This article examines the evolution of European Union (EU) space policy through the lens of historical institutionalism, highlighting how security and defence considerations have been incrementally integrated into a domain originally framed as civilian and scientific. Rather than relying on sudden policy shifts driven by critical junctures, the EU has pursued a strategy of gradual transformation through layering and conversion—incrementally adding security dimensions to existing frameworks and repurposing institutions to support strategic objectives. The analysis reveals how external shocks, particularly Russia's invasions of Ukraine and shifting US security commitments, have acted as accelerants, reinforcing the EU's pursuit of space-based strategic autonomy. Institutional constraints, including veto points and power dynamics among member states, have shaped the pace and scope of this evolution, necessitating a pragmatic approach to policy adaptation. The study contributes to broader debates on EU integration and institutional change, demonstrating that space policy exemplifies the Union's growing role as a geopolitical actor. The findings underscore the need for sustained coalition-building, flexible policy adaptation, and investment in secure, autonomous space capabilities to ensure Europe's resilience in an increasingly contested global environment.
Policy implications
- Advance EU space policy through incremental change. Policy shifts do not require sudden upheavals. EU institutions should continuously refine space policy by layering new security and strategic priorities onto existing frameworks. This approach ensures stability while gradually reinforcing Europe's space capabilities without needing major treaty revisions or institutional overhauls.
- Foster strategic adaptability and independent thinking. EU policymakers should embrace a flexible mindset, leveraging existing legal and institutional structures to expand space-related competencies. By creatively repurposing available policy tools, as seen in the early stages of Galileo and Copernicus, the EU can advance its strategic objectives even when formal competencies are limited.
- Strengthen cross-sector and multi-actor cooperation. Institutional change is most effective when backed by broad alliances. EU decision-makers should foster collaboration between institutions (Commission, Parliament, ESA), member states, and private industry to consolidate political legitimacy, reduce resistance to reform, and enhance the resilience of European space infrastructure.
- Enhance space security as a pillar of strategic autonomy. The EU must prioritize the security of its space assets by developing robust resilience measures against cyber threats, counterspace activities, and strategic dependencies on non-European actors. Initiatives such as IRIS2 should be expanded to ensure autonomous, secure, and government-controlled satellite communication capabilities.
Photo by Blue Arauz