Canadian Space Launch Act

An Act to amend the Aeronautics Act and other Acts

Sponsor

Steven MacKinnon  Liberal

Status

Second reading (House), as of April 28, 2026

Subscribe to a feed (what's a feed?) of speeches and votes in the House related to Bill C-28.

Summary

This is from the published bill. The Library of Parliament has also written a full legislative summary of the bill.

This enactment amends the Aeronautics Act to establish a legislative framework for space launch and re-entry activities in Canada. It amends certain definitions to take into account new terms, such as launch vehicles and re-entry vehicles, and authorizes those terms to be defined by regulation. It also removes certain decisions related to launch and re-entry from review by the Transportation Appeal Tribunal of Canada. It expands the regulation-making powers, including in relation to launches and re-entries and the operation of launch and re-entry sites, as well as in relation to the application of certain international agreements and standards.
This enactment also introduces new authorities related to liability and indemnification for launch and re-entry activities. It authorizes the Minister of Transport to indemnify owners and operators of launch or re-entry vehicles in certain circumstances, and when it is in the public interest, for their liability to third parties for loss or damage caused by their activities, and to require the owners and operators in certain circumstances to indemnify the Government of Canada for any liability to third parties for loss or damage caused by their activities. It establishes regulatory authority to create a distinct financial responsibility regime that includes the ability to grant exemptions or adjustments in specific cases. It provides for emergency authorities to allow the Minister to stop launch or re-entry activities for reasons of safety or security. Finally, it establishes a scheme related to the development of zoning regulations for certified launch and re-entry sites.
It also amends the Carriage by Air Act , the Canada Transportation Act and the Secure Air Travel Act .

Elsewhere

All sorts of information on this bill is available at LEGISinfo, an excellent resource from Parliament. You can also read the full text of the bill.

Bill numbers are reused for different bills each new session. Perhaps you were looking for one of these other C-28s:

C-28 (2022) Law An Act to amend the Criminal Code (self-induced extreme intoxication)
C-28 (2021) Strengthening Environmental Protection for a Healthier Canada Act
C-28 (2016) An Act to amend the Criminal Code (victim surcharge)
C-28 (2014) Law Appropriation Act No. 5, 2013-14

Debate Summary

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This is a computer-generated summary of the speeches below. Usually it’s accurate, but every now and then it’ll contain inaccuracies or total fabrications.

Bill C-28 seeks to establish a regulatory framework for commercial space launch and re-entry activities within Canada. While supporters argue this will foster economic growth and national sovereignty, critics express concerns regarding ministerial discretion, potential lack of transparency, and inadequate parliamentary oversight.

Liberal

  • Establishing sovereign launch capabilities: Liberals argue that as the only G7 nation lacking domestic launch capabilities, Canada must establish sovereign access to space to protect national security and reduce dependence on foreign nations for critical satellite infrastructure.
  • Driving economic growth: The bill aims to capture a share of the rapidly expanding global space economy, projecting the creation of thousands of high-paying jobs and a domestic industry worth an estimated $40 billion.
  • Creating a modern regulatory framework: The legislation provides a clear legal and licensing framework for commercial space activities, establishing risk-based safety requirements and financial indemnification systems to provide the certainty needed for private sector investment.
  • Fostering innovation and regional development: The bill supports regional projects, such as the Nova Scotia spaceport, and encourages Canadian innovation in aerospace to inspire the next generation of scientists and keep high-skilled talent within the country.

Conservative

  • Supports domestic space capabilities: The Conservatives support establishing domestic space launch capabilities but oppose the bill's reliance on ministerial discretion over a clear legislative framework, arguing it creates regulatory uncertainty for investors and weakens parliamentary control.
  • Protects taxpayers from financial risk: Members criticize provisions allowing the minister to indemnify private operators at their discretion, arguing this transfers significant financial risk to taxpayers without transparent reporting, competitive fairness, or adequate parliamentary oversight.
  • Strengthens national security safeguards: The party highlights the absence of mandatory national security screenings or foreign ownership transparency in the bill, calling for these protections to be hard-wired into the statute rather than left to ministerial judgment.
  • Opposes opaque insider deals: Critics raise alarms over perceived favoritism, citing a $200-million federal deal for a primitive launch site as evidence that the bill's design rewards political connections and lobbyists over merit and the rule of law.

Bloc

  • Support for domestic launch capability: The Bloc supports establishing a legislative framework for space launches to reduce Canada's 60-year lag behind other nations and end the country's total dependence on American facilities and expertise.
  • Concerns about ministerial discretion: Members criticize the bill for lacking clear definitions and granting the minister excessive power to create regulations behind closed doors, which risks undermining parliamentary oversight and transparency.
  • Leveraging Quebec's aerospace industry: Highlighting the Canadian Space Agency’s presence in Saint-Hubert and Quebec's strong aeronautics sector, the party advocates for utilizing the province's specialized knowledge and considering it for future launch infrastructure.
  • Demand for transparency and vision: The party calls for greater transparency regarding the government's long-term vision for civilian, commercial, and military applications of the space sector to ensure all potential impacts are properly addressed.
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Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:35 p.m.

Conservative

Steven Bonk Conservative Souris—Moose Mountain, SK

Mr. Speaker, someone does not have to be that good in business to understand that there is something wrong here. The land that this launch site is on is owned by the provincial government in Nova Scotia. It was leased for $13,500 per year. That company turned around and leased it to our federal government, in its incredible business acumen, for $20 million a year.

That is some pretty good business for whoever owns this launch site. It is some very poor business if we are trying to be in support of the Canadian taxpayers who are actually footing the bill for this.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:35 p.m.

Conservative

Dan Albas Conservative Okanagan Lake West—South Kelowna, BC

Mr. Speaker, I think that the member has raised, in his comments today, a very good example. If the oil and gas sector was regulated the way that the Minister of Transport is suggesting Bill C-28 should be regulated, it would be all-powerful and it would be for arbitrary reasons.

I think industry participants would say it would not be fair if certain companies were insured and certain companies were not insured, and if certain companies could get a permit to start drilling and certain ones could not. That is an opaque system. It would not be tolerated in any investment-oriented enterprise like oil and gas.

Could the member talk a bit more about how MLS lobbied the PMO and ministers over 150 times and somehow acquired this lease where it is getting $55,000 a day from the federal government?

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:35 p.m.

Conservative

Steven Bonk Conservative Souris—Moose Mountain, SK

Mr. Speaker, we will even take a further step back from that. There are two things that private industry or private investors want more than anything. The number one thing they want is predictability.

We have a system now where the government is not following its strict processes. It is allowing the ministers to pick winners and losers. We know that something is wrong. We have a democracy and we have a country like Canada that has had such a great reputation. I have had the great privilege of working all over the world and there was an open door wherever we went because we were Canadian and others knew that our system worked. We are seeing that eroded every day by giving the ministers more power and less scrutiny. This is a terrible slide in our democracy, as far as I am concerned.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:40 p.m.

Taiaiako'n—Parkdale—High Park Ontario

Liberal

Karim Bardeesy LiberalParliamentary Secretary to the Minister of Industry

Mr. Speaker, it is a pleasure to speak to this bill today and to set it in the context of what has been already an incredibly exciting year for space in Canada, a year in which we have sent and seen return back, from the far side of the moon, Colonel Jeremy Hansen. With Dr. Jenni Gibbons, they were a key part of that work with respect to the Artemis II mission of the Canadian Space Agency.

I appreciate the comments from my colleagues from Souris—Moose Mountain and London—Fanshawe with respect to some of the particularities of the bill and their concerns.

It is rare that we get a piece of legislation that has some inspiring words in its text, but I am going to share some of these and will come back to the manner in which this is inspiring specifically.

There were some questions around what was in the legislation and some vagueness. However, I read some very specific language in the legislation. I want to read out here what it says under proposed subsection 3.2(1):

The following definitions apply in this Act.

launch vehicle means

(a) a rocket; or

(b) a vehicle, other than a rocket, that is designed to ascend to Earth orbit or beyond.

re-entry vehicle means a vehicle that is designed to be returned by its operator, substantially intact, from Earth orbit or beyond to Earth.

In the very text of this legislation, we have the imagination, the promise and the hope of space exploration. The thing that is inspiring millions of Canadians and has inspired hundreds of millions of people around the world with the Artemis II mission is part of the framework of this legislation today. It is talking about vehicles that were not earlier contemplated in our aeronautics legislation. The Canadian space launch act sets up a position where we can imagine vehicles we did not have as deployable resources, imagining a sector that is emerging, but needs some regulatory shape to it, and bringing it into life.

I think that, very crucially, the legislation does a very good job of balancing the need to promote risk-taking and the gathering and deployment of resources across Canada with the appropriate supervision of the minister, the departments and others, but with the right calibration toward risk-taking and setting into motion an industry that already exists. However, from a G7 perspective, the very specific things we want to do in this sector we are not doing as much in Canada as other G7 partners.

The Canadian Space Agency is a key partner in the Artemis II mission. The European Space Agency is very much involved as well.

I forgot to mention that I will be sharing my time with the member for Peace River—Westlock. My enthusiasm for this mission and all things space in this moment is very heightened. I apologize for that brief oversight.

It is not just the inspiration. When one is in space, one cannot do what my friend from British Columbia would like me to do in this moment. When one is on a mission, one has to keep going. Our friend Colonel Hansen definitely did that.

I want to draw attention to the Artemis II mission, and I mentioned Colonel Hansen. Two other astronauts had a key role. One was Jenni Gibbons on Artemis II. She was in mission control. She was officially one of the backups on the mission, so she had to be ready. She went through the exact same training as the other astronauts. She is also the youngest Canadian astronaut and a huge source of pride, motivation and inspiration, not just to women and girls, but to Canadians across the country who can say that they can do this, that they can go into space.

I also want to draw the attention of members to Joshua Kutryk. We are sending a second Canadian astronaut into space at the end of this year, to the International Space Station on another mission. He is going to be in space for around six months. We respect the personal cost, the sacrifice and training he has had to go through, the running of scientific experiments and the extent to which he is subjecting himself to that experimentation. We thank him.

These astronauts, these heroes for Canadians, are heroes they might have seen earlier in movies and are now able to watch on television in these missions. They are a really important part of the space sector and the inspiration that is coming in this year of space for Canada.

It is not just the astronauts. Recently I had the pleasure of meeting some young people who were employed by NordSpace, which is one of the companies looking to do, and that has done, some very successful tests around rocket launches in Canada. I met one of them at a recent Next Generation Manufacturing conference. She came into the sector through the Royal Canadian Air Cadets, specifically 631 Sentinel squadron in Scarborough. She told me that once one has a taste of aerospace, it never goes away.

We are building a sector that is inspiring hundreds of thousands of Canadians. It is a sector they want to join. When there is an appetite or an interest, what does government do to serve that interest? In the 1960s, President John F. Kennedy articulated a national mission, and that attracted resources and energy. Obviously, the U.S. administration and NASA were very involved in leading that effort. It is the connection between government action and inspiration that I want to draw members' attention to.

By saying we are going to have sovereign space launch, I mean we are going to make space for more of the NordSpaces of the world to, again, as described in the legislation, launch rockets and launch vehicles that were not earlier contemplated in legislation. This creates the space for young people, like the woman from 631 Sentinel squadron, to then get into that sector.

I was talking about space, and there is a lot of interest in space this year, and these kinds of sovereign launch capabilities have a relationship to some of our deep space missions, but even the near-Earth orbit that would probably be the more daily subject of this piece of legislation also creates its own inspiration.

A number of years ago, when I was teaching at what was then Ryerson University, now Toronto Metropolitan University, I assigned a biography of Elon Musk to my students as an example of, at the time, some of the ways in which he was pushing the frontiers. There is a very fascinating chapter in the Elon Musk biography by Ashlee Vance on his work with SpaceX and the frontiers he was pushing with the scientists and the engineers in his company, saying, “Can we do this faster? Can we do this better?” He was imagining something that had never been done, except by a giant corporation and a giant space agency, the biggest entities in the world. He decided to move into space because of his inspiration and because of the capital he had to deploy.

We know, and I know from teaching those students, that that effort, that imagination, that ambition inspired them and other Canadians. Now we have other inspirations that are not just from Elon Musk and are not just American. NordSpace itself is an inspiration. The astronauts I mentioned earlier are an inspiration. It is lighting a fire and an interest on campuses across Canada. I was recently at an Artemis II space launch celebration gathering. There were gatherings across Canada for both the launch and the landing. We felt our hearts beat as the capsule came toppling through the atmosphere and then cheered when those first parachutes came up.

It is those moments that are inspiring students across Canada. At the Artemis II space launch event that I attended with Let's Talk Science at the University of Toronto, I met a group of undergraduate students who were starting a rocket club, the second rocket club on campus. There was already a rocket club for the engineers, and this was a group of arts students and science students who were going to have their own rocket club. There are students who are joining competitions and getting course credits. They are building the kind of excitement and economy that would be supported by this act.

Recently, I had the pleasure and the opportunity as Parliamentary Secretary to the Minister of Industry to visit Western University, the University of Waterloo and the University of Victoria, all campuses and locations that have this research energy but also student energy toward the space launch capabilities that this act would be building.

I think my colleagues are going to share some of the other very specific benefits of this legislation, the economic benefits and the regional benefits. We are not going to have our own Kennedy Space Center or our own Cape Canaveral, but we can have versions of those places that people are proud of, that we can launch from and identify with.

I want to conclude by reminding us of the vision that is required here, with a quote by Langston Hughes, in the Dalton McGuinty book Be a Good One:

Hold fast to dreams
For if dreams die
Life is a broken-winged bird
That cannot fly.

In this legislation, we are giving Canadians from coast to coast the opportunity to fly. It is a great opportunity and a great piece of legislation. I commend it to the members of the House.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:50 p.m.

Conservative

Philip Lawrence Conservative Northumberland—Clarke, ON

Mr. Speaker, I just want to clarify something. The member earlier said that there are definitions in the bill for “launch”, “launch vehicle” and “re-entry vehicle”. The reality is that there is a transitional definition, and the minister can now call a “launch vehicle” anything. He could call it an orange if he wanted to. There is no real, permanent definition, in contrast to what he says.

I would go forward to things that are absolutely not in there, which are the certification and operation of a launch re-entry vehicle, safety requirements and anything on national security. If the Liberals do not want to put it in the legislation, will they at least publish the draft regulations?

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:50 p.m.

Liberal

Karim Bardeesy Liberal Taiaiako'n—Parkdale—High Park, ON

Mr. Speaker, I think my colleague for Northumberland—Clarke is familiar with how legislation and regulations work. We bring legislation forward, and then regulations are developed under that.

I know there is a strong commitment to safety in this kind of work. The people and the professionals who are involved in this work take the safety pieces extremely seriously. It is part of a broader ecosystem of companies, in fact, that are working on this. The sovereign capabilities that we would be building through this act would take care of that situation.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:50 p.m.

Liberal

Peter Schiefke Liberal Vaudreuil, QC

Mr. Speaker, I thank my hon. colleague for his impassioned speech about this important piece of legislation and about our future in space. Presently, Canada has to rely on other countries to launch our military satellites into space, to launch our communication satellites into space and to launch some of the finest trained astronauts in the world, our Canadian astronauts, into space.

I wonder if my hon. colleague can speak to the importance of Canada finally taking the future of space exploration into our own hands and giving us the capacity to do so.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:50 p.m.

Liberal

Karim Bardeesy Liberal Taiaiako'n—Parkdale—High Park, ON

Mr. Speaker, I welcome my colleague's question and his work. He represents an economic region where the aerospace and aviation sectors are very important and where we can train the students who are the future of these sectors.

In exactly the way the hon. member described, in a continental context with our peers and with our partners that we do this essential work with, we have all the ingredients, except we lack the sovereign launch capability. This sovereign launch capability that we would be building through our sectors and through this legislation would attract yet more investment, yet more expertise and yet more excitement, and it is all part of the work we need to do to have sovereign launch.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:50 p.m.

Conservative

Ned Kuruc Conservative Hamilton East—Stoney Creek, ON

Mr. Speaker, I would like to touch a little on theory and reality. We heard my colleague across the way talk about launch capability and how it is going to create jobs and all this good stuff, but then we actually have reality.

The reality is that Maritime Launch Services leased to Canada for $20 million a year a concrete pad, which is being leased for $13,000 a year. Our Canadian taxpayers are on the hook for $20 million a year. It is a dirt road with a concrete pad. The other reality is that Telesat, which got over $2 billion from Canadian taxpayers, is now running from creditors.

I would like to hear comments from the member on this huge mismanagement of Canadian taxpayer dollars.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:50 p.m.

Liberal

Karim Bardeesy Liberal Taiaiako'n—Parkdale—High Park, ON

Mr. Speaker, I appreciate the question, but I would advise that the demand for this kind of capability is exactly why we are responding with this legislation.

Here is what Kepler had to say: “It is essential that Canada's sovereign launch capability is globally competitive so it can meet domestic Department of National Defence requirements while also serving global launch demands.”

Eutelsat also relied on American firms and facilities to launch 20 satellites. It said that it “always welcomes the prospect of new entrants into the launcher market to increase the options for access to space.”

It is the building up of supply that we are doing, in part through the legislation we are enabling here today, that enables the sovereign launch capability we have and also attracts new investment.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:50 p.m.

Conservative

Arnold Viersen Conservative Peace River—Westlock, AB

Mr. Speaker, I want to thank the member from Taiaiako'n—Parkdale—High Park for sharing his time with me today.

I am surprised the Liberals have chosen to bring up space exploration today, given the fact that over the last week, we have seen the concrete pad out in Nova Scotia. I am sure we have all seen the picture by now. I want to thank Marie Lumsden from the Hamilton Examiner for the great article that has given me the information for this speech here today.

The Liberals are true to form. We have seen over and over again where they have worked very hard to enrich their friends. We have seen the clam scam. We have seen the ArriveCan app. We have seen the WE Charity scandal. We have seen the Chuck Rifici and the marijuana “pump and dump” schemes. We have seen the Brookfield stock go up over time. We have seen the green slush fund. We have seen the Randy Boissonnault scandal. We have seen this over and over again.

In the fallout of the news being reported around this gravel driveway and a concrete pad out in Nova Scotia, and a government contract for $200 million, the government decides this is the week we should be talking about space exploration, or participation in space. I am excited that Canada participates in space. I remember growing up being super proud of the Canadarm. Does everyone remember the Canadarm? I remember being excited about that, going to the Edmonton Space and Science Centre, watching the spacewalk on the IMAX and things like that, and also about the International Space Station and our participation in that.

The Liberals want us to talk about that today, about our Canadian participation, how we should be so proud that Canada participates in space and that we should have our own Cape Canaveral. What we saw in the news last week is no Cape Canaveral. It is a concrete pad.

Now, I poured a bit of concrete last summer, and I can say that concrete is pretty expensive by the cubic metre. It was about $300 a cubic metre back home. I can imagine that is a pretty expensive place, and the company is paying $13,500 a year to lease the land that this pad is on. We know that. I would give them a generous amount. I have paid a few contractors in my time for concrete as well, so I will be generous with it. Let us say some Caterpillar work was done there and some gravel trucks came and brought some gravel. It cost maybe $1 million. I think that is a pretty generous amount. Everybody made some good money building that pad.

The Canadian government could have done that. The Canadian government could have leased the land from the Nova Scotia government, spent $1 million and built the concrete pad. I think that would be an acceptable thing for us to have done, given that the Canadian government owns most of the airports in Canada. I do not know if everyone knows this, but most of the airports in Canada are owned by the Canadian government. Then private companies, generally not-for-profits, operate these places, and they pay the Canadian government for the operations.

Members can imagine being flabbergasted that this has been brought up here, that we are paying for the privilege of being able to maybe one day use this concrete pad to launch a rocket somewhere. We are paying $20 million a year for the privilege of maybe being able to use that concrete pad. That is not all. The Liberals really know how to make their friends happy: by backdating this contract a whole year and paying them back an entire year. Marie Lumsden looked into some of the people involved. Lo and behold, a Liberal premier is on the board of directors of this company. Wow, look at that, Liberals feeding their friends. Members may think that is kind of interesting. There is a partnership. All of this was brought up by the partnership from—

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:55 p.m.

The Speaker Francis Scarpaleggia

Colleagues, we have not yet gotten to the point of listening to the spring economic statement. The hon. member for Peace River—Westlock is still delivering his speech, so out of respect for our colleague, let us keep the sound level down.

The member has the floor.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 3:55 p.m.

Conservative

Arnold Viersen Conservative Peace River—Westlock, AB

Mr. Speaker, I was just talking about the launch corruption into the stratosphere pad out in Nova Scotia. We then discovered, through the work of Marie Lumsden, about some of the directors of the company—

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 4 p.m.

The Speaker Francis Scarpaleggia

The hon. member for Peace River—Westlock will have about five minutes left when the topic returns to the House for debate.

It being 4 o'clock, pursuant to order made Tuesday, April 21, 2026, I now invite the hon. Minister of Finance and National Revenue to make a statement.