On Tuesday, as the company occasionally does when facing what it deems to be unfair treatment, SpaceX posted a lengthy update decrying the decision. According to the firm, the FAA had assured it that Starship would get the green light this month. It claims the rocket has been ready to fly since early August, an assertion CEO Elon Musk reiterated last week.

“Unfortunately, we continue to be stuck in a reality where it takes longer to do the government paperwork to license a rocket launch than it does to design and build the actual hardware,” the firm said. “This should never happen and directly threatens America’s position as the leader in space.”

With the ability to be used multiple times on the cheap, Starship is expected to be a game-changer for U.S. spaceflight. SpaceX wants to launch the rocket up to 120 times per year from NASA’s Kennedy Space Center and Cape Canaveral Space Force Station in Florida. Musk last week claimed the vehicle will reach Mars within two years.

SpaceX is also developing a Starship human landing system (HLS), a lunar lander variant of the spacecraft, for NASA’s Artemis III mission, which would return Americans to the moon for the first time in more than half a century. Starship will require a few more test flights before the mission, which is scheduled for late 2026.

That’s not much time, but SpaceX plans to get there using its philosophy of iterative design. Basically, the company puts flight hardware through real-world testing as often as possible to learn quickly and improve the chances of success on the next flight. The strategy helped it commercialize the now-ubiquitous Falcon rocket.

“The more we fly safely, the faster we learn; the faster we learn, the sooner we realize full and rapid rocket reuse,” SpaceX said.

Each Starship test flight has flown farther and accomplished more than the last. The fourth, in June, marked the first time both Starship and the Super Heavy booster made it back to Earth in one piece after the first two attempts ended in explosions.

Keeping with the trend, Flight 5 will feature the most ambitious goal yet. SpaceX will attempt to catch Super Heavy midair using two large “chopstick” arms, returning it safely to the Starbase launch pad in Boca Chica, Texas. 

The maneuver could pose risk to Starbase’s launch tower, but SpaceX says it has been preparing for years. The delay could create a ripple effect that hampers future Starship test flights. Safely returning the booster is a critical piece of the system’s reusability.

“It’s understandable that such a unique operation would require additional time to analyze from a licensing perspective,” the firm said. “Unfortunately, instead of focusing resources on critical safety analysis and collaborating on rational safeguards to protect both the public and the environment, the licensing process has been repeatedly derailed by issues ranging from the frivolous to the patently absurd.”

What’s the Holdup?

SpaceX said the FAA communicated that a launch license would be awarded this month, but the process has been delayed due to “four open environmental issues” it deems unnecessary.

Starship’s maiden voyage in April 2023 was a brief but bombastic one. The FAA grounded the rocket as it investigated the launch and explosion, which shook buildings, shattered windows, and sent ash and debris flying miles away.

The impact was more severe than SpaceX anticipated due to the lack of a flame deflector—a common fixture at launch sites that uses water to absorb energy and heat—beneath Starbase. According to Musk, the system was absent because it “wasn’t ready in time” and the company thought the pad could withstand the launch.

The FAA’s handling of Starship’s initial launch license prompted a lawsuit from five environmental groups, which the agency reportedly has sought to dismiss. With the flame deflector installed, subsequent Starship flights have not destroyed the launch pad.

However, the FAA has approved two 60-day consultations that could extend the timeline for a fifth mission.

According to SpaceX, the only proposed change to the mission’s hot-stage jettison—during which the top of the Super Heavy booster is expelled—is a new splashdown location, which it says would not raise the risk of harm to marine life. Still, the FAA signed off on a consultation with the National Marine Fisheries Service to evaluate the new site.

“SpaceX’s current license authorizing the Starship Flight 4 launch also allows for multiple flights of the same vehicle configuration and mission profile,” the agency told FLYING. “SpaceX chose to modify both for its proposed Starship Flight 5 launch which triggered a more in-depth review.”

SpaceX, though, fears the review could be longer.

“The mechanics of these types of consultations outline that any new questions raised during that time can reset the 60-day counter, over and over again,” it said.

A separate consultation with the U.S. Fish and Wildlife Service (USFWS), requested by the FAA due to Flight 5’s larger sonic boom radius, could add to the delays. A sonic boom occurs as Starship slows from supersonic speeds on its way back to Earth.

“SpaceX submitted new information in mid-August detailing how the environmental impact of Flight 5 will cover a larger area than previously reviewed,” the FAA said. “This requires the FAA to consult with other agencies.”

According to SpaceX, both agencies have studied Starship booster landings and concluded there is no significant environmental impact from sonic booms. The firm also claims studies back the idea that sonic booms have no detrimental effect on wildlife—but the jury is still out on that one.

According to an evaluation by the California Coastal Commission of SpaceX’s request to increase Falcon 9 launches at Vandenberg Space Force Base in California, experts don’t fully understand the effects of noise on animals. The commission rejected the request in part because sonic booms generated by Falcon 9—a less powerful rocket than Starship—force too many closures and evacuations of local parks.

“At Starbase, we implement an extensive list of mitigations developed with federal and state agencies, many of which require year-round monitoring and frequent updates to regulators and consultation with independent biological experts,” SpaceX said.

Among other things, the company says it works with a local nonprofit to transport injured sea turtles for treatment and monitors bird local populations, using drones to search for nests before and after launch and. It also “adopted” Boca Chica Beach through a Texas state program and sponsors quarterly cleanups it says have removed hundreds of pounds of trash.

A CNBC report last month, which SpaceX swiftly rebuked, alleged that the company violated the Clean Water Act. The Environmental Protection Agency, though, told FLYING it did indeed violate that law.

Days before Starship’s third test flight in March, the EPA issued an order directing the company to eliminate “unpermitted discharges,” citing a liquid oxygen spill from the flame deflector’s water deluge system that seeped into the surrounding wetlands. SpaceX was forced to apply for a new permit from the Texas Commission on Environmental Quality (TCEQ), which it did in July, but still ate a fine of nearly $150,000 to resolve the violation.

In response, the company denied it ever discharged pollutants or operated the deluge system without TCEQ permission. According to SpaceX, the device uses “literal drinking water” and has been deemed safe by the FAA, TCEQ, and USFWS.

SpaceX further claimed that the EPA issued its order without knowledge of its TCEQ license or “a basic understanding of the facts” of the system’s operation. It added that the fines are “entirely tied to disagreements over paperwork” and stem from a simple misunderstanding.

“We chose to settle so that we can focus our energy on completing the missions and commitments that we have made to the U.S. government, commercial customers, and ourselves,” SpaceX said. “Paying fines is extremely disappointing when we fundamentally disagree with the allegations, and we are supported by the fact that EPA has agreed that nothing about the operation of our flame deflector will need to change. Only the name of the permit has changed.”

The proposed settlement is open for public comment until October 21.

Singled Out?

The implication by SpaceX is that it is being unfairly targeted for its successes.

The company is prolific within the commercial spaceflight industry—experts estimate it accounted for 87 percent of all spacecraft mass space operators sent into orbit in 2023. At the same time, it handles more NASA missions than any of the agency’s private contractors.

That dominance occasionally draws ire from competitors such as Jeff Bezos’ Blue Origin, or, as SpaceX puts it, “bad-faith hysterics from online detractors or special interest groups.”

“Despite a small, but vocal, minority of detractors trying to game the regulatory system to obstruct and delay the development of Starship, SpaceX remains committed to the mission at hand,” the company said.

NASA has made it known that it intends to become one of many customers within a commercial space ecosystem, rather than a service provider, by the end of the decade. As SpaceX continues to snap up NASA contracts—including an agreement to deorbit the International Space Station, ushering in that new era—rivals and critics may fear that its supremacy will only grow.

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“Was just informed that approval to launch should happen in time for a Friday launch,” Musk wrote in a post on his social media platform X, formerly Twitter.

The SpaceX CEO did not elaborate on who gave him that timeline, and some of his previous predictions have failed to come to fruition. This time, however, Musk’s timeline is backed by the FAA: The agency announced Wednesday afternoon that Starship and the Super Heavy booster are cleared for another takeoff.

“The FAA has given license authorization for the second launch of the SpaceX Starship Super Heavy vehicle,” the agency said in a statement viewed by FLYING. “The FAA determined SpaceX met all safety, environmental, policy and financial responsibility requirements.”

The regulator said the modified license applies to all phases of SpaceX’s proposed operation, from preflight preparation to splashdown, but only for one launch. According to an air traffic control advisory on its website, the launch and reentry mission, “Space X Starship Super Heavy Flt 2,” will take place in Boca Chica, Texas—the site of SpaceX’s Starbase launch pad—on Friday. Backup dates are listed as Saturday and Sunday.

Ready for Launch

On October 31, the FAA confirmed it had completed the safety review portion of its Starship license evaluation. A modified license could not be granted until the evaluation was finished.

The announcement came with the caveat that the agency was still working through an environmental review, which a spokesperson told FLYING is the “last major element” of the process. That step required coordination with the U.S. Fish and Wildlife Service (USFWS) to produce an updated biological assessment of the potential impacts of a Starship launch on the surrounding environment.

Aubry Buzek, who runs public affairs for USFWS’s Texas office, confirmed to FLYING that the agency’s formal consultation with the FAA concluded on Tuesday, clearing the way for a license modification. On Wednesday, the FAA published a written reevaluation of Starship’s environmental assessment, concluding that there are “no significant environmental changes” compared to prior documentation.

According to USFWS, the environmental assessment focused on a new water deluge system that was installed on Starbase to shield the launch pad from the flames of Starship’s 33 Raptor engines. In April, the engines blew a massive crater under the launcher and scattered ash and debris as far as the town of Port Isabel, about 6 miles away.

Starbase did not have such a system for Starship’s inaugural launch, which may have contributed to the damage. Musk said plans to install a water-cooled steel plate beneath the launcher were scrapped because it “wasn’t ready in time,” adding that “we wrongly thought, based on static fire data, that Fondag [concrete] would make it through one launch.”

With a modified launch license in hand, Starship’s second test flight could follow in just a few days—the first one came less than a week after the FAA’s initial green light.

As was the case with that launch, the flight will be broadcast live on SpaceX’s website. In addition to the new flame deflector, it will debut a hot-stage separation system and thrust vector control system for the Super Heavy booster engines.

The flight itself is expected to last about 90 minutes, with the Starship upper stage splashing down in the Pacific Ocean off the coast of the Hawaiian island of Kauai.

High Stakes

Plenty is riding on the success of the next Starship launch. NASA picked SpaceX to develop a version of the rocket that will land humans on the moon for the first time in half a century during the Artemis III mission, which is scheduled for 2025. Before then, the company will fly an uncrewed demonstration mission to the moon.

But NASA officials are already “concerned” about the number of test flights Starship must complete even before that demonstration. A top NASA manager said Artemis III will “probably” slip to 2026 as a result.

A delay to Artemis III could throw a wrench into NASA’s other mission timelines. The space agency has already enlisted SpaceX to conduct a second crewed landing demonstration in 2027 as part of the subsequent Artemis IV mission. The goal is to develop a lander “that meets NASA’s sustaining requirements for missions beyond Artemis III,” such as docking with the upcoming Gateway space station and accommodating up to four crew members.

Following Artemis, SpaceX said the ultimate objective for Starship is to ferry hundreds of humans at a time to the moon, Mars, and beyond. Musk himself has claimed the firm will land humans on Mars by 2029. The plan is for the first batch of astronauts to set up a small base, with the aim of one day supporting a colony of 1 million earthlings on the “Red Planet.”

For fans of science fiction, it’s an exciting prospect. To get there, SpaceX will first need to prove Starship can reach orbit without exploding, but the hope is for that litmus test to happen in the next few days.

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“The FAA completed the safety review portion of the SpaceX Starship-Super Heavy license evaluation on October 31,” the agency told FLYING.

The safety review is the “principal component” of the FAA’s vehicle operator license evaluation, which grants companies the authority to launch rockets. In its review, the agency assessed the impact of Starship launches on public health and property damage. It also evaluated SpaceX’s safety organization, system safety processes, and flight safety analysis, as well as quantitative risk criteria related to launch, reentry, and vehicle disposal.

Starship—whose two reusable components, the Super Heavy Booster and Starship upper stage, stand close to 400 feet when stacked together—is the largest and most powerful rocket ever built. But its maiden voyage in April began and ended in flames, when the spacecraft lost control and exploded during stage separation just minutes into the flight.

Meanwhile, the impact of Super Heavy’s 33 Raptor engines on the company’s Boca Chica, Texas, launch pad, Starbase, created a massive crater. Starship’s liftoff broke windows, shook buildings, and sprayed ash and debris over an area far larger than expected, including 6 miles away in the town of Port Isabel.

While the FAA’s license evaluation safety review centered around Starship’s impact to people and property, the agency is now working on an environmental review to gauge its effect on nearby wildlife.

Coordinating with the U.S. Fish and Wildlife Service (USFWS) under the Endangered Species Act, the FAA must produce an updated biological assessment for Starship. An initial biological assessment, published in October 2021, assessed threats to wildlife surrounding Starbase.

According to USFWS, the ongoing environmental assessment focuses on a new water deluge system installed at Starbase, one of several upgrades the company has made to the launch pad since April. Most launch pads have either a water deluge system or a flame trench to suppress heat and sound. But Starbase lacked such a system during Starship’s first launch, which may have exacerbated the damage caused by the engines.

The FAA initiated a consultation with USFWS on October 19, giving the latter 135 days to issue an amended biological opinion based on the FAA’s assessment. However, it does not expect to take the full amount of time.

The FAA’s completion of Starship’s safety review and the ongoing work toward the environmental review bring SpaceX closer to modifying its launch license, which would clear the way for the massive rocket to fly again. But the company may still have hurdles beyond the FAA’s evaluation.

Starship’s maiden voyage was permitted under the FAA’s April written reevaluation of the programmatic environmental assessment (PEA) it awarded to SpaceX in 2022. But the April explosion brought scrutiny upon the PEA in the form of a lawsuit brought against the FAA by five environmental groups, including the Center for Biological Diversity.

The plaintiffs claim the FAA could have mitigated the damage from the launch and subsequent explosion. Had the agency conducted an environmental impact statement (EIS) instead of a PEA “based on SpaceX’s preference,” as the groups allege, the impact may have been less severe.

Both a PEA and an EIS can give an operator the National Environmental Protection Act (NEPA) compliance required to greenlight a launch. But unlike an EIS, the PEA allowed SpaceX to analyze the potential impact of its own launch proposal and may have authorized Starship to fly sooner. The FAA required SpaceX to take more than 75 actions after submitting its PEA. But the lawsuit alleges these were not sufficient to prevent a mishap.

SpaceX in June joined the suit as a codefendant, and it and the FAA are now seeking to dismiss it. If they lose, the FAA would be required to conduct an EIS, which could represent a major setback for Starship.

However, SpaceX last week said Starship is ready to fly pending the approval of its license modification, and the company should still be able to conduct test flights despite the ongoing lawsuit.

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