Now, you might think NASA would ask industry for solutions to this problem. After all, United Launch Alliance was developing a more powerful upper stage for its Vulcan rocket, the Centaur V, that used the same propellant as the core stage of the SLS rocket. And Blue Origin was also developing a powerful upper stage engine, the BE-3U, powered by hydrogen. These options were cheaper, available, and … summarily ignored.

10 years, billions of dollars, and not much to show for it

Congress, smelling jobs, wanted NASA to develop a brand new upper stage. So in 2016, lawmakers allocated $85 million for preliminary work on the upper stage, and have since awarded more than $3.5 billion.

For the development of a rocket’s second stage.

With engines (RL-10s) that have been flying in space for six decades.

And after all of this, a decade later, the upper stage remains years from being ready to fly.

In some ways, the Exploration Upper Stage was the perfect vehicle for pork. It not only spread largesse among Boeing and Aerojet Rocketdyne (for the engines), but it also necessitated a massive new launch tower in Florida. That was good for the Exploration Ground Systems program at Kennedy Space Center.

The original cost estimates of these projects are always instructive to look back on. Boeing’s initial contract to build the Exploration Upper Stage started at $962 million, and NASA planned to launch the rocket on the second flight of the SLS in 2021. Oops. As for the launch tower, the initial estimate for its cost was $383 million, but as of late, it was heading north of $2 billion. So we are talking billions and billions and billions of dollars for a relatively straightforward upper stage, using off-the-shelf engines and a large launch tower.

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The hangup delaying the next Vulcan launches isn’t in rocket production. ULA has hardware for multiple Vulcan rockets in storage at Cape Canaveral Space Force Station, Florida.

Instead, one key reason for Vulcan’s past delays has been the rocket’s performance, particularly its solid rocket boosters. It isn’t clear whether the latest delays are related to the readiness of the Space Force’s GSSAP satellites (the next GPS satellite to fly on Vulcan has been available for launch since 2022), the inspections of Vulcan’s solid rocket motors, or something else.

A Space Systems Command spokesperson told Ars that “appropriate actions are being executed to ensure a successful USSF-87 mission … The teams analyze all hardware as well as available data from previous missions to evaluate space flight worthiness of future missions.”

The spokesperson did not provide a specific answer to a question from Ars about inspections on the solid rocket motors from the most recent Vulcan flight.

ULA’s outfitting of a new rocket assembly hangar and a second mobile launch platform for the Vulcan rocket at Cape Canaveral has also seen delays. With so many launches in its backlog, ULA needs capacity to stack and prepare at least two rockets in different buildings at the same time. Eventually, the company’s goal is to launch at an average clip of twice per month.

On Monday, ground crews at Cape Canaveral moved the second Vulcan launch platform to the company’s launch pad for fit checks and “initial technical testing.” This is a good sign that the company is moving closer to ramping up the Vulcan launch cadence, but it’s now clear it won’t happen this year.

Vulcan’s slow launch rate since its first flight in January 2024 is not unusual for new rockets. It took 28 months for SpaceX’s Falcon 9 and ULA’s Atlas V to reach their fourth flight, a timeline that the Vulcan vehicle will reach in May 2026.

The Delta IV rocket from ULA flew its fourth mission 25 months after debuting in 2002. Europe’s Ariane 6 rocket reached its fourth flight in 16 months, but it shares more in common with its predecessor than the others. SpaceX’s Starship also had a faster ramp-up, with its fourth test flight coming less than 14 months after the first.

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The launch orders announced Friday comprise the second batch of NSSL Phase 3 missions the Space Force has awarded to SpaceX and ULA.

It’s important to remember that these prices aren’t what ULA or SpaceX would charge a commercial satellite customer. The US government pays a premium for access to space. The Space Force, the National Reconnaissance Office, and NASA don’t insure their launches like a commercial customer would do. Instead, government agencies have more insight into their launch contractors, including inspections, flight data reviews, risk assessments, and security checks. Government missions also typically get priority on ULA and SpaceX’s launch schedules. All of this adds up to more money.

A heavy burden

Four of the five launches awarded to SpaceX Friday will use the company’s larger Falcon Heavy rocket, according to Lt. Col. Kristina Stewart at Space Systems Command. One will fly on SpaceX’s workhorse Falcon 9. This is the first time a majority of the Space Force’s annual launch orders has required the lift capability of a Falcon Heavy, with three Falcon 9 booster cores combining to heave larger payloads into space.

All versions of ULA’s Vulcan rocket use a single core booster, with varying numbers of strap-on solid-fueled rocket motors to provide extra thrust off the launch pad.

Here’s a breakdown of the seven new missions assigned to SpaceX and ULA:

• USSF-149: Classified payload on a SpaceX Falcon 9 from Florida

• USSF-63: Classified payload on a SpaceX Falcon Heavy from Florida

• USSF-155: Classified payload SpaceX Falcon Heavy from Florida

• USSF-205: WGS-12 communications satellite on a SpaceX Falcon Heavy from Florida

• NROL-86: Classified payload on a SpaceX Falcon Heavy from Florida

• USSF-88: GPS IIIF-4 navigation satellite on a ULA Vulcan VC2S (two solid rocket boosters) from Florida

• NROL-88: Classified payload on a ULA Vulcan VC4S (four solid rocket boosters) from Florida

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