Prof. Piero Messina; HEAD, Council & Subordinated Bodies Support Section DG’s Cabinet – European Space Agency
Students exposed to the dynamic of space diplomacy
On 4 and 5 December 2025, in the framework of the space diplomacy activities pursued by the Department, an exercise was organised at the University of Padua by Prof. David Burigana of the Political and Law Science and International studies Dept. (SPGI) proposing the simulation of a Council meeting at meeting level of the European Space Agency (ESA).
The timing couldn’t have been more appropriate: just a week later after the actual Council meeting at ministerial level in Bremen, that endowed ESA with the record amount of 22,3 Bn euro for the next 3 years.
With the support of Piero Messina from ESA Director General’s Cabinet, the simulation was run twice involving two different groups of nearly 100 international students, both form Bachelor’s and Master’s courses, studying subjects such as International Relations, International Organisations, History of Science Diplomacy together with students from the Erasmus programme.
In preparation for the simulation, students had previously been lectured on the functioning of ESA, its intergovernmental nature, its activities and achievements and the manner these are financed by Member States. One of the most important steps in ESA’s functioning is indeed the meeting of he Ministers in charge of space in the 23 Member States which takes place generally every three years and defines the financing over that period.
For the exercise, the students had to act, on one hand, as Minister of the main ESA Member States and as ESA programme Directors on the other hand. The former had an allocated budget to invest in ESA programmes and strategic objectives to fulfil, while the latter proposed programmes and missions for financing. Both sides had the same information about the industrial capability of each country in each programme. As it is often the case the total envelope of all ESA proposals exceeded the funds available to Member States.
During the simulation students had to take stock of the information provided, familiarise themselves with the objectives and master the implication of the industrial capacity matrix, which is meant to replicate, in a simplified manner, the “geo-return” principle that governs ESA programmes by ensuring each Member State receives a fair return, through industrial contracts, to their national industry.
As in real life, the simulation alternated negotiations among the different parties and announcement of subscriptions by Member States to the space activities proposed by the ESA Directors. Discussion among the students, representing the various parties, were quite hectic showing their participation and understanding of the simulation.
The two-level dimension of strategic objectives and respect of the industrial capacity matrix introduced an element of complexity which made the simulated discussion close to the spirit of those happening in reality.
At the end of the simulation time was devoted to take stock of the outcome, assess the results and comment the exercise, collecting the feedback by the students.
In the words of a student participating in the simulation: “This experience offered a unique insight into the decision-making dynamics of a Ministerial Council and the complexity behind shaping Europe’s future in space.”
An ESA Council meeting at ministerial level is a clear example of space diplomacy in action where strategic vision both at National and European level, national prestige and industrial considerations are turned in actual investment in space programmes and activities defining Europe’s role in the global space landscape.
Students have had the opportunity to build on their theoretical knowledge to face the challenges of international negotiations, against the background of science and technology cooperation in Europe, having to navigate in real time the constraints of policy making.
