Reviewing regulations for space vehicle jettison debris in the Exclusive Economic Zone

The Government is committed to supporting New Zealand’s fast-growing space industry while ensuring it operates within clear environmental limits.  

This discussion document outlines the current review of regulations allowing space vehicles (rockets) to jettison debris into the Exclusive Economic Zone and Extended Continental Shelf (EEZ).

This review has been prioritised because conditions set under current regulations are due to expire, after which each launch would need to go through a fully notified marine consent process. This would impose significant costs and time delays which is contrary to the Government’s goals of promoting investment certainty and supporting continued growth in the sector.

The Space and Advanced Aviation Strategy 2024–2030 sets out the Government’s goal to double the size of the sectors by 2030.

In a little over a decade, New Zealand’s space industry has established itself as an important economic contributor that provides jobs, supports international communications and promotes innovative technology. The industry’s annual economic contribution is now about $2.5 billion annually, and it supports around 17,000 full-time equivalent positions in New Zealand.

New Zealand is now home to the world's only fully private orbital launch site and conducted the third-highest number of launches in 2024. Since 2017, there have been more than 60 orbital launches from New Zealand. Technological innovation has seen the cost of launches drop significantly in recent years, causing an increase in annual launch numbers from 3 in 2019 to 13 in 2024.

Space vehicles jettison debris as part of normal operations, some of which falls into the ocean and sinks to the sea floor. The impact of this beyond coastal waters is managed via the Exclusive Economic Zone and Continental Shelf (Environmental Effects—Permitted Activities) Regulations 2013 (EEZ Permitted Activity Regulations).

This discussion document focuses on a review of section 8A of the EEZ Permitted Activity Regulations, and whether to increase the launch limit that controls the effects of material jettisoned from space vehicles on the environment and existing interests in the Exclusive Economic Zone. The review is supported by data from an environmental risk assessment by Earth Sciences New Zealand (formerly NIWA).

I welcome feedback on the proposals to enable New Zealand space industry to continue to grow and operate within environmental limits.  

Hon Penny Simmonds
Minister for the Environment.

The Government is reviewing regulations that manage the deposition of space vehicle (rocket) jettison debris in New Zealand’s Exclusive Economic Zone and Extended Continental Shelf (EEZ).

These regulations currently allow for up to 100 launches to deposit debris in the EEZ without requiring a marine consent. Due to the growth of the space and advanced aviation sector, this limit is expected to be reached in 2026.

This discussion document seeks public feedback on whether the current launch limit should be changed, and, if so, how. It outlines the environmental, economic and cultural effects of space vehicle debris, and presents options for updating the regulations to support the growth of New Zealand’s space and advanced aviation sector within environmental limits.

The effects of space vehicle jettison debris are:

• environmental effects: An updated ecological risk assessment concluded that the environmental risk from jettison debris remains low for up to 1,000 launches, provided debris is not deposited on sensitive features like seamounts.
• economic effects: The space sector contributed around $2.5 billion to the New Zealand economy in 2023/24, with a strong export performance and high levels of research and development. Increasing the launch limit could enhance economic growth, attract investment and support high-skilled jobs. The impact of increased launches on the fisheries and oil and gas industries is expected to be low.
• effects on existing interests: Impacts on maritime transport, commercial fisheries and Māori interests are expected to be low due to the remote location of debris zones and limited activity in those areas.

Three options have been identified.

• Option 1: Increase the launch limit to 1,000 – supports sector growth within environmental limits.
• Option 2: Remove the launch limit – maximises flexibility but could exceed environmental limits.
• Option 3: Keep the launch limit at 100 – maintains current environmental limits but will likely constrain the sector.

The Government also proposes refining how launches are counted, so that only launches that result in debris being deposited in the EEZ count towards the limit.

Under the Exclusive Economic Zone and Continental Shelf (Environmental Effects) Act 2012, the Minister must establish a process that gives the public, iwi authorities, and people whose existing interests are likely to be affected, adequate time and opportunity to comment on proposed regulations This consultation has been designed to give effect to the principles of the Treaty of Waitangi for the purposes of the Act. Consultation closes at 11.59 pm on 19 October 2025.

The Government is considering amending regulations under the Exclusive Economic Zone and Continental Shelf (Environmental Effects) Act 2012 (EEZ Act) that manage the deposition of space vehicle jettison debris in the Exclusive Economic Zone and Extended Continental Shelf (EEZ).

Scope of consultation

This consultation considers the effects of jettisoned (released or dropped when no longer needed) debris from space vehicles (commonly known as rockets) in the EEZ because this is where debris usually falls during normal operations. This includes effects on the water column and seabed, as well as effects on existing interests (including Māori, maritime and fishing), international obligations, economic benefits and environmental sustainability.

Other matters not in the scope of this review include:

• regulation of space vehicle launches under the Outer Space and High-altitude Activities Act 2017 (including issuance of launch licences and payload¹ permits, contents of payloads, suitability of launch operators, risks to national security, notification requirements and orbital debris mitigation)
• effects management (eg, noise, effects on other activities) on land and in the territorial sea (up to 12 nautical miles from the coast) under the Resource Management Act 1991
• exclusion zones managed by the Civil Aviation Act 2023 and Maritime Transport Act 1994
• any effects on the atmosphere or outer space.

^{1 The part of the space vehicle that is carried for a client, typically a satellite in the case of New Zealand commercial operations.}

Your views 

The Government welcomes your comments on this discussion document. The questions throughout the document are a guide only. You do not have to answer every question, and all comments are welcome. See appendix 1 for the full list of questions.

To ensure others clearly understand your point of view, you should explain the reasons for your views and give supporting evidence if needed.

What happens next?

After receiving submissions, officials will analyse submissions and provide advice to the Minister for the Environment, who will then decide on policy options, in consultation with the Minister for Space.

Any amendments to regulations will be made by December 2025.

New Zealand has an internationally recognised space launch capability. Interest is growing from space launch operators to expand their launch sites into other countries, including New Zealand.

In 2017, the Government introduced a permitted activity classification for the deposit of jettisoned material from space vehicles in the EEZ. The classification was based on a 2017 ecological risk assessment by NIWA and on public consultation.² The ecological risk assessment used the deposition of debris from a 40-tonne space vehicle to assess the effects on the marine environment. It determined that the risk of negative effects was low for up to 100 launches.

The classification was designed to support the development of a safe, responsible and world-leading space industry in New Zealand, while ensuring environmental effects were reduced or avoided. The classification allowed the:

• deposition of jettisoned material from up to 100 launches in the authorised launch deposit area (figure 1)
• launch of space vehicles without the need for fully notified marine consents, which would have added significant cost and time delays to each launch.

Any change to the permitted activity classification require a change to the Exclusive Economic Zone and Continental Shelf (Environmental Effects—Permitted Activities) Regulations 2013 (EEZ Permitted Activity Regulations).

The launch limit is expected to be reached in 2026 due to the growth of the space sector. Any space vehicle launches that jettison debris beyond this limit would require a fully notified marine consent before the launch could proceed. This requirement would constrain the space and advanced aviation sector by imposing significant extra costs, time delays and uncertainty.

^{2 Lamarche G, MacDiarmid A, Anderson O, Baird SJ, Bowden D, Clark M, Goetz K, Hickey C, Ladroit Y, Schnabel K, Thompson D, Lundquist D. 2017. Regulation of jettisoned material from vehicles under the Exclusive Economic Zone and Continental Shelf Act 2012: Proposed changes (PDF, 1.3 MB). NIWA Client Report 2017068WN. Prepared for the Ministry for the Environment. Wellington: Ministry for the Environment.}

Figure 1: Authorised launch deposit area, which includes part of the Extended Continental Shelf

^{Source: Earth Sciences New Zealand.}

The EEZ Act sets out responsibilities for the Minister when amending regulations, including giving effect to principles of the Treaty of Waitangi. To recognise and respect the Crown’s responsibility to give effect to the principles of the Treaty of Waitangi, section 12 of the EEZ Act requires the Minister to establish and use a process that gives iwi adequate time and opportunity to comment on the subject matter of proposed regulations.

Outer Space and High-altitude Activities Act 2017

The Outer Space and High-altitude Activities Act was enacted in 2017 to regulate space and high-altitude activities conducted in New Zealand and by New Zealanders overseas. The Act introduced a licencing and permitting regime, requiring operators to hold a licence to launch a space vehicle or a payload from a launch facility. Launch facilities must be authorised by the Minister for Space. Operators must meet conditions to be granted a launch licence or payload permit.

EEZ Permitted Activity Regulations

The EEZ Permitted Activity Regulations manage space vehicle debris deposition in New Zealand’s EEZ. Under regulation 8A, the deposit of jettisoned material from space launches onto the seabed of the EEZ is classified as a permitted activity, provided operators comply with several conditions, which:

• restrict where debris may be deposited (requiring operators to avoid closed seamounts and deposit within the authorised launch deposit area) 
• limit the number of permitted space vehicle launches to 100 in total.

Operators must also meet pre- and post-launch reporting requirements. They must notify the Environmental Protection Authority (EPA) no later than 10 working days before a launch and submit post-activity reports to the EPA no later than 5 working days after a launch, as well as quarterly or after 10 consecutive launches, whichever happens first. Further information on the EEZ Act can be found in appendix 3.

New Zealand’s international obligations

Section 11 of the EEZ Act states that the Act continues or enables the implementation of New Zealand’s international obligations, including the United Nations Convention on the Law of the Sea 1982 (UNCLOS) and the Convention on Biological Diversity 1992 (CBD). No current international agreements regulate the disposal of jettisoned material from space vehicles on the seabed.

Some general obligations apply to deposition on the seabed under UNCLOS and the CBD. As well as these general obligations, New Zealand has general obligations under the Convention for the Protection of the Natural Resources and Environment of the South Pacific Region 1986 (Noumea Convention).

Further information on New Zealand’s international obligations can be found in appendix 3.

Enabling development and economic growth within environmental limits is a key priority of the Government. Any changes to the space vehicle launch limit in the EEZ Permitted Activity Regulations should also safeguard the environment and human health. This review will ensure that environmental protections remain robust, while supporting the sustainable development of New Zealand’s space and advanced aviation industry.

The space and advanced aviation sector is broad and includes:

• aircraft and spacecraft that operate at different altitudes
• drones that operate at low levels
• rockets that reach Earth’s orbit and beyond.

The technologies delivered by the space and advanced aviation sector are essential to the day-to-day functioning of New Zealand, enabling navigation and communication, security and defence, environmental monitoring, disaster response and recovery, weather forecasting and natural resource management.

The Government has developed a space and advanced aviation sector strategy³ to support growth of the sector. The sector strategy positions New Zealand to become a global leader in space and advanced aviation, while contributing to long-term economic growth and resilience. The Government plans to double the size of the space and advanced aviation sector by:

• exploring the development of New Zealand’s space capabilities with a national space mission
• establishing a world-leading regulatory environment for space and advanced aviation
• unlocking trade and investment
• building an aerospace-capable workforce
• accelerating aerospace innovation.

^{3 Ministry of Business, Innovation and Employment. 2024. New Zealand Space and Advanced Aviation Strategy 2024–2030. Wellington: Ministry of Business, Innovation and Employment.}

The only space vehicles that have been launched from New Zealand so far are Electron space vehicles launched by Rocket Lab and space vehicles launched by University of Canterbury Aerospace. New space vehicle operators are possible over time. Other operators may use space vehicles with different structures and compositions. Technological advances may also change the structure and composition of space vehicles launching from New Zealand.

The information provided below is based on Rocket Lab Electron space vehicles.

Flight profile

The Electron space vehicle consists of three stages. The first stage provides most of the thrust to leave Earth’s atmosphere and separates from the rest of the space vehicle (including the payload) once it reaches a certain altitude. This falls back to Earth and lands in the EEZ. These can be (and previously have been) recovered for reuse. Some overseas operators are researching, developing and using self-recovering launch vehicles, but this technology is not yet in use in New Zealand.

The second stage carries the payload to a near-orbital trajectory. The third stage provides final orbital insertion and deployment of the payload.

Vehicle parts

The space vehicle has four parts: stage 1, stage 2, kick stage and fairing.

• Stage 1 is made of nine Rutherford engines, bulkhead tanks for propulsion and pneumatics materials, and an interstage.
• Stage 2 comprises a single engine, high-voltage batteries and a bulkhead tank for propulsion materials.
• Kick stage is a single Curie engine and propellant tanks, and carries the payload to orbit.
• Fairing is a shell that surrounds the kick stage and payload, protecting them from the hazards of launch.

Carbon fibre composite

The structural material of the launch vehicle is carbon fibre reinforced polymer. The carbon filaments are chemically inert and do not react to seawater.

Propellants

Liquid oxygen and RP-1 kerosene (a rocket propellant version of kerosene) are used on both the first and second stages of the launch vehicle. Liquid oxygen, if released to the atmosphere, rapidly boils and returns to the atmosphere as gaseous oxygen. RP-1 kerosene is a highly refined grade of hydrocarbon with low density, film and rapid evaporation.

Pneumatics

All inflight pneumatic systems use stored pressurised cold gases to provide tank pressurisation, for cold-gas manoeuvring thrust in space, and for stage separation mechanisms.

Engines

The launch vehicle uses nine engines for stage 1, a single Rutherford engine for stage 2 and a single Curie engine for the kick stage. The engines are constructed of Inconel, an inert nickel alloy. Each engine is mounted to the thrust section of the launch vehicle.

Batteries

The launch vehicle carries 13 high-powered lithium batteries for stage 1, mounted at the rear of the launch vehicle with the engines. Stage 2 carries three batteries, two of which are jettisoned as they become exhausted during flight. The remaining battery is carried with the second stage into orbit and continues to power the stage 2 engine.

The stage 1 batteries remain with the stage 1 structure as it lands in the EEZ. The stage 2 batteries will burn up entirely. The batteries are lithium-based and contain no lead, acid, mercury, cadmium, or other toxic heavy metals.

Jettison of launch vehicle parts

During a space vehicle launch, three different groups of materials are jettisoned: stage 1, the fairing, and two stage 2 batteries.

Stage 1 is automatically jettisoned when empty of propellants. Some proportion of the jettisoned material will burn up in the atmosphere, but most of the material will land in the EEZ. The jettisoned material sinks to the seafloor and is deposited on the seabed off the east and southeast coast of New Zealand in the authorised launch deposit area. Some material could float for a short time (less than one day).

The fairing is released from the launch vehicle shortly after stage 1 and also lands in the EEZ.

Stage 2 of the launch vehicle will continue to climb and accelerate, jettisoning two batteries before entering orbit and releasing the kick stage and the payload. The batteries are highly likely to burn up in the atmosphere before reaching Earth’s surface.

Jettison zones

Materials jettisoned from space vehicles are permitted to be deposited in an authorised launch deposit area in the EEZ. From 2017 to 2024, 55 space vehicles were launched in New Zealand. Twelve launches were from January to August 2025. Of those launches, seven had debris recovered from the EEZ by the space vehicle operator.

Figure 2 shows the locations of previous launch jettison debris.

The EEZ Permitted Activity Regulations define the authorised launch deposit area as the area to the north, east, northwest, south and southwest of New Zealand that:

• is bounded by the line extending from 46°05’S 166°11’E to 46°52’S 161°48’E (southwest of the South Island)
• is bounded by the line extending from 34°13’S 172°40’E to 30°55’S 171°10’E (northwest of the North Island).

Figure 2: Previous launch jettison debris locations

^{Source: Earth Sciences New Zealand}