Roads apart
China's plans for its own satellite navigation system have stunned its partners at Europe's Galileo project
BEHIND THE NEWS
Yojana Sharma
Jan 02, 2008
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When China announced early last month that its home-grown Beidou-2 satellite navigation system would be used to guide traffic and monitor sports venues during the 2008 Beijing Olympic Games, there was astonishment in European capitals.
China has been the most important non-European partner in the European Union's £á3.4 billion (HK$38.9 billion) Galileo satellite navigation project. Beijing was to invest a substantial £á230 million in Galileo and, as a spin-off of the partnership, European companies hoped to have access to the lucrative mainland transport and communications market.
But with Chinese officials implying signals from the Beidou-2 system would be freely available to its citizens and to countries in Asia who sign up to use the Chinese system for their navigation devices, Beidou-2 would compete with Galileo for lucrative mass-market applications in Asia.
"If China were to push ahead on a global civilian system we would review our relationship because we do not have an interest in helping them into the mass market," said Paul Verhoef, head of the Galileo programme at the EU Commission's headquarters in Brussels. "In a sense, it is a competition and it will have an impact on some of the things we do with them."
China's participation in Galileo was originally to build ground stations on the mainland to receive Galileo signals and extend the European system's global reach. China also hoped to launch Galileo satellites, although it has been beaten to that by Russia.
Satellite navigation is already ubiquitous in Europe and the US. Cheap hand-held and dashboard devices provide drivers with accurate directions to any destination. The technology, rapidly replacing maps, is now being incorporated into mobile phones - a lucrative mass-market application.
Satellite navigation has also become a valuable tool in identifying and dispersing traffic jams, for port and air traffic control, for tracking forest fires and giving advance warning of tsunamis. The technology can even be used to track giant panda movements.
For now the world uses the freely available GPS (global positioning system) developed and owned by the US military. European politicians have always worried it could be switched off whenever the US military wished, with dire consequences for industries that have begun to rely on it. These fears led to the launch in 2000 of the ambitious civilian Galileo project which envisages 40 to 50 ground stations around the world.
EU Transport Commissioner Jacques Barrot said in November that Galileo would "ensure the economic and strategic independence" of the EU. But it seemed Galileo would collapse amid bickering over the spoils between private companies in Europe. Late last month, the EU rode to the rescue, taking the project out of private hands, providing a cash injection from the EU Commission's budget to ensure its survival. It is far from clear what will happen to the collaboration agreements with non-EU countries.
The mainland first joined Galileo in 2003 when EU ministers regarded China as an important emerging economic power. "We signed up with China when it was not clear what the implications would be," Mr Verhoef said. "We soon realised that if you allow such co-financing you get into complicated discussions on co-ownership.
Now that it is clear that the only ownership can be in Europe, we need a different kind of agreement."
EU officials admitted that China was unhappy with being treated as a junior partner and had downgraded its involvement. But at the same time China made it clear it wanted to be part of the newly resurrected Galileo. The first Chinese delegation arrived in Brussels on December 19, less than three weeks after the EU took over the financing of Galileo.
"The political co-operation with Galileo was always a really big thing in China," Mr Verhoef said. "It was part of China's strategic relationship with Europe - part of a strategic partnership against the US."
Steven Tsang Yui-sang, a lecturer in Chinese politics at Oxford University, said: "Galileo is a very powerful back-up system for China's military. The US may destroy Chinese satellites but they will not destroy Galileo."
There is another reason why China needs Galileo: its space scientists still can't match the quality of European engineering. "Technology transfer is an important consideration," Mr Verhoef said.
The EU's main aim is to ensure the EU and Chinese civilian systems are compatible. An accord was signed with the US last year to change the signal of GPS-3 and alter Galileo to make them interoperable. "By doing this we are trying to make Galileo more interesting for the end user. They don't want disruption or interruption. Even with China's civilian system we need to make sure it is interoperable," Mr Verhoef said.
EU officials downplay the military applications of satellite navigation, preferring to focus on Galileo's economic benefits. But defence experts say it is clear satellite navigation is the cornerstone of the next generation of smart missiles and will also pinpoint troop and armaments movements.
"I believe this project will have to have military implications at some point," said Ana Gomes, the Portuguese member of the European Parliament who led a recent debate on the funding of Galileo.
Galileo is intended to be accurate in positioning to within one metre, compared with five metres for GPS and 10 metres for Beidou-2 - as recently revealed by Xinhua.
Galileo has already spurred the US to upgrade GPS and Russia to modernise its own Glonass system. "Galileo's accuracy is more useful for military or intelligence purposes than for commercial uses," said Richard North, an adviser on Galileo to the British parliament.
"Part of the very great attraction for China to be associated with the Galileo project is the transfer to Beidou of military technology. It is hard to see how it can be stopped," Dr North said.
Both Taiwan, which has been lobbying the European Parliament on Galileo and EU-China relations this year, and the US have been putting pressure on the EU to reduce collaboration with China for that reason.
Ironically, the change to a publicly funded Galileo has pushed the economic benefits to the background in favour of its military use. "In the beginning it was true Galileo was a civilian, commercial undertaking, but after all the delays and with the public funding the security and military rationale has become stronger," said Jose Carlos Matias, a Macau-based expert on China's involvement in Galileo.
EU officials argue that Galileo's public regulated service (PRS), which involves the greatest accuracy, is encrypted and available only to organisations such as the European Police Agency (Europol), the European Anti-Fraud office, emergency response organisations such as the Maritime Safety Agency and EU peacekeeping forces.
"The Europeans have always said the high-level PRS signal would not be available to China. Frankly, no one believes them," Dr North said. "If Chinese scientists have the architecture of the system, which they must do, they can work it out to crack the code."
Jonathan Holslag, of the Brussels Institute of Contemporary Chinese Studies and an adviser to the EU on China affairs, said: "It is obvious China's [Beidou-2] project is based on European technology. The Chinese know the European technical codes and standards. They take it as a point of departure for their own project."
During the December 5-6 EU-China summit in Beijing the EU stopped short of accusing China of stealing Galileo technology. Dr Holslag said EU delegates instead linked China's continued participation in Galileo to general improvements on intellectual property protection.
"Chinese collaboration on Galileo subverts the whole notion of an [EU arms] embargo," Dr North said. "It's obvious that satellite navigation technology will add to China's military capability."
However, Mr Verhoef said adequate safeguards had always been in place. "We knew when we started with China that they wanted to build their own military system. We don't want to provide technology for it. There is a very strict technology transfer regime."
This is not simply to comply with the EU embargo on arms sales since 1989 but because the EU does not want to jeopardise relations with the US.
"We have sound political and economic reasons - we don't want Washington to stop the sale of US components for Galileo," Mr Verhoef said.
There is every indication that the EU wants to avoid wrangles over technology transfer and make up for time lost. Mr Barrot said the November funding agreement would allow the EU system to be operational by 2013 - five years later than planned.
Beijing now says Beidou-2 will not be fully operational before the Shanghai World Fair in 2010. The use of the system at the Olympics will be very limited.
"The announcement about the use of [Beidou-2] at the Olympics may simply be symbolic," Mr Matias said. "It takes time to deploy a constellation of satellites."
China has five satellites in geostationary orbit. Galileo, like GPS, envisages a global system involving 30 satellites. China might be sending a signal to the EU that it wanted to be treated as an equal on satellite navigation rather than a junior partner, he said.
"Special navigation is an indication of power" on the world stage, Mr Barrot said when the EU took over Galileo's funding last month.
Certainly, that is not lost on the Chinese authorities.
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