When SpaceX’s Starship exploded in January, raining debris over the Caribbean, the Federal Aviation Administration temporarily grounded the rocket program and ordered an investigation. The move was the latest in a series of actions taken by the agency against the world’s leading commercial space company.
“Safety drives everything we do at the FAA,” the agency’s chief counsel said in September, after proposing $633,000 in fines for alleged violations related to two previous launches. “Failure of a company to comply with the safety requirements will result in consequences.”
SpaceX CEO Elon Musk’s response was swift and caustic. He accused the agency of engaging in “lawfare” and threatened to sue it for “regulatory overreach.” “The fundamental problem is that humanity will forever be confined to Earth unless there is radical reform at the FAA!” Musk wrote on X.
Today, Musk is in a unique position to deliver that change. As one of President Donald Trump’s closest advisers and head of the newly created Department of Government Efficiency, he’s presiding over the administration’s effort to cut costs and slash regulation.
While it’s unclear what changes his panel has in store for the FAA, current and former employees are bracing for Musk to focus on the little-known part of the agency that regulates his rocket company: the Office of Commercial Space Transportation, known as AST. “People are nervous,” said a former employee who did not want to be quoted by name talking about Musk.
The tech titan and his company have been critical of the office, which is responsible for licensing commercial rocket launches and ensuring public safety around them. After the fines in September, SpaceX sent a letter to Congress blasting AST for being too slow to keep up with the booming space industry. That same month, Musk called on FAA chief Mike Whitaker to resign and told attendees at a conference in Los Angeles, “It really should not be possible to build a giant rocket faster than paper can move from one desk to another.”
FAA leadership seems to have heard him. The day of Trump’s inauguration, Whitaker stepped down — a full four years before the end of his term. And experts said the pressure is almost certain to grow this year as Musk pursues an aggressive launch schedule for Starship, the most powerful rocket ever built.
Whitaker did not respond to requests for comment.
Part of the problem for AST, experts say, is bandwidth.
The office has seen a sixfold increase in launches in the past six years, from 26 in 2019 to 157 last year — with SpaceX leading the pack. At the same time, AST’s staffing and budget have not kept pace. The agency has roughly 160 people to oversee regular flights by private rocket companies — sometimes more than one a day — bringing satellites to orbit, giving rides to astronauts, assisting with national security surveillance efforts and carrying tourists to the edge of space.
Launch traffic “has increased exponentially,” said George Nield, who led the office from 2008 to 2018. “No signs that that’s turning around or even leveling off.”
For each launch, AST’s staff calculate the risk that “uninvolved” members of the public, or their property, will be harmed. They also consider whether the launch will cause environmental damage or interfere with other airspace activities like commercial flight, as well as make sure a rocket’s payload received the proper approvals. The office licenses space vehicle reentries, too, though, as yet, there are far fewer of them.
The process, on average, takes five months. “It takes a certain amount of time to do the work to protect the public, and you do want to do that right,” Nield said. The consequences of shrinking the office or eliminating it altogether could be devastating, he said. “If a rocket goes off course, and nobody’s double-checked it, and so you have a major catastrophic event, that’s going to result in a huge backlash.”
But Musk has criticized AST for focusing on “nonsense that doesn’t affect safety.” He’s also emphasized that his company moves quickly and must have failures to learn and improve. Within SpaceX, this approach is known as “rapid iterative development.” And it is not without risk. Last month, when Starship blew up shortly after liftoff, dozens of airplanes scrambled to avoid falling debris. Residents of the Caribbean islands of Turks and Caicos reported finding pieces of the craft on beaches and roads, and the FAA said a car sustained minor damage.
SpaceX has said it was reviewing data to determine the cause, pledging to “conduct a thorough investigation, in coordination with the FAA, and implement corrective actions to make improvements on future Starship flight tests.”
Musk, however, downplayed the explosion as “barely a bump in the road.” Moreover, he seemed to brush off safety concerns, posting a video of the flaming debris field with the caption, “Success is uncertain, but entertainment is guaranteed!” He also said nothing suggested the accident would push plans to launch the next Starship this month — even though the FAA investigation was still pending.
Moriba Jah, a professor of aerospace engineering at the University of Texas, said that Musk’s response was “recklessness … at a minimum,” given that people were alarmed by the falling rocket debris, which streaked fire and smoke across the sky before landing in and around the islands.
“That he now gets to provide government oversight over the things that he is trying to get permission to do is one of the most significant conflicts of interest I’ve seen in my career, and it’s inexplicable to me,” said Jah, who served on a federal advisory committee for AST.
The White House did not answer questions from ProPublica about DOGE’s plans for AST. Officials referred to comments by Trump, who said last week that if a conflict arises for Musk between one of his businesses and his government work, “we won’t let him go near it.” Karoline Leavitt, Trump’s press secretary, also said Musk “will excuse himself from those contracts” if needed.
Musk and SpaceX did not respond to questions.
Jah said Musk and others advocating for less regulation have what he called a “launch, baby, launch mentality” that could push the FAA office in the wrong direction.
Industry representatives and members of Congress have accused the FAA of being more risk averse than necessary, stifling innovation.
“With nations like China seeking to leapfrog our accomplishments in space, it is even more imperative that we streamline our processes, issue timely approvals, minimize regulatory burdens and advance innovative space concepts,” said Rep. Brian Babin, a Republican from Texas and the incoming chairman of the House Science, Space and Technology Committee, at a hearing in September. He said he was concerned the FAA’s regulations could result in the mission to return astronauts to the moon being “unnecessarily delayed.”
Babin did not respond to a request for an interview about AST.
Sean Duffy, Trump’s new transportation secretary, has already indicated his department will take a more business-friendly approach.
Last month during his confirmation hearing, when Sen. Ted Cruz of Texas criticized the FAA’s enforcement action against SpaceX and asked Duffy whether he would “commit to reviewing these penalties and more broadly to curtailing bureaucratic overreach and accelerating launch approvals,” Duffy said he would. “I commit to doing a review and working with you, and following up on the space launches and what’s been happening at the FAA with regard to the launches.”
Duffy has since said he’s spoken to Musk about airspace reform and is looking to DOGE to “help upgrade our aviation system” — a move that drew a quick rebuke from Sen. Maria Cantwell of Washington last week. She called Musk’s involvement in FAA matters a conflict of interest.
The Department of Transportation did not make Duffy available for an interview, and the FAA did not answer written questions provided by ProPublica, despite multiple requests for comment.
Rep. Zoe Lofgren of California, the top Democrat of the Science committee, said streamlining the regulation of commercial space launches has bipartisan support.
Still, she said, the safety of crews and launchpads’ neighbors, as well as noise and pollution, need to be managed. “There needs to be a traffic cop here,” she said, especially given increased launches and issues such as space debris. “This can’t just be the Wild West, right?”
The $42 million allocated annually to AST is less than 1% of the FAA’s budget.
Astrophysicist Jonathan McDowell, who tracks space launches at the Smithsonian Astrophysical Observatory, said the office needs the resources and authority to hold companies accountable as the industry grows and has more impact. “Government will need to play a role,” he said, “and they’re going to have to sort it out.”
Last year, a government advisory committee recommended the AST move out of the FAA and become a standalone agency within the Department of Transportation.
Proponents argue the move would help AST get more attention, and potentially resources. Industry supporters also say the FAA’s culture of allowing no failures — a bedrock of its oversight of the commercial airline industry — is culturally a bad fit for what AST does, given how young the space industry is.
AST does not require that each mission succeed in the conventional sense, said Caryn Schenewerk, an industry consultant who sat on the advisory committee. “They can’t,” she said. Launching rockets is still so new, the office’s goal is to make sure failures don’t hurt anyone — not to prevent them altogether, she said.
As launches have become more common, though, so too have problems like the Starship explosion. A report from the Government Accountability Office found that in the three years before its 2023 review, commercial space launches experienced roughly two dozen mishaps, the industry’s term for “catastrophic explosions and other failures.”
While the report noted that none of those incidents resulted in fatalities, serious injuries or significant property damage to the public, there have been other impacts. Starship’s first launch in April 2023, for example, blew a cloud of dust and grime that stretched miles across Texas. Debris like concrete and shrapnel rained down on an environmentally sensitive migratory bird habitat near the company’s Boca Chica launchpad. Residents have complained, Jah said, but “citizens of that community aren’t feeling that they’re being heard.” A report in The New York Times noted egg yolk staining the ground near a bird’s nest.
In response, Musk wrote on X: “To make up for this heinous crime, I will refrain from having omelette for a week.”
SpaceX’s plans to launch the next Starship this month are part of the accelerated schedule the company has been pushing AST to approve. The company launched four of the vehicles in 2024, and officials said it wants to launch 25 this year.