[Senate Report 119-128]
[From the U.S. Government Publishing Office]
Calendar No. 440
119th Congress } { Report
SENATE
2d Session } { 119-128
_______________________________________________________________________
ORBITAL SUSTAINABILITY ACT OF 2025
__________
R E P O R T
of the
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
on
S. 1898
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
June 18, 2026.--Ordered to be printed
_______
U.S. GOVERNMENT PUBLISHING OFFICE
69-010 WASHINGTON : 2026
SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
one hundred nineteenth congress
second session
TED CRUZ, Texas, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington
ROGER F. WICKER, Mississippi AMY KLOBUCHAR, Minnesota
DEB FISCHER, Nebraska BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee TAMMY BALDWIN, Wisconsin
TODD YOUNG, Indiana TAMMY DUCKWORTH, Illinois
TED BUDD, North Carolina JACKY ROSEN, Nevada
ERIC SCHMITT, Missouri BEN RAY LUJAN, New Mexico
JOHN CURTIS, Utah JOHN W. HICKENLOOPER, Colorado
BERNIE MORENO, Ohio JOHN FETTERMAN, Pennsylvania
TIM SHEEHY, Montana ANDY KIM, New Jersey
SHELLEY MOORE CAPITO, West Virginia LISA BLUNT ROCHESTER, Delaware
CYNTHIA M. LUMMIS, Wyoming
Brad Grantz, Majority Staff Director
Lila Harper Helms, Democratic Staff Director
Calendar No. 440
119th Congress } { Report
SENATE
2d Session } { 119-128
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ORBITAL SUSTAINABILITY ACT OF 2025
_______
June 18, 2026.--Ordered to be printed
_______
Mr. Cruz, from the Committee on Commerce, Science, and
Transportation, submitted the following
R E P O R T
[To accompany S. 1898]
[Including cost estimate of the Congressional Budget Office]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 1898) to establish a
demonstration program for the active remediation of orbital
debris and to require the development of uniform orbital debris
standard practices in order to support a safe and sustainable
orbital environment, and for other purposes, having considered
the same, reports favorably thereon without amendment and
recommends that the bill do pass.
PURPOSE OF THE BILL
The purpose of S. 1898, the Orbital Sustainability Act of
2025, is to establish a Federal program to identify and reduce
orbital debris and to support research and development for
active debris remediation technologies, particularly to promote
uniform space sustainability standards and traffic coordination
practices.
BACKGROUND AND NEEDS
Access to outer space is crucial for U.S. national security
and economic growth. Satellites orbiting Earth have become
vital to our daily lives, enabling global communication,
weather monitoring, vehicle navigation, and increased crop
yields. As of 2021, the United States Space Surveillance
Network (SSN) sensors track more than 27,000 pieces of orbital
debris. About 23,000 of these debris pieces are larger than a
softball.\1\
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\1\Eva Cullen, ``Orbital Ecology: Science's Frontier in Addressing
the Space Debris Dilemma,'' Columbia Undergraduate Science Journal,
August 24, 2023, https://journals.library.columbia.
edu/index.php/cusj/blog/view/550.
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Much more debris--too small to be tracked but large enough
to threaten human spaceflight and robotic missions--exists in
the near-Earth space environment. There are half a million
pieces of debris the size of a marble or larger, and about 100
million pieces approximately 0.04 inches (one millimeter) or
bigger. There is even more micrometer-sized debris (0.000039
inches in diameter). Even a tiny piece of orbital debris
hitting a spacecraft could cause serious problems: disrupting
satellite operations, delaying missions, raising insurance
costs, and hindering growth and innovation in the commercial
space sector.
As the number of satellites and satellite constellations in
low Earth orbit (LEO) continues to grow rapidly, the risks
associated with orbital debris are increasing. Commercial space
activity has expanded significantly in recent years, with
thousands of new satellites launched annually to support
broadband connectivity, Earth observation, scientific research,
and national security missions. While these systems provide
substantial benefits, the increasing density of objects in
orbit heightens the likelihood of collisions, which generate
additional debris and further degrade the safety and
sustainability of the space environment.
The Orbital Sustainability Act of 2025 would seek to
address these challenges by authorizing a demonstration program
for the active remediation of orbital debris, supporting the
development of commercially viable debris-remediation
technologies, and directing the Federal Government to update
and promote uniform orbital debris mitigation and space traffic
coordination standards. By advancing technical capabilities,
improving coordination, and establishing clearer standards, the
legislation aims to support the continued safe, secure, and
sustainable use of outer space for government, commercial, and
scientific missions.
SUMMARY OF PROVISIONS
S. 1898 would do the following:
Require the Secretary of Commerce, in coordination
with the National Aeronautics and Space Administration
(NASA), additional relevant Executive Branch
departments and agencies, and representatives from
industry, academia, and nonprofits, to publish a list
of orbital debris objects that may be remediated to
improve the safety of orbiting satellites and on-orbit
activities.
Require NASA to conduct additional research and
development to mature technologies that address
commercial capability gaps in debris remediation,
prioritizing technologies capable of handling debris
with a range of characteristics identified in the
prioritized list.
Require NASA to establish a competitive
demonstration project to advance technologies and
methods for active debris remediation.
Require the Secretary of Commerce to publish an
assessment of the estimated Federal and private sector
demand for orbital debris remediation services over the
10-year period from enactment.
Encourage the U.S. Government to buy active debris
remediation services from commercial industry once
available.
Direct the Executive Branch to update U.S. Uniform
Orbital Debris Standard Practices within 90 days of the
date of enactment and require the Federal Aviation
Administration (FAA) and the Federal Communications
Commission (FCC) to use the updated standard practices
as the basis for orbital debris regulations applicable
to commercial space activities.
Encourage U.S. Government efforts to align the
debris regulations of other nations with the United
States.
Require the Secretary of Commerce, in coordination
with relevant Executive Branch departments and agencies
and the FCC, to facilitate the development of standard
practices for space traffic coordination and consult
regularly with industry, academia, and nonprofits on
these practices.
LEGISLATIVE HISTORY
S. 1898, the Orbital Sustainability Act of 2025, was
introduced on May 22, 2025, by Senator Hickenlooper (for
himself and Senators Cantwell, Wicker, and Lummis) and was
referred to the Committee on Commerce, Science, and
Transportation of the Senate. On February 12, 2026, the
Committee met in open Executive Session and, by voice vote,
ordered S. 1898 reported favorably without amendment.
118th Congress
S. 447, the ORBITS Act of 2023, was introduced on February
15, 2023, by Senator Hickenlooper (for himself and Senators
Lummis, Cantwell, Wicker, Sinema, and Feinstein) and was
referred to the Committee on Commerce, Science, and
Transportation of the Senate. On July 27, 2023, the Committee
met in open Executive Session and, by voice vote, ordered S.
447 reported favorably with an amendment (in the nature of a
substitute). On October 31, 2023, S. 447 passed the Senate with
an amendment by unanimous consent.
117th Congress
S. 4814, the ORBITS Act of 2022, was introduced on
September 12, 2022, by Senator Hickenlooper (for himself and
Senators Lummis, Cantwell, and Wicker) and was referred to the
Committee on Commerce, Science, and Transportation of the
Senate. On December 21, 2022, the Committee discharged S. 4814
by unanimous consent, and that bill passed the Senate with an
amendment.
ESTIMATED COSTS
In accordance with paragraph 11(a) of rule XXVI of the
Standing Rules of the Senate and section 403 of the
Congressional Budget Act of 1974, the Committee provides the
following cost estimate, prepared by the Congressional Budget
Office:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
S. 1898 would authorize the appropriation of $150 million
over the 2026-2030 period for the National Aeronautics and
Space Administration (NASA) to establish a competitive grant
and partnership program to research, develop, and demonstrate
orbital debris remediation technologies. Orbital debris refers
to human-made objects in Earth's orbit that no longer serve an
intended purpose. The bill also would require NASA to report to
the Congress on the program and offer recommendations for
remedial actions.
S. 1898 also would require the Secretary of Commerce to
publish a prioritized list of orbital debris candidates for
removal or disposal and to facilitate the development of
standard practices for planning and coordinating activities to
enhance the safety of operations in space. Finally, the bill
would direct the National Space Council, in consultation with
NASA and other relevant agencies, to update the Orbital Debris
Mitigation Standard Practices.
The estimated budgetary effects of the legislation are
shown in Table 1. Most of the costs of the legislation fall
within budget function 250 (general science, space, and
technology).
TABLE 1.--ESTIMATED BUDGETARY EFFECTS OF S. 1898
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By fiscal year, millions of dollars
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2026 2027 2028 2029 2030 2031 2026-2031
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INCREASES IN SPENDING SUBJECT TO APPROPRIATION
Estimated Authorization.............................. 0 150 * * * * 150
Estimated Outlays.................................... 0 40 52 35 15 8 150
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The bill would authorize the appropriation of $150 million over the 2026-2030 period without specifying an
amount for any particular year. For this estimate, CBO has assumed the entire amount would be provided in
2027. Estimated outlays would be different if that amount was provided in multiple years over the 2026-2030
period.
* = between zero and $500,000.
The bill would authorize the appropriation of $150 million
over the 2026-2030 period without specifying an amount for any
particular year. For this estimate, CBO has assumed the entire
amount would be provided in 2027. On that basis and using
historical spending patterns for similar programs, CBO
estimates that implementing the debris remediation program
would cost $150 million over the 2026-2031 period. Estimated
outlays would be different if that amount was provided in
multiple years over the 2026-2030 period.
In addition, CBO estimates that the incremental cost of the
coordinative, consultative, and reporting tasks assigned to the
Department of Commerce, the National Space Council, and other
agencies would be insignificant because they are already
carrying out a majority of those activities under current law.
The CBO staff contact for this estimate is Tanya Bakshi.
The estimate was reviewed by H. Samuel Papenfuss, Deputy
Director of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
REGULATORY IMPACT STATEMENT
In accordance with paragraph 11(b) of rule XXVI of the
Standing Rules of the Senate, the Committee provides the
following evaluation of the regulatory impact of the
legislation, as reported:
Number of Persons Covered
S. 1898 would establish a demonstration program for active
remediation of orbital debris, instruct Federal agencies to
develop and update uniform orbital debris mitigation and space
traffic coordination standards, and authorize NASA to award
competitive grants to eligible entities for research,
development, and demonstration activities. The legislation
would impact a small number of Federal personnel, as well as
representatives from participating commercial entities,
academic institutions, and nonprofit organizations involved in
executing or supporting the demonstration project and related
coordination efforts.
Economic Impact
S. 1898 would not have an immediate direct economic impact
on the public. The legislation authorizes Federal expenditures
to support a demonstration project for active orbital debris
remediation and related analyses. Over time, the bill may
generate indirect economic benefits by improving the safety and
sustainability of space operations. Reduced collision risks and
improved space traffic coordination may lower operational costs
for satellite operators, decrease the chances of costly on-
orbit failures or service interruptions, and promote continued
growth and innovation in the commercial space sector. Improved
orbital safety may also lower downstream costs related to
satellite replacement, insurance premiums, and mission delays.
Privacy
S. 1898 is not expected to have any direct impact on
individual privacy. The legislation focuses on research,
development, and demonstration activities, as well as the
establishment of standard practices related to orbital debris
mitigation and space traffic coordination.
Paperwork
S. 1898 is not expected to impose a significant additional
paperwork burden on individuals or entities outside of the
Federal Government. The legislation primarily authorizes
research, development, and demonstration activities related to
orbital debris remediation and directs Federal agencies to
develop and update standard practices for orbital debris
mitigation and space traffic coordination. While the
implementation of the demonstration project and the development
of standard practices may involve routine reporting,
recordkeeping, and documentation by participating Federal
agencies and eligible entities, these activities are expected
to be limited in scope and consistent with existing Federal
research, contracting, and regulatory processes. No significant
additional paperwork burdens are anticipated beyond those
necessary to carry out the activities authorized by the Act.
CONGRESSIONALLY DIRECTED SPENDING
In compliance with paragraph 4(b) of rule XLIV of the
Standing Rules of the Senate, the Committee provides that no
provisions contained in the bill, as reported, meet the
definition of congressionally directed spending items under the
rule.
SECTION-BY-SECTION ANALYSIS
Section 1. Short title.
This section would provide that the bill may be cited as
the ``Orbital Sustainability Act of 2025'' or the ``ORBITS Act
of 2025''.
Section 2. Findings; Sense of Congress.
This section would describe the growing accumulation of
orbital debris that threatens the safety and sustainability of
U.S. civil, commercial, and scientific activities that rely on
secure access to LEO. It would further encourage orbital debris
remediation through domestic action, international leadership,
and the encouragement of best practices to limit the creation
of new debris.
Section 3. Definitions.
This section would define the terms ``active debris
remediation'', ``Administrator'', ``appropriate committees of
Congress'', ``demonstration project'', ``eligible entity'',
``orbital debris'', ``project'', ``Secretary'', and ``space
traffic coordination''.
Section 4. Active debris remediation.
This section would require the Department of Commerce, in
coordination with NASA and other stakeholders, to identify and
publicly list priority orbital debris objects suitable for
remediation not later than 90 days after enactment, based on
factors such as risk, size, and orbital characteristics, with
period updates made publicly available. It would require NASA
to establish a demonstration program, no later than 180 days
after enactment, to competitively award funding to eligible
U.S. entities for research, development, and demonstration of
active debris remediation technologies, with defined
eligibility requirements, project phases, milestones, and
performance metrics. NASA would be tasked with supporting
technology maturation and managing aspects of the demonstration
missions, while proposals would be evaluated based on safety,
technical feasibility, cost, benefit, maturity, and their
potential to advance commercial capabilities.
This section would also require interagency consultation
prior to demonstration missions and would require briefings and
annual reports to Congress on project progress, technology
development, and potential duplication with other Federal
efforts, followed by a report containing legislative and policy
recommendations after the first demonstration mission. It would
also require technical analysis assessing cost effectiveness
and remaining technology gaps and express the sense of Congress
that international cooperation is important to addressing
orbital debris remediation efforts.
This section would authorize $150 million for fiscal years
2026 through 2030 and would rescind unobligated funds after
2030.
Lastly, this section would prohibit the NASA Administrator
from issuing any regulation relating to space activities under
title 51 or activities related to the demonstration project
outlined in this Act.
Section 5. Active debris remediation services.
This section would authorize Federal agencies to
competitively procure active orbital debris remediation
services to encourage competitive development, operation,
improvement, and commercial availability of such services. It
would authorize the Administrator of NASA and the heads of
other relevant Federal departments and agencies to acquire
orbital debris remediation services, whenever practicable,
through fair and open competition using well-defined,
milestone-based contracts in accordance with the Federal
Acquisition Regulation, taking into consideration the findings
and economic analysis associated with the demonstration project
established in section 4.
This section would also require the Secretary of Commerce,
acting through the Office of Space Commerce, to publish an
economic assessment of the estimated demand for orbital debris
remediation services in both the Federal Government and private
sector over the 10-year period beginning in 2026.
Section 6. Uniform orbital debris standard practices for United States
space activities.
This section would direct the National Space Council
(NSpC), working with the Secretary of Commerce, the
Administrator of the FAA, the Secretary of Defense, the
Secretary of State, the FCC, and NASA, to initiate an update to
the Orbital Debris Mitigation Standard Practices not later than
90 days after enactment. It would require the updated standard
practices to be published in the Federal Register and posted
online not later than 1 year after enactment. It would also
require the updated standard practices be used to inform
bilateral and multilateral international discussions to
encourage effective, nondiscriminatory standards and
regulations implemented by other countries, and would require
the Orbital Debris Mitigation Standard Practices to be
periodically reviewed and updated at least every 5 years.
Section 7. Standard practices for space traffic coordination.
This section would direct the Secretary of Commerce, in
coordination with the Secretary of Defense, members of the
NSpC, and the FCC, to facilitate the development of standard
practices for on-orbit space traffic coordination based on
existing government and commercial industry guidelines and best
practices, with the goal of enhancing the safety and
sustainability of space operations. It would require the
Secretary of Commerce, through the Office of Space Commerce and
in consultation with the National Institute of Standards and
Technology, to engage in routine consultation with
representatives from the commercial space industry, academia,
and nonprofit organizations to ensure the best practices
reflect a broad range of expertise. Once the standard practices
are developed, this section would require the Secretary of
Commerce, the Secretary of State, the Secretary of
Transportation, the Administrator of NASA, and the Secretary of
Defense to promote their adoption and use for both domestic and
international space missions.
CHANGES IN EXISTING LAW
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, the Committee states that the
bill as reported would make no change to existing law.
[all]