual budget figures fluctuate, the article highlights that Spain manages its space investment through contributions to ESA, the EU Space Programme, and national instruments like the PERTE Aerospace, which involves substantial funding for industrial development.

Does Spain launch rockets?

Spain is developing the capability to launch rockets through private companies like PLD Space, supported by government strategy. The AEE and PERTE Aerospace prioritize achieving sovereign access to space for small satellites.

What is the difference between ESA and the EU Space Programme?

ESA is an independent intergovernmental R&D organization, while the EU Space Programme (Galileo, Copernicus) is funded by the European Union and focuses on operational services. Spain participates in both, with AEE coordinating the national involvement.

Does Spain have astronauts?

Spain participates in the ESA astronaut corps. The AEE’s Science and Exploration directorate manages the framework for human spaceflight participation, ensuring Spanish astronauts are integrated into European missions.

What companies are in the Spanish space industry?

The Spanish space ecosystem includes major prime contractors like Airbus and Thales Alenia Space, as well as specialized firms like GMV and PLD Space. The AEE supports this diverse range of companies through industrial policy.

What is the Atlantic Constellation?

The Atlantic Constellation is a cooperative satellite project mentioned in the context of the PERTE Aerospace. It involves deploying a fleet of Earth observation satellites to monitor the Atlantic region, often in partnership with Portugal.

Why is the space agency in Seville?

The agency is in Seville to promote the decentralization of state institutions and to leverage the existing aerospace industrial hub in Andalusia. It moves high-level decision-making outside of the capital, Madrid.

What satellites does Spain operate?

Spain utilizes satellites from the EU’s Copernicus and Galileo programs and has national assets like the Paz radar satellite. The Ministry of Defence and the AEE coordinate the operation and usage of these secure national assets.