Evaluation of the Canadian Space Agency Satellite Communications Business Line

2.1.1 Communications as an enabler

Satellite systems are one option used by industrialized societies to facilitate the transfer of data or information. The exceptional coverage they afford – which, in the case of constellations of satellites, may include the entire planet – is a feature of satellite technologies that sets them apart from other forms of communications. Because they act as a means to transfer information or data, satellite communications are always developed to serve larger purposes and, as technology continues to evolve, the range of activities or initiatives they may support appears almost limitless. Using but a few illustrative examples, satellite communications may be implemented to:

• Provide internet or phone services, connecting individuals, communities, or entities, particularly in remote locations;
• Access entertainment content, such as satellite radio or television;
• Manage or monitor fleets of vehicles or ships;
• Facilitate access to distance learning or telemedicine;
• Support search and rescue operations, through enhance localisation capabilities;
• Support public safety and national security operations, and;
• Support environmental monitoring and national resource management activities.

Satellite communications technologies are also bound to play a predominant role in supporting the ever expanding Internet of Things, along with a myriad of other technologies.

There are various interpretations as to the range of technologies that, in fact, fall within the realm of communications technologies. When considered through the purposes for which they are used, all technologies that allow individuals to speak on the phone (such as mobile or satellite phones), hold videoconferences, exchange emails, or share pictures, data or videos would undeniably be considered communications technologies. But what about global navigation satellite systems (GNSS), such as the Global Positioning System (GPS)? While it is enabled through satellite technologies, its core purpose is to facilitate navigation, not communication. Another example, particularly relevant in the context of this evaluation, is the Automatic Identification System (AIS), which is used for tracking moving objects, notably commercial ships. In this scenario, a transceiver, placed on a ship, broadcasts radio waves containing key information, such as the vessel's name, position, speed, and navigational status. Transceivers located on other ships, or receivers placed on land based or satellite based systems, can then be used to scan, receive and relay the information contained in these signals. As such, is AIS to be considered communications technology?

For the purpose of this report, satellite communications technologies are defined in the broader sense, to include traditional forms of communications, as well as navigation and monitoring technologies such as AIS. This is done to reflect the views expressed by key stakeholders involved in the SCBL, as well as the fact that these navigation and monitoring technologies are not covered by other business lines of the CSA.

2.1.2 Satellite communications: publically or privately driven?

While private industry is heavily involved in commercializing satellite communications services, public spending – most particularly military spending – has historically been a driving force behind the expansion in the range of satellite communications technologies being deployed and their civil, military and commercial applications. The GPS stands as a stellar example of this dual dynamic. Owned by the United States government and operated by the United States Air Force since 1974, the GPS has received considerable public support^{Footnote 1} for its development, improvement and expansion and yet, it continues to be "delivered free of direct user fees for peaceful civil, commercial, and scientific uses worldwide" (US Department of Defense, 2008). Countless civil and commercial applications now rely on access to GPS signals.

Military requirements continue to drive public investments in satellite communications technologies. It is estimated that 80% of worldwide government spending for satellite communications is spent on military projects and activities (Euroconsult, 2013a, pp. 37–38, 42). However, governments have also used public investments to enhance the capacity of their own space industry to compete in commercial satellite communications markets (Euroconsult, 2013a, p. 42). Through funding for Research and Development (R&D) and demonstration activities, governments have helped to reduce the risks of exploring new technologies and of transitioning successful innovations to the market. This dimension is further explored in sub-section 4.1.3 of this report.

The vast space-based communications infrastructure that has emerged from public and private investments now supports a significant sector of Canada's economy. In 2014, $4.5 billion in revenues derived from satellite communications activities (CSA, 2017b, p. 21). Of that amount, $2.7 billion was linked to broadcasting services, which largely target non-government customers, while an additional $1.3 billion derived from satellite operations and the development of applications and products, which are also primarily led by private industries. And the sector could experience further growth. Among other things, the current race to expand broadband connectivity through geostationary and low earth orbit (LEO) high throughput satellite (HTS) systems, including LEO microsatellite constellations such as those being developed by Telesat (involving over a 100 satellites) and One-Web (involving 900 satellites), are triggering further investments that are expected to yield significant revenues (Telesat, 2018; OneWeb, 2018).

The maturity gained by the satellite communications sector, combined with large revenue streams and ever-expanding infrastructures, have led many countries, including Canada, to reduce its public investment in support of the sector (Euroconsult, 2013a, p. 46).^{Footnote 2} In particular, as part of an internal review of its expenditure in 2012, the CSA placed a moratorium on any new satellite communications mission, ceased to fund technology development activities related to satellite communications under its Space Technologies Development Program (STDP) now referred to as Space Technologies Development (STD) initiative, and reduced its investment in satellite communications related programs offered through the European Space Agency (CSA, 2015a, p. 14, 2016b, p. 4).

2.2.1 SCBL overview and objectives

The CSA uses the concept of "business lines" to structure the various space missions it undertakes or participates in. This applies to satellite communications missions, as well as to earth observation or scientific missions. At the time of the evaluation, these various missions were grouped under the "Space Data, Information and Services" Program 1.1 of the CSA (CSA, 2017a), which is now referred to as the Space Utilization Program.^{Footnote 3} While each type of mission pursues its own specific goals, they do share common characteristics:

• Each mission must first be defined and designed, and the required technology must be developed. In some cases, it involves the creation of an entire satellite system, whereas in other instances, it involves the development of sub-systems, payloads or instruments placed on domestic or foreign satellites. As illustrated in Figure 1, these activities fall within the "Earth orbit satellite mission and technology" Sub-Program 1.1.1.
• Each satellite or sub-component also requires ground operating infrastructures and data handling capacity, which are part of the Sub-Program 1.1.2.
• Finally, each mission is expected to facilitate the access and use of the space data acquired through its implementation, which falls under the Sub-Program 1.1.3.

The concept of a "business line" serves to bridge the nature of missions undertaken and these various operational dimensions that any satellite mission would typically include. For the purpose of this evaluation, the emphasis is placed on satellite communications missions, considered through the three sub-programs included in Figure 1 (see highlighted cells). It should be noted that, while the Sub-Sub Programs 1.1.1.2 and 1.1.3.2 are unique to communications missions, Sub-Sub Programs 1.1.2.1 and 1.1.2.2 are shared among the three types of missions that the CSA undertakes (earth observation, communications, and scientific).

In this context, the SCBL's fundamental goal is to enhance, where applicable, the capacity of federal departments and agencies to deliver their programs and services by implementing space-based solutions. Based on the identified needs of targeted departments and agencies, the CSA, through the SCBL, oversees the implementation of satellite communication missions, covering all applicable cycles (CSA, 2016b, p. 16):

• The development of the initial concept (Phase 0)
• The required feasibility studies (Phase A)
• The design, development and implementation activities (Phases B/C/D)
• The ongoing mission operations and data use (Phase E)

Communications and outreach activities are also expected to be undertaken to enhance the awareness and understanding, among applicable departments and agencies, of the potential of space-based solutions in supporting their mandate and programming.

While responding to the needs of federal departments and agencies remains its primary focus, the SCBL is also expected to enhance the capacity of the space industry in the area of satellite communications, through its direct participations in various phases of mission cycles (building and operating satellite components, payloads, instruments, and ground infrastructure, designing new data applications, etc.).

2.2.2 Activities undertaken during the evaluation period

During the period covered by this evaluation (April 2012 to March 2017), CSA's activities related to satellite communications focussed on three missions:

• Maritime Monitoring and Messaging Micro-Satellite (M3MSat): Launched in 2016 as part of a joint project between the CSA and Defence Research and Development Canada (DRDC), M3MSat is a microsatellite that carries three payloads for demonstration purposes: an Automatic Identification System (AIS) that supports the monitoring and management of maritime traffic; a Low Data Rate System (LDRS) that ensures data continuity when AIS receivers cannot provide real-time coverage; and a Dielectric Deep Charge Monitor (DDCM) that supports the ongoing monitoring of static energy accumulated in satellites and improve their overall performance and lifespan (CSA, 2017c).
• Cascade: Integrated as a communication technology demonstration payload on the CASSIOPE satellite (launched in 2013), Cascade is a "proof of concept" design for a high volume store-and-forward data communications operational concept, involving the upload of large data files that can be delivered to almost any destinations in the world (CSA, 2015c).
• Polar Communication and Weather (PCW) mission: Only limited activities related to the PCW mission occurred during the period covered by the evaluation (the bulk of these activities occurred prior to the evaluation period). The mission's primary goal was to provide reliable 24/7 high data rate communication services in the High Arctic, to better monitor weather in that region, and to enhance the monitoring of space weather. This was to be achieved through a system of two satellites operating in highly eliptical orbit (CSA, 2014c).

These three missions illustrate the range of space-based solutions that were supported to respond to the needs of federal departments and agencies. In proceeding with the evaluation of the SCBL, the following considerations guided the treatment given to each of these three missions:

• During the period covered by the evaluation, a large proportion of activities related to satellite communications missions were directed to M3MSat. As such, this mission is the predominant focus of the evaluation.
• The CSA completed an evaluation of the CASSIOPE satellite mission in 2014, which includes the Cascade payload. A summary of the findings from this evaluation served as the primary data source for documenting the activities undertaken through Cascade that are relevant for the purpose of the evaluation (see sub-section 2.3 for further details), while complementary findings were also gathered as part of this evaluation.
• While the CSA did not pursue the PCW mission beyond its initial design concept, this mission is included in the scope of the evaluation to provide further illustration of the range of satellite communications missions that may be required to meet the information needs of federal departments and agencies, as well as to explore the CSA's role in providing technical support to other government departments, such as Department of National Defence and Canadian Armed Forces (DND), in the form of expertise.

The CSA also engaged in preliminary work (mission concept and feasibility study) on advanced encryption technology in space for secure online communications. This initial work, undertaken as part of the SCBL, has evolved into the Quantum Encryption and Science Satellite (QEYSSat) technology demonstration mission, which was officially announced in 2017-18. This mission will be undertaken as part of the Space Capacity Development Program and, as a result, is minimally addressed through this evaluation.

Finally, CSA activities under the SCBL have included spectrum management, which is undertaken to secure the proper frequency spectrum necessary to monitor and control CSA satellites, to make use of the instruments and payloads on CSA satellites, to retrieve satellite data, and to minimize potential interferences from frequency transmissions of other terrestrial or space systems that use frequency spectrum similar to the ones used by CSA.

2.2.3 Program resources

Expenditures related to the SCBL are made up of operation and maintenance (O&M) costs. More specifically, they include costs associated to contracts signed in support of communications missions, and internal expenditures (salaries and operations).

As indicated in Table 1, the CSA invested a total of $36.3 million in SCBL activities over the five years covered by the evaluation. The following assumptions apply to these numbers:

• As previously noted, Sub-Sub Programs 1.1.2.1 (satellite operations) and 1.1.2.2 (data handling) are shared among the three types of satellite missions undertaken by the CSA (earth observation, communications, and scientific). As a result, a third of the total expenses allocated by the CSA to these two Sub-Sub-Programs is allocated to each type of missions. As these are generic costs, they are not included in Table 1.
• In addition to costs included in Table 1, a third of the expenses related to the overall management of the Space Utilization branch is allocated to the SCBL. As these activities fall beyond the scope of the evaluation, their associated expenses are not included in Table 1.
• Finally, while other programs of the CSA, such as Space Science and Technology, provide matrix support for the implementation of SCBL activities, these resources are not included in Table 1.

As previously noted, no new missions were undertaken during the period covered by the evaluation. As a result, expenditures in Table 1 are associated with missions and activities that had already been approved, and for the purchase of AIS data and services on behalf of the federal government.

2.2.4 Management structures

The Director General of the Space Utilization Branch holds the overall responsibility for activities carried out under the SCBL. In doing so, he operates within the set of applicable policies from the Treasury Board of Canada Secretariat (CSA, 2016b, p. 9), as well as the Project Management Policy and the Integrated Governance and Monitoring Framework Directive adopted by the CSA. This latter policy includes a Project Complexity and Risk Assessment tool that supports the assessment of the nature and complexity of each project being considered by the Space Utilization Branch, including satellite communications missions.

To support the ongoing coordination of activities related to all satellite missions within the Space Utilization Program (earth observations, communications or scientific), the Director General of the Space Utilization Program chairs the Space Utilization Management Committee. It is the responsibility of each director to implement the decision of this Committee as applicable.

Each individual project related to the SCBL is assigned a Project Team that includes a Program Manager and a Systems Engineer. Matrix support is provided, either within the Branch or from the Space Science and Technology Branch. As required, external contracts are managed by the CSA contract group, with the assistance of Public Services and Procurement Canada (PSPC). The SCBL does not use grants and contributions to carry out its activities.

2.2.5 Program logic

The logic of the SCBL is described in its Performance Measurement Strategy (CSA, 2016b, p. 15). The logic model, which illustrates the SCBL's results chain, is presented in Figure 2, while a more detailed description of each component of the logic model is included in Appendix A.

Figure 2

3.2.1 Overall approach

In light of the proposed scope of the evaluation, and of the limited activities that had been carried out over the evaluation period, the evaluation approach included a number of qualitative methods that allowed for an appropriate triangulation of findings, particularly as it related to the relevance of the SCBL. The goal was to document the actual needs of targeted stakeholders, while also documenting and describing the broader context for satellite communications missions carried out for public purposes (as opposed to private or commercial purposes) in Canada and in other jurisdictions as applicable. The proposed approach also included quantitative methods to ensure an effective integration of performance and financial data on activities undertaken.

Throughout the implementation of the methodology, including the design of data collection instruments and the analysis of evaluation findings, a particular focus was placed on ensuring that the M3MSat mission could be appropriately assessed and reported on. The goal was to provide mission-specific analysis, while also ensuring that it be linked to the analysis of the SCBL as a whole.

3.2.2 Document and literature review

The document and literature review informed all evaluation questions. It included both information provided by the CSA on the SCBL, including documents that are specific to M3MSat, as well as documents provided by other stakeholders, including federal departments and agencies in relation to their involvement in satellite communications missions, or their needs for space-borne data.

As it relates more specifically to performance data, the CSA approved the SCBL's Performance Measurement Strategy in March 2016. As such, some but not all performance indicators had been documented at the time of the evaluation. The performance information included a variety of operational documents, administrative data, and financial information.

The literature review portion of this task focussed on the relevance of the SCBL. It covered both the Canadian context and the activities of other jurisdictions, as applicable. An international scan of government funded satellite communications activities by the other space-faring nations was conducted to obtain a better understanding of how these nations are investing in satellite communications solutions (data, information and services).

3.2.3 Key Informant Interviews

Key informant interviews contributed to the in-depth understanding of the SCBL, including results achieved and challenges faced by key stakeholders. These interviews also corroborated, explained, or further elaborated on findings from other data sources and provided important input into whether outcomes have or have not been achieved, and why they have or have not been achieved.

A total of 45 interviews of approximately one hour each were conducted, which involved 58 individuals (some were group interviews) from five different stakeholder groups. Federal departments and agencies (other than the CSA) were sub-divided based on the level of involvement they have had in satellite communications. While some departments, such as DND, have used space-based communications solutions quite extensively, other departments, such as Transport Canada, have more recently engaged in this field. As for academia, while they were not a predominant stakeholder group, interviews were conducted with professors who have been engaged in satellite communications missions. The distribution of these interviews is included in Table 2.

3.2.4 Limitations

This section describes the limitations encountered in the evaluation and how they were addressed.

4.1.1 Level of engagement in satellite communications

With some exceptions, which are further discussed in this report, each federal department and agency determines the extent to which it will use satellite communications technologies to support the delivery of its activities and program. As such, there has been no systematic and government-wide efforts to coordinate or facilitate the adoption of space-based communications solutions within departments and agencies.

In this context, the evaluation provided an opportunity to better understand how satellite communications technologies are currently integrated in the operations of federal departments and agencies. However, the evaluation cannot claim to offer a comprehensive listing of all instances in which these technologies manifest themselves within the federal government as it falls well beyond the scope and purpose of the evaluation.

The evaluation found that satellite communications cannot always be considered in isolation from other forms of satellite-based technologies, particularly when it comes to radar imaging capabilities such as those found on RADARSAT-2. For many representatives from federal departments and agencies who were interviewed, the actual or potential benefits derived from satellite-based technologies, such as being able to monitor ships, are their prime area of interest, rather than any technological distinctions between navigation, communications, or imaging technologies.

Keeping these considerations in mind, the following sections summarize evaluation insights that speak to the level of engagement in satellite communications by federal departments and agencies.

4.1.2 The participation of departments and agencies

4.1.3 Supporting the space industry

4.1.4 Expectations towards the federal government and the CSA

Evaluation findings confirm that the federal government has an important role to play in the field of satellite communications. Any remaining assumption that this largely commercially-driven sector of space activities is sufficiently mature to operate and grow without government support must be set aside in favour of a more balanced perspective that reflects the remarkable transformations that the sector continues to experience. While the agency has a critical role to play in that regard, it is a goal that extends beyond the CSA.

This vision, which emerged from evaluation findings, is also aligned with the work that the Space Advisory Board recently conducted. Tasked by the Minister of Innovation, Science and Economic Development (ISED) to consult with stakeholders on a new space strategy, the Board tabled a report that includes eight key proposals for consideration by the Minister (Space Advisory Board, 2017). The report covers all areas of space activities, including important insights that relate directly to satellite communications.

More specifically, in proposing that space be designated a "national strategic asset", the Board not only emphasized the level of deep integration that space technologies have into all dimensions of Canada's society, but it also noted that, in order to operationalize such an approach, all departments and agencies must "focus and synchronize policies and programs to support the development and growth of a national space capacity capable of meeting national needs and competing in the global market" (Space Advisory Board, 2017, p. 4).

In order to develop and grow this space capacity, the Board addressed both the initial support provided in technology development and the impact of procurement policies when it comes to acquiring data, services or assets: "The government has a wide range of procurement policies and practices that could be leveraged to better promote the development of internationally competitive space companies and world-class science" (Space Advisory Board, 2017, p. 6).

Finally, echoing principles contained in the 2014 Space Policy Framework (CSA, 2014a, p. 11), the Board proposed that the federal government "procure space services (as opposed to owning and operating space system) whenever possible in order to promote private sector investment" (Space Advisory Board, 2017, p. 8).

Promoting the use of satellite communications technologies and growing the Canadian space industry that is contributing to this sector also reflect the priorities of the federal government as defined in Canada's Innovation and Skills Plan, where innovation and technological capacity are identified as key contributors to positioning Canada in the digital economy (Government of Canada, 2017a).

During interviews conducted as part of this evaluation, key informants provided insights that are largely aligned or that build upon this vision. The following key messages emerged from these interviews:

• The New Space environment is transforming the industry, particularly in the field of satellite communications technologies and their applications. In this context, it would be misguided to think of the communications space industry has being a mature sector that is largely operating within a stable and predictable environment.
• The emergence of LEO satellite constellations may arguably redefine the access to broadband Internet, particularly in remote locations, which would both address longstanding concerns with access to proper communications technologies in such locations, and open-up a range of potential applications that have yet to be defined, designed, demonstrated and commercialized.
• The CSA continues to play a critical role in supporting research and development, and demonstration activities in satellite communications technologies, particularly through STDP, the Flight and Fieldwork for the Advancement of Science and Technology (FAST) program, space demonstration activities, and its participation in the ARTES program with ESA.
• In some instances, when the emerging technology primarily (or at least initially) serves a public purpose, where the commercial potential is narrower, and the level of risks remains particularly significant, the need for the federal government to undertake full communications missions may still be required. In such cases, the CSA is expected to play a central role. The QEYSSat technology demonstration mission mentioned in sub-section 2.2.2 illustrates well this principle.
• There is a lack of awareness and organizational capacity within federal departments and agencies (other than DND and the CSA) on how best to integrate satellite communications in support of the delivery of their respective programs and activities. The CSA is perceived as the natural broker of knowledge and the institutional guide that can support decision-making within these departments and agencies when it comes to satellite communications options.
• The federal government as a whole has a pivotal role to play in using its procurement practices to strategically support the Canadian space industry involved in communications technologies. While this challenge extends well beyond the CSA, the agency is expected to inform any government-wide strategy that would support this goal.

These key messages indicate that, in addition to the long-standing role that the CSA has played in supporting R&D and the demonstration of new space-based technologies, there is a need to address a remaining gap in coordinating and enhancing the capacity of federal departments and agencies to engage in new space-based communications solutions. As well, the views around the larger role of procurement to support the Canadian space industry reflect the fact that positioning the industry in this particular field requires a government-wide approach, which extends well beyond the strict mandate of the CSA.

4.2.1 The M3MSat mission

4.2.1.2 Mission implementation and results

Finding: The CSA and DND have successfully managed the M3MSat mission, which has provided opportunities to develop and demonstrate emerging communications technologies, including the AIS data that has been successfully commercialized. The mission has, however, encountered challenges that have extended the initial mission timeframe and required additional investments. (Evaluation question: Performance #1)

The M3MSat mission achieved its demonstration objectives, but in order to do so, it required more time and investments than initially anticipated.

On June 22, 2016, the Polar Satellite Launch Vehicle (PSLV-C34), owned and operated by the Indian Space Research Organization (ISRO), successfully placed M3MSat in orbit (CSA, 2017c; ISRO, 2016). All three payloads had been integrated in the MMMB platform, and once the commissioning process was completed in May 2017, each had operated and met their technical requirements:

• In the specific case of the AIS payload, the system has met or exceeded expectations. According to representatives from the CSA, industry, and academia who were interviewed as part of this evaluation, the AIS antenna and system placed on M3MSat have provided one of the most advanced and reliable information on ship movements that is currently available. These results further support the current initiative to integrate AIS and SAR imaging technologies on board the RCM.
• In the case of the other two payloads (LDRS and DDCM), they have been successfully tested, but they have not been in operation thereafter. Evaluation findings indicate that there was no direct demand for the ongoing operation of these two payloads, and to minimize any potential interference, the decision was made to not operate them beyond the demonstration stage.

As for the ground operations required to operate M3MSat, the initial plan was that DRDC would undertake these activities, but by the time M3MSat was launched, the decision was made to have the CSA operate the satellite. No new infrastructure investments were required. To this day, M3MSat is operated alongside other satellites. A hybrid team consisting of CSA employees and sub-contractors look after the ongoing operation of M3MSat. Evaluation findings indicate that these activities have been carried out successfully.

Finally, in order to operate M3MSat, the proper radio licence had to be secured in accordance with the broadcasting and telecommunication regulation managed by ISED, a process that also includes international coordination activities required by the International Telecommunication Union (ITU). While the owner of the satellite, in this case DND, is technically responsible for undertaking the required spectrum management activities, the CSA largely managed this process, based on its corporate expertise in the field. This process, while lengthy, was successfully completed in time for M3MSat to transmit frequencies once in orbit.

In addition to supporting federal departments and agencies and the Canadian space industry, the M3MSat mission provided an opportunity for the Center for Intelligent Antenna and Radio System (CIARS) from the University of Waterloo to strengthen its expertise. According to the Director of CIARS, Professor Safieddin (Ali) Safavi-Naeini, this was one of the most challenging antennas ever designed and developed by the Center, and the acquired expertise has already been applied to other space-related projects (CSA, 2016c).

The most significant challenge that the M3MSat mission encountered was a series of delays that considerably lengthened the mission schedule. Figure 3 illustrates the time required to complete each mission phase, and evaluation findings provided the following insights on the main factors that contributed to these delays:

• A number of technical modifications to the MMMB and the AIS payload have expanded the design phase of the mission (phases B and C). As previously noted, the original plan was to have the M3MSat in operation for up to 24 months. However, since the satellite was expected to work in conjunction with other commercial satellites, COM DEV and the CSA agreed to proceed with a higher level of redundancy (also referred to as dual strength), which is typically required for satellite that are expected to operate over a longer period of time. In addition, the original design for the AIS antenna was revised in favour of a more innovative design that could provide better performance. In practical terms, this meant that the mission would no longer proceed with the original antenna included in the project proposal, which had already achieved a certain level of maturity in technological readiness level (TRL). Rather, the team operated with a TRL 1 concept, and built up a new antenna. Both the changes to the MMMB and the AIS antenna delayed the early phases of the mission.
• With the additional time required for the design of M3MSat, its expected launch date was first moved from 2009 to 2011, before being further revised and confirmed for February 2013. Two other Canadian satellites, NEOSSat and Sapphire, were also scheduled for the February 2013 launch to be provided by the ISRO. As available volume on the launch vehicle became an issue, only NEOSSat and Sapphire were included in the launch. At that point, the decision was made to launch M3MSat using Roscosmos, a Russian launch provider, which had a vehicle scheduled for take-off in June 2014. In early 2014, unforeseen events prevented the launch of the satellite from Russia as planned. After several months of discussions and negotiations, the services of ISRO were retained and, on June 22, 2016, the PSLV-C34 placed 20 payloads in orbit, including M3MSat. Commissioning of the satellite was completed on May 18, 2017, and M3MSat has been in operation ever since.

Figure 3

The revisions and delays in launching M3MSat have had a financial impact. The total allocated budget for the mission had to be increased by $7 million to mainly cover expenditures related to new launching arrangements and to the requirements for the storage and maintenance of the spacecraft while awaiting the launch.

4.2.2 The Cascade payload

As noted in sub-section 2.3, the CASSIOPE mission (launched in 2013) successfully demonstrated the secure digital store-and-forward file delivery service technology contained in the Cascade payload. Over time, however, MDA (through Cascade Data Services Inc.) has been unsuccessful in securing commercial clients for this new communication technology. At the time of this evaluation, neither MDA nor Cascade Data Services Inc. was offering this space-based file delivery service. As such, the business case for Cascade did not materialized and the evaluation found no indications that it will do in the foreseeable future.

While the direct benefits associated with the Cascade payload were not attained, the evaluation indicates that indirect benefits were, in fact, realized. First, the CASSIOPE mission was undertaken in a period of systematic changes in the space industry as the commercially-driven New Space paradigm was emerging (CSA, 2014b, p. 16). Having both ISED (Industry Canada at the time) and the CSA involved in financially supporting the demonstration of the Cascade technology reflected an industrial goal of maintaining and enhancing space capacity in Canada (Ciuriak & Curtis, 2013, p. 18; CSA, 2014b, p. 3). In addition, the technical expertise gained through the Cascade project, particularly in the area of high speed Ka-frequency band, has since been applied by MDA to other projects, such as the recent contract that the company signed with the Franco-Italian aerospace manufacturer Thales Alenia Space for the provision of communication subsystems for its O3b constellation of medium earth orbit satellites (MDA, 2016a).

4.2.3 The Polar Communications and Weather (PCW) mission

Improving communications capabilities in Canada's North is a longstanding goal of the federal government. Back in 2007, the CSA established the PCW Users and Science Team that was tasked with identifying the range of institutional needs among federal departments and agencies for communications services and meteorology in the Arctic region (Euroconsult, 2012, p. i). On that basis, the CSA, in collaboration with Environment Canada^{Footnote 9} and DND completed a Phase 0 feasibility study, followed by a Phase A detailed mission analysis and concept definition study. In 2014, PSPC issued a Request for Information to inform the Canadian industry about this proposed whole of government project, to seek the industry comments on the proposed business requirements, and to explore potential delivery models (PWGSC, 2013, p. 1).

Having both the weather and communications requirements included in the same mission and operating on the same satellite raised a number of technological challenges, and proved to be too expensive to be implemented. As already noted in sub-section 4.1.1.1, DND continues to explore options for space-based communications solutions that could support the command and control of military operations in the Arctic, through the proposed ESCP-P initiative. As this project evolves, the need of other stakeholders, namely other federal departments and agencies operating in the North, may be addressed as part of the proposed solution. The CSA continues to provide technical support as part of the ESCP-P initiative.

4.3.1 Resource allocations

Table 1 (on page 7) includes the distribution of the overall financial resources allocated to the SCBL over the five year period covered by the evaluation. A little more than two-thirds of the $36.3 million allocated to the SCBL were directed to contract expenditures. In the case of mission development, these expenditures were almost exclusively directed to COM DEV International (now Honeywell Aerospace) for developing and manufacturing the satellite bus and its components for the M3MSat mission. The involvement of COM DEV began in 2008, so other resources were directed to COM DEV prior to the period covered by the evaluation. In the case of service and data utilization, the vast majority of resources were directed to exactEarth, principally for the purchase of its AIS marine data services.

As for the allocation of Full Time Equivalents (FTE) to the SCBL, the trends presented in Figure 4 reflect the decreasing involvement of the CSA in satellite communications over the period covered by the evaluation and the fact that the launch of M3MSat was delayed, limiting activities during these waiting periods.

4.3.2 Processes to enhance efficiencies

The CSA used a number of processes to structure, monitor and execute the M3MSat mission:

• As noted in 4.2.1.1, a Joint Project Office was established to support the co-management of the mission and a supporting arrangement was signed in 2006 to further define the roles and obligations of both DRDC and the CSA throughout the implementation of the mission.
• A Joint Implementation Plan was established in 2007 to confirm the scope of the mission, the distribution of roles and responsibilities, the activities to be undertaken for each mission phase, and the overall project management and accountability structure.
• All contracting activities were undertaken in accordance with federal government requirements, and involved PSPC to manage procurement processes and negotiate all contracts signed on behalf of the Crown.

Evaluation findings indicate that the co-management of the mission was successfully carried-out. In particular, both the CSA and DRDC representatives indicated that the roles were well defined and that the two organizations offered complementary expertise and knowledge.

As already noted, additional resources had to be allocated in order for the mission to be fully executed. These additional resources were secured and managed in accordance with applicable federal policies and procedures.

The CSA completed a Project Closure Report that provides detailed insights and lessons learned on the M3MSat mission, particularly from a technical and internal management perspective, which includes a series of recommendations based on the experience of M3MSat. This closure report plays a highly complementary role to the findings included in this evaluation report.

4.3.3 Gender-Based Analysis Plus

In July 2016, the federal government released its new Policy on Results (Government of Canada, 2016c), along with its associated Directive on Results (Government of Canada, 2016b). This new framework clarifies expectations related to gender-based analysis plus (GBA+). First, it confirms that in establishing their performance measurement strategy, program managers must include, where relevant, a gender-based analysis. It also identifies, as a mandatory procedure, that all evaluations be planned to take into account, where relevant, gender-based analysis.

In March 2017, the CSA approved its own policy and procedures governing gender-based analysis, which is based on the concept of GBA+, as defined by the Status of Women Canada (Status of Women Canada, 2017). This framework explores how "diverse groups of women, men and gender-diverse people may experience policies, programs and initiatives". Put simply, GBA+ is an analytical tool that is expected to be used to support all programming cycles, from initial design, to implementation and evaluation with a view of ensuring equitable access and benefits.

For the purpose of this report, it is particularly important to emphasize the "Plus" segment of GBA+. In addition to sex and gender, GBA+ considers a range of identity factors, such as age, culture, income, and geography. For instance, a GBA+ analysis may wish to explore how isolated communities, regardless of gender, may be affected (positively or negatively) by the implementation of a certain program, policy or initiative.

During the period covered by the evaluation, the policy and procedures of the CSA relating to GBA+ were not in place. Consequently, this evaluation is not assessing the extent to which proper gender-based analysis plus had been performed as part of the management of the SCBL. However, it is relevant to note the role that the CSA has played during the implementation of the SCBL, particularly as part of the PCW mission, in ensuring that the communications needs of isolated communities in Canada's North could be addressed. By promoting and supporting access to proper communications in these regions, which in some cases are still under-serviced (by the absence of services or by the prohibitive costs associated with such services), the CSA plays an important role in ensuring that all Canadians can access and benefit from technologies that reflect the requirements and expectations of our times.

This type of considerations reflects the nature of activities in which the CSA is involved as a space agency, and can inform the implementation of its GBA+ policy moving forward.

Federal capacity to engage in space-based communications solutions

At the time of this report, some capacity existed within the federal government to navigate space-spaced communications technologies. DND is engaged in a number of space missions and has established a policy framework to guide the department in this field. In particular, the future of the ESCP-P project will have a significant impact on the department, which may also extent to other departments and agencies. Along the same line, the upcoming launch of RCM will allow DND to further integrate communications and imaging technologies to support its mandate. Through the three operating MSOC, DND is also collaborating with the RCMP, CBSA, TC, and DFO in integrating AIS data to their respective operations.

Despite these achievements, the evaluation confirms that federal departments and agencies still lack institutional capacity to fully engage in satellite-based communication technologies. In fact, there is still limited government-wide efforts undertaken in a systematic manner to support such an engagement. The evaluation provided an opportunity to explore what other nations are undertaking and the current SSGP initiative in the U.K. appears particularly relevant.

As the commercially-driven New Space environment allows for a greater number of industries to engage in satellite communications and expands the range of solutions being offered, there is a risk that this greater level of opportunities will, in fact, create a more confusing environment in which to operate if there is not sufficient expertise to guide decision-making processes. To this end, the CSA has an undeniable role to play to facilitate the adoption of space-based communications solutions among federal departments and agencies. Consequently, the evaluation recommends that the Space Utilization branch explore options with regards to the role the CSA could play concerning the use of space-based communications solutions by federal departments and agencies in order to enhance their ability to deliver their programs and activities.

Support to the space industry

World-wide, government authorities continue to support the space industry involved in communications technologies. There is long-standing recognition that innovation in satellite-based communications technologies involves a high level of risks, particularly in light of the financial investments it requires. For this reason, public investments are made in many regions of the world to support the research and development, the demonstration in space, and the commercialization of new technologies. This applies to the current environment, where broadband connectivity is a key priority, particularly as it relates to LEO constellations of communications satellites and other forms of HTS systems, which will open the door to countless commercial, government and civil applications.

During the early part of the period covered by the evaluation, the CSA had reduced its level of support for R&D and demonstration activities involving satellite communications. This approach was revisited during the evaluation period and, at the time of this report, the CSA had been using its STDP and demonstration funding, as well as its participation in ESA programs such as ARTES, to support communications projects in high risk but innovative space sectors. The QEYSSat mission and the support provided to MDA for the development of antenna subsystems for the planned OneWeb LEO Constellation, illustrate well this type of support.

The extent to which full missions involving government-owned and operated satellites will be required to meet the needs of departments and agencies, or to support the demonstration of new technologies, will be determined on a case-by-case basis. The current exploration of options around the ESCP-P project is one such case. With a targeted date of 2029 for the new satellite to be operational (assuming no delays), it raises once more the question of determining what other commercial solutions will have long been implemented before that date that could satisfy the needs of departments and agencies.

Finally, as government intensifies its engagement in space-based communications solutions, there is a need to ensure, to the extent possible, that its procurement practices are serving the strategic goal of supporting the Canadian space-industry. The evaluation indicates that a government-wide vision in that regard has yet to be established.

Is the Business Line model the most efficient approach?

The evaluation indicates that the Business Line model offers an appropriate structure for full missions involving government-owned and operated satellites such as M3MSat, but it is not particularly well suited to cover the entire range of activities that the CSA undertakes in support of space-based communications solutions. In particular, the STDP and space demonstration support provided by the CSA, or its participation in the ARTES program, fall outside of the scope of the Business Line. The new Departmental Results Framework that the CSA was in the process of implementing at the time of this evaluation focusses on the overall development of space capacity and space utilization, rather than pursuing separate business lines. This approach supports a more integrated perspective on satellite communications activities by covering all relevant activities of the CSA.

Space-based communications technologies will continue to offer a rich variety of opportunities for public, commercial and civic applications, which support the type of innovative economy that the federal government wishes to further grow. In this environment, the governing model that the CSA will apply to direct its involvement and contribution in this sector of space activities is bound to evolve beyond the current parameter of the SCBL.

The M3MSat mission

The M3MSat mission is the central communications project in which the CSA has been involved during the period covered by the evaluation. Jointly initiated in 2006 by DND and the CSA, the purpose of this technology demonstration project was to support Canada's involvement in an emerging opportunity to track AIS signals from space, which in turn, could support a range of marine monitoring, tracking and surveillance activities that were, up to that point, supported by ground-based technologies only. More precisely, the goal was to allow relevant departments and agencies to integrate this new technology, and to support the strategic positioning of the Canadian space industry in delivering AIS marine data services. The mission was also pursuing demonstration goals related to the use of MMMB, and to the LDRS and DDCM technologies.

The M3MSat mission achieved its demonstration objectives. The MMMB successfully hosted all three payloads, each of which was successfully tested. Since there was no demand for the ongoing operation of the LDRS and DDCM payloads, only the AIS technology has been operating since the full commissioning of the satellite was completed in May 2017.

The main challenge encountered with the M3MSat mission is the series of delays that significantly extended the initial mission timeframe. The CSA has proceeded with a full project closure analysis and report that identify a number of lessons learned. In some cases, such as the design of the MMMB and the AIS antenna, these delays were largely within the control of the CSA and DND. In the cases of launch arrangements, the challenges faced were outside of the control of CSA and DND. These delays have increased the level of investments required for the mission.

The M3MSat mission has supported the Canadian industry in further exploring AIS opportunities, as shown by the commercial offerings that exactEarth initiated in 2009, and has further expanded ever since, including with the integration of the M3MSat AIS data. The CIARS from Waterloo University also gained considerable expertise, which has further positioned this academic institution in space-based projects.

The decision to proceed with a demonstration satellite that was owned and operated by the federal government reflected the predominant approach to micro-satellite missions in the early 2000, particularly as the MMMB model was being tested. As such, this approach was based on reasonable assumptions. The same approach may not be required in the current New Space environment if such a mission was to be undertaken today. A more targeted support for R&D and demonstration activities would arguably be more effective.

Other activities

While successfully demonstrated, the Cascade payload (integrated in the CASSIOPE mission) has not been commercialized, and there were no indication, at the time of the evaluation, that any commercialization would be achieved in the foreseeable future. Despite this outcome, this project has served to support the Canadian space industry, and the expertise gained has since been applied to other space projects.

Finally, the PCW mission has continued to evolve during the evaluation period, but no decision has been made by the federal government on how best to meet the communications needs of DND, while also considering other civil applications of enhanced communications capability in Canada's North. At the time of this report, an RFI related to the ESCP-P project was being managed with the support of the CSA.

Program efficiency

The resources assigned to the SCBL have been predominantly used for contract purposes in support of the implementation of the M3MSat mission, and the acquisition of commercially-available AIS data. The level of FTEs has decreased throughout the evaluation period, which reflected the reduced involvement of the CSA in communications technologies.

A number of processes have been implemented to support the work of the CSA, particularly as it relates to its direct collaboration with DND. Both the CSA and DND were successful in co-managing the M3MSat mission, with the support of other organization such as PSPC to support the procurement process.

In the specific case of M3MSat, an additional $7 million has been required to complete the mission and manage the delays encountered throughout the mission. As already noted, a portion of these additional resources were required to manage developments that were beyond the control of the CSA or DND.

Finally, satellite based communication solutions will continue to play a critical role in ensuring that isolated regions of Canada, particularly some of Canada's Northern communities, can access the range of technologies that are required to fully engage economically and socially, and to access government programs and activities. It is within the GBA+ framework that the program can further identify the differential impacts of various identify groups and explore its options with these needs in mind.

Activities and Outputs

Immediate Outcomes

This immediate outcome results from the definition, design, technology development and implementation of SatCom satellites dedicated to producing data or information for communications services, ranging from search and rescue operations, navigation systems and relevant and timely communications links contributing to the protection and safety of lives across a vast geographical area. This outcome includes continuous operations and is necessary to produce pertinent SatCom data that assist with the mandate delivery of GoC organizations that deal especially with key national priorities, such as safety and security, natural resources and energy, and environment and agriculture Services.

This outcome results from the development of an integrated and coordinated national system of ground infrastructure to receive data from domestic or foreign satellites is in place. In addition, the ground infrastructure houses and uses the equipment required for satellite operations. This outcome is the operation of satellites as well as making available space-based data received by the Canadian Space Agency to assist GoC organizations in delivering their mandate.

This outcome includes a coordinated national approach to establish space data acquisition and handling facilities in their optimal location and capabilities. This outcome results from the planning and tasking of data acquisition, as well as the capture, calibration, validation, cataloguing, archiving and availability of space data received from domestic or foreign satellites to assist GoC organizations in delivering their mandate. This outcome includes evidence-based management of data utilization by accomplishing the systematic verification and monitoring of data consumption by type for the use by GoC organizations.

This outcome is the utilization of SatCom data acquired from Canadian and foreign space assets and includes the broadening of the applicability of currently available SatCom space products and satellite services (optimization) or the creation of new ones (innovation) for the user community (GoC organizations and industry).

Intermediate Outcomes

This intermediate outcome results from the development of complete Canadian satellite systems or sub-systems, payloads, instruments or other components provided to domestic and foreign satellites and results in GoC organizations using the data and services generated to deliver on their mandate. The activities leading to this outcome also includes the development of advanced technologies that could enable or determine the nature of potential new SatCom satellite missions to provide improved data and services to GoC organizations. The outcome is that GoC organizations use satellite generated data and information to deliver their mandate. Canadian capacity is also demonstrated by this outcome.

This intermediate outcome is the development of an integrated and coordinated national system of ground infrastructure to receive data from domestic or foreign satellites. In addition, the ground infrastructure houses and uses the equipment required for satellite operations. This outcome is the capability to operate satellites and to process and make available space-based data received by the Canadian Space Agency to assist GoC organizations in delivering their mandate.

This intermediate outcome is the development of the utilization of space-based data and information, and of communications services available on space assets for the benefit of the user community, primarily GoC organizations. The outcome is an increase in the ability of GoC organizations to use space-based solutions (applications, models, algorithms) for the delivery of their mandate and to foster the development of a Canadian value-added industry. This activity has traditionally been mostly focused on CSA missions.

Ultimate Outcomes

The ultimate outcome of the SatCom Business line is to provide space-based solutions (data, information and services) and foster the progression of their utilization. It also serves to install and run ground infrastructure that processes the data and operates satellites. This Program utilizes space-based solutions to assist Government of Canada (GoC) organizations in delivering growing, diversified or cost-effective programs and services within their mandate, which is related to key national priorities, such as sovereignty, defense, safety and security, and protection of Canadian interests in the North.