NASA’s Key Role in U.S. Commercial Spaceflight Development

LI Chengzhi; SUN Lie

doi:10.3724/j.issn.1674-4969.20260008

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NASA’s Key Role in U.S. Commercial Spaceflight Development

Special Column on the Commercial Aerospace and Low\-Altitude Economy | 更新时间：2026-10-16

- NASA’s Key Role in U.S. Commercial Spaceflight Development
- Journal of Engineering Studies Vol. 18, Issue 5, Pages: 609-618(2026)
- 作者机构：
  
  1.北京航空航天大学人文与社会科学高等研究院，北京 100191
  2.中国科学院自然科学史研究所，北京 100190
- 作者简介：
- 基金信息：
- DOI：10.3724/j.issn.1674-4969.20260008
  CLC： V19;F272.3
- CSTR：32282.14.JES.20260008
- Received：14 January 2026，
  
  Revised：2026-01-28，
  
  Online First：14 September 2026，
  
  Published：25 October 2026
- 稿件说明：
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李成智, 孙烈. NASA在美国商业航天发展中的关键作用[J]. 工程研究——跨学科视野中的工程, 2026, 18(5): 609-618.

LI C Z, SUN L. NASA's Key Role in U.S. Commercial Spaceflight Development[J]. Journal of Engineering Studies, 2026, 18(5): 609-618.
李成智, 孙烈. NASA在美国商业航天发展中的关键作用[J]. 工程研究——跨学科视野中的工程, 2026, 18(5): 609-618. DOI： 10.3724/j.issn.1674-4969.20260008. CSTR： 32282.14.JES.20260008

LI C Z, SUN L. NASA's Key Role in U.S. Commercial Spaceflight Development[J]. Journal of Engineering Studies, 2026, 18(5): 609-618. DOI： 10.3724/j.issn.1674-4969.20260008. CSTR： 32282.14.JES.20260008

摘要

美国国家航空航天局（NASA）的项目管理创新，是理解美国商业航天跨越式发展的重要切入点。系统回溯NASA在商业航天发展进程中的项目管理创新实践，以商业轨道运输服务（COTS）项目为核心案例，重点剖析其职能定位转变、里程碑式付款机制的设计逻辑与实施成效，并通过对国内外商业航天政策的比较，凝练NASA管理创新的学术价值与实践启示。研究表明，NASA的运营模式已从早期政府主导的综合性架构，逐步转向以政策调整、管理重构与项目创新为支撑的公私合作模式；COTS项目所采用的基于绩效的固定价格里程碑付款机制，将主要技术与财务风险转移给企业，在显著降低航天活动成本的同时有效激发了企业创新动能。NASA的创新实践不仅为全球商业航天发展提供了重要经验参考，也为中国商业航天生态体系建设提供了涵盖资产属性界定、产业支撑、协同创新与结构性改革等多维度的借鉴。

Abstract

This study traces the evolutionary trajectory of NASA's project management innovations in commercial space development

with particular focus on the landmark payment mechanism of its signature policy instrument—the Commercial Orbital Transportation Services (COTS) program. It aims to elucidate how NASA's managerial innovations effectively catalyzed the commercial space ecosystem and to distill actionable reform pathways for China's burgeoning commercial space sector.

The analysis first delineates four pivotal phases in NASA's management paradigm evolution: the Apollo-era absolute control period (1960s—1970s)

the adjustment period under competitive pressure (1980s—1990s)

the "Faster

Better

Cheaper" (FBC) transformation period (1990s—2000s)

and the COTS innovation period (2005—present). Second

using COTS as a central case study

it deconstructs the design principles of its performance-based

fixed-price milestone mechanism

including the specific protocols linking fund disbursement to milestone attainment. Third

it examines how SpaceX's risk-taking and innovative culture was systemically shaped by NASA's institutional innovations

analyzing the underlying innovation logic.

Since 2005

the implementation and sustained operation of COTS have marked the maturation of NASA's policy framework for commercial space development. This has profoundly stimulated industry prosperity and nurtured a cohort of emerging private enterprises

while transforming NASA from an all-encompassing space implementer into a government research and management agency focused on space science exploration that procures other capabilities from the market. The shift from traditional cost-plus contracts to partnership-based arrangements granted contractors greater autonomy and commercial flexibility

enabling them to commercialize products in broader markets while fulfilling NASA mission requirements

thereby effectively energizing innovation. This evolution embodies a philosophical shift from "control" to "collaboration"

aligning closely with innovation systems theory that emphasizes systemic interactivity.

NASA's institutional innovation offers multifaceted insights for the development of China's commercial space ecosystem. First

space asset attributes should be redefined by de-emphasizing the military positioning of launch vehicles and spacecraft

with moderately relaxed regulation for purely civil space activities. Second

a comprehensive industrial support system should be established

providing private space enterprises with critical technologies

core components

and product support to strengthen supply chains. Third

cross-institutional collaborative innovation should be promoted

encouraging deep cooperation between state-owned and private enterprises in developing core commercial space products. Finally

China's traditional aerospace giants should undergo structural transformation—following NASA's evolution—to streamline non-core operations and transfer to the market those businesses

projects

facilities

and personnel with relatively lower technical complexity

minimal confidentiality requirements

but high commercial value

thereby infusing vitality into commercial space enterprises and forging a more dynamic and competitive aerospace industry landscape.

关键词

Keywords

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