Escaping Gravity, My Quest to Transform NASA and Launch a New Space Age
Lori Garver, 2022
Liftoff, the book by Eric Berger, told the story of how Elon Musk took a small team of engineers, rented a vacant warehouse in Hawthorne, CA, transformed the technology of rocketry and from this inauspicious beginning turned his company into the low cost, preeminent launch service company of the world today. There is another half to this story, a person in a position of power at NASA who paved the way for SpaceX to disrupt the space, political, industrial complex at NASA and start a new era is space exploration. This is the story of Lori Garver, deputy director of NASA during the Obama administration and how she prevailed through perseverance and with the courage to endure the slings and arrows that would come her way, not only because she challenged the system but because she was a woman in a position of power within a bureaucracy of male preeminence.
NASA, was founded in 1958, the age of Sputnik, Yuri Gagarin and the birth of the space age. Its cold war mission was to outcompete the Soviets almost regardless of cost considerations. The Apollo program, which became the very cornerstone of NASA’s creds and identity, was a race to become first to the moon. My connection with NASA comes from this period in the mid-sixties when as a young graduate engineer, I ended up working for aerospace contractors, first at Redstone Arsenal in Huntsville Alabama and then at the Apollo launch complex at the Cape. My awe-struck impression of the time was of a colossal program both in terms of personnel, scads of redundant engineers, tons of paperwork, and monstrous hardware with a 55-story huge rocket assembly building, 5000 ton, 400 foot tall launch umbilical towers, transported with rocket to the launch pad three miles away by immense crawling machines 4 stories in height. Would it work? I had my doubts at the time, but by the allocation of huge resources and gutsy decision-making and pure determination it succeeded ahead of schedule and wowed the world. This was the momentous and myth-making birth of NASA. After this amazing start what would NASA’s mission and legacy be for the next five decades? It turns out the birth would determine the future. “In the 1960’s- a civilian space agency – was tasked with essentially a military objective as an instrument of the Cold War. This linkage increased NASA’s budget immensely but also drove the fledgling space agency’s culture toward building and operating its own large engineering projects and away from more universal investments in technical innovation and scientific research. The massive institutional bureaucracy and industry interests developed for Apollo required exorbitant fixed costs just to be maintained. Once in place, legacy interests were naturally conditioned to seek missions and goals that could use the same infrastructure and similarly motivated workforce. The space-industrial complex became a victim of its own success.” The agency is described in the book as having become, “A giant self-licking icecream cone”, in other words an agency whose primary mission was to feed its participants and hangers-on, secondary mission was to produce enough results so that the feeding could continue.
Lori Garver came to the agency in 2008, at a time when it was clear the Shuttle had not fulfilled its promise as an economical portal to space and was reaching the end of its useful life. A replacement for the shuttle program called Constellation had been generously funded since 1989 with a mandate from subsequent administrations to return to the moon but the program had been mired in cost overruns, slipped schedules and backward-looking concepts for decades. This is the world that Lori found herself in as Deputy Administrator, the second most powerful position in the agency. Her conundrum was how to fund break-through game-changing, status quo threatening technologies while at the same time feeding the cone licking bureaucratic and contractor establishment so as not to threaten her position. In 2010, a possible person to take on the establishment, disrupt the status quo, emerged in the figure of Elon Musk. His company SpaceX which had just come off the successful orbital launch of his Falcon 1 rocket in 2009 and Falcon 9 in 2010. Two fixed-price contracts were let to supply the ISS, with over 2 billion dollars going to ULA, Boeing and Lockheed, to feed the establishment, the other at the urging of Lori, to SpaceX at roughly half the amount to launch 12 missions to the ISS. In 2012 Musk was first to deliver supplies to the ISS. The fight to let private contractors deliver astronauts to the station was a more protracted and bitter battle. A huge portion of NASA’s budget went to NASA’s own Space Launch System, SLS. A relatively small part was reserved for a nascent Commercial Crew program to let private contractors bid on fixed price contracts to send supplies and crew to the ISS. As with the supply contract, the larger part of the contract was awarded to ULA, a smaller portion to SpaceX. As Garver explains: “The deal set a competition in motion between the government and the private sector, the dinosaurs, and the furry mammals. The mammals would compete among themselves and do so while surviving on the dinosaur’s scraps. I knew they would be successful. But I hoped it wouldn’t be on evolutionary time scales”. Her advocacy for SpaceX led to the deriding accusation within political circles and NASA that Elon Musk was her boy. She really picked the right boy. Since the award of the Crew program, SpaceX has delivered 20 supply missions to the ISS and 4 crews to the ISS. ULA so far has delivered no crewed missions. Since 2016 SpaceX has perfected the recovery and refurbishment of 1st stage rockets leading to a dramatic decrease in launch costs leading to today, SpaceX being the preeminent commercial and military launch service provider in the world.
By allocating a relatively minor portion of NASA’s budget to commercial space flight, a deputy administrator at NASA helped revolutionize the space launch business not only at NASA and the military but around the world. Meanwhile business as usual still proceeds at NASA. “A 2021 report estimates that the Artemis program will have cost the US taxpayers 96 billion through 2025, even though a landing on the Moon by then is not possible. NASA spent just twice that in comparison year dollars for the entire Apollo program. NASA’s Saturn V lunar rocket launched twelve missions, ten with crew, over 5 years. At best, the SLS will launch two to three times in five years. The Agency is ordering them through the decade and spending billions more on upgrades to take astronauts to Mars in the 2030’s. Thankfully, while the dinosaurs devour the last leaves on the high treetops, the furry mammals have continued to evolve.” As Garver points out almost the same capability that the SLS will provide is available right now with the Falcon 9 heavy rocket at a launch cost of 150 million.
As with the Military Industrial complex, The Space Industrial complex points to an innate tendency of bureaucracies to become as she called them: “Self-licking icecream cones”. Thankfully our system also produces reformers and disrupters, as in this case, Lori Garver and Elon Musk. Both books, Liftoff and Escaping Gravity, tell their story. JACK