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 / 11:20 a.m.

Bloc

Xavier Barsalou-Duval Bloc Pierre-Boucher—Les Patriotes—Verchères, QC

Madam Speaker, I have absolutely no reason to trust Ottawa on this issue because history has shown that Ottawa does not serve Quebec well in any regard.

Let us look at a recent example, when relations with the U.S. were already strained and President Trump was already in office. Bombardier makes air surveillance aircraft that could have served our armed forces very well, and yet Canada decided to snub Bombardier's aircraft and buy American planes. The government could have bought its aircraft from Quebec and strengthened the capabilities of our local industry, but for whatever reason that is beyond my comprehension, it always ignores Quebec's talent. It is very frustrating.

That is why we think that an independent Quebec would be better off showcasing its own expertise, rather than being constantly looked down on by the rest of Canada.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

Conservative

Philip Lawrence Conservative Northumberland—Clarke, ON

Madam Speaker, given the broad discretion this legislation lends to regulations, would the member agree with me and our party that draft regulations should be published prior to the passing of this legislation?

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

Bloc

Xavier Barsalou-Duval Bloc Pierre-Boucher—Les Patriotes—Verchères, QC

Madam Speaker, that would be helpful because we are kind of in the dark at the moment. We are being told that regulations will be forthcoming. Do government members already know what will be in the regulations? If they know, why not put that in Bill C‑28? If they think the regulations are not fit to be included in the bill, why not tell us more so we have a sense of the government's plans?

My concern here is that we have, on occasion, seen the government make all kinds of program announcements. It announces wonderful things in the budget, and then it takes years for things in the budget to materialize as actual programs. Sometimes the government announces things without knowing what it is going to do or where it is going to go with them. If we had a sense of where it wanted to go, we could work more effectively in committee going forward.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

Liberal

Kevin Lamoureux Liberal Winnipeg North, MB

Madam Speaker, it is estimated that with the passage of the legislation, we could see something actually taking place in Canada as early as 2028. It is an ambitious goal, but it can be achieved. The legislation, in itself, plays a critical role in hitting that particular goal.

I am wondering if the member from the Bloc could give an indication of how they see the legislation going through the House.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

Bloc

Xavier Barsalou-Duval Bloc Pierre-Boucher—Les Patriotes—Verchères, QC

Madam Speaker, in response to my colleague's question about how I see this moving forward, I would say that I hope it will progress fairly quickly in the House. We often focus on the big picture in the House. We tend to pay less attention to the details and concentrate more, shall we say, on the broader issues. As for how things will proceed at the committee stage, that will depend on the witnesses who are called to appear and on what we learn.

At the moment, I think we are at the stage of sorting out the details. The government has admitted this itself, given that this is the first bill of its kind to be introduced. In fact, there is no legal framework specifically for the aerospace sector. At the moment, we are simply relying on the laws that apply to air travel and aeronautics. As the government itself is still in its infancy, we cannot claim to be any further ahead than the government. At least, I hope that is the case.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

Conservative

Costas Menegakis Conservative Aurora—Oak Ridges—Richmond Hill, ON

Madam Speaker, what we see, yet again, from the Liberal government and the Liberal minister is another power grab giving more autonomy to the minister to make decisions, which, of course, leads to less transparency, less accountability and less parliamentary oversight.

Does the member opposite think it is a good thing to give more power to the ministers and to have less transparency, less parliamentary oversight and less debate for all parliamentarians?

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

Bloc

Xavier Barsalou-Duval Bloc Pierre-Boucher—Les Patriotes—Verchères, QC

Madam Speaker, I am not entirely convinced. I need to have all the information before I can answer that, but if the past is any indication, it does not look good. We know that we have a government that likes to do things behind closed doors.

To me, what matters is ensuring the highest possible level of accountability and transparency. I am hopeful that, during the committee review stage, amendments will be proposed that will allow us to ensure that going forward.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

Winnipeg North Manitoba

Liberal

Kevin Lamoureux LiberalParliamentary Secretary to the Leader of the Government in the House of Commons

Madam Speaker, what a pleasure it is to be able to rise today to speak on significant legislation. Bill C-28 is legislation that I believe should inspire people to think big in terms of the opportunities that are there to build a stronger and healthier country for all. It is a wonderful anniversary piece of legislation, and I do not know if it was actually planned that way. It is great to be having this debate today. It was just one year ago that Canadians elected a new Prime Minister, and that Prime Minister and this government have made it very clear what we want to be able to do.

We talk about building Canada strong and building a sense of security for Canadians. When we take a look at what has taken place over the last year, we see a government that has taken many different initiatives to do exactly what we said we would do in the last election. Building Canada strong for all Canadians is the priority of this government.

The legislation we are dealing with today speaks to that point, I would ultimately argue. I would encourage members to take a look at what is before us and how this legislation would enable an industry in Canada that has done exceptionally well. This legislation speaks volumes in looking at how we can go beyond the type of markets we have and how we can complement what we have today.

As I pointed out, we could actually be sending, via rocket, satellites into orbit as early as 2028. This is a significant and ambitious goal set by the Prime Minister and government. I would love for us to be able to achieve that goal. Part of being able to do that is recognizing the value of the legislation.

I am encouraged by the Conservative, or rather, by the Bloc party's comments in regard to it.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

An hon. member

Conservative Bloc?

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:25 a.m.

Liberal

Kevin Lamoureux Liberal Winnipeg North, MB

That was more of a Freudian slip.

Madam Speaker, I was referring to the Bloc's position when I posed the question of how its members saw the legislation proceeding.

The principle of the legislation is sound. How can someone oppose the principle of what the Government of Canada is trying to do by presenting the legislation? To that end, the Bloc's position was that it could see the legislation going to committee, having some dialogue and having stakeholders come to the table and talk about the legislation and where it might be improved upon and so forth. Ultimately, in listening to the response to my question, I felt relatively optimistic that there is going to be collaboration coming from the Bloc.

Collaboration is an important thing. We want to see collaboration. It is one of the ways we can improve legislation. One of the things that this Prime Minister and government have done very clearly is show that if there are ways in which we can improve something, we are open to doing it.

A very good example of this occurred yesterday. Yesterday, we swore in three new members to the House of Commons, which gave us a majority government. The first action we had on the floor of the House of Commons was the passing of a private member's bill from the opposition that dealt with crime. That is collaboration. We want to see that collaboration with respect to Bill C-28. Bill C-28 is something that should make all of us, in principle, feel good and want to see it happen. Why not? That is actually not a bad question to pose: Why not?

This morning, I had the opportunity to ask the front person for the Conservative Party on this whole debate a very straightforward question, not once but twice: Do they support the principle? Should Canada's space industry have a launch pad here in Canada? That is the essence of what we are talking about today: the ability to launch, via rocket, things such as satellites into space. I was surprised and disappointed, but I think they will come around. They just need a little persuading. The Conservatives will come around to supporting the idea that Canada should have the ability to launch its own satellites.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:30 a.m.

An hon. member

Answer my questions.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:30 a.m.

Liberal

Kevin Lamoureux Liberal Winnipeg North, MB

Madam Speaker, I will get to answering some of the member's questions.

The nice thing is that, in listening to the Conservative member's speech, many of the questions he posed could actually be answered in great detail at the committee stage. I look forward to the legislation hitting the committee stage, where those answers will be provided. He might not like the content of the answer, but the government does want to facilitate communication that allows for the passage of this legislation. As I said, it is an ambitious goal that we have, to try to get things in place as early as 2028. I would suggest that we should be thinking about the industries affected.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:30 a.m.

An hon. member

Oh, oh!

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:30 a.m.

Liberal

Kevin Lamoureux Liberal Winnipeg North, MB

Madam Speaker, I was just reminded by one of my friends across the way that we have a majority. However, whether we have a majority or not, I can assure members across the way that, as much as possible, when we see good legislation, we will say, let us get behind it, get it into a committee situation, have that dialogue and see where we can collaborate and whether there are ways in which we can improve the legislation. By all means, let us be open to that, whether it is government legislation or private members' legislation. I think the Prime Minister has been very clear on that particular point.

Having said that, which was a little off-topic but I'll get right back to it, let us talk about the industries that could be positively impacted by legislation of this nature. I made reference to an industry that is so important to the province of Manitoba, as it is for Quebec. Contrary to the Bloc member, I will not say negative things about the aerospace industry in Quebec. However, Manitoba, Quebec and Ontario have aerospace industries that provide thousands of jobs. In Manitoba directly, it is probably just under 10,000, or right around that mark, and I think it has great potential.

I highlighted Magellan Aerospace, which I had the opportunity to tour with ministers, most recently the Minister of Industry. It is an outstanding tour of a first-class, world-class aerospace industry that has developed, and continues to develop, satellites. Magellan has manufactured a satellite that is actually orbiting Earth today. There are hundreds of people who work for Magellan in the city of Winnipeg. When I think of the first-class workers and the good-quality middle-class jobs, I think how Magellan and Winnipeg will benefit because of this legislation. The nice thing is that it is not just Winnipeg. When we think in terms of the Canadian space industry, it is estimated that it could be worth as much as $40 billion, because of this legislation, in the years ahead.

Today, the space industry directly employs in excess of 10,000 Canadians. In terms of the contribution to Canada's GDP, it is already in the billions of dollars. If we think strictly of the space industry and beyond and complement that with our aerospace industry, we are talking about a lot of good-quality jobs. There is a very powerful and strong economic argument as to why we should be getting behind this legislation, but there is also another aspect of the legislation that is really important for us to recognize.

When we talk about security and independence, we need to think of what we have vested in with respect to our military and the important and vital role that the military would play, both directly and indirectly, in this industry that we would be giving a boost to by bringing forward this legislation in anticipation that it will pass. What does making Canada secure mean? It means making us less reliant on other nations to do the work that is so important, that Canadians recognize and wanted the government to do in the last federal election one year ago.

I referred to the military and how that would complement the legislation. We need to think of the commitment the Prime Minister made in the last election, that 2% of our total GDP would go to the Canadian Forces, and we did that. It did not take us a full year. It was literally a number of months that had passed by when we were able to say that we had hit that 2% target. We invested in our military, in both personnel and hardware, from long-overdue pay increases to dealing with the development of equipment that we want to ensure those who serve in the forces are better positioned to utilize on whatever front because of the needs of the Government of Canada.

It was just in the last couple of weeks that a record number of Canadians applied to get into the Canadian Forces. I believe the highest number of Canadians applied in over 30 years. Just over 7,000 Canadians expressed an interest in joining the Canadian Forces. Think of the potential that our military has as we look at expanding the space industry. When we talk about the security of Canadians and the direct and indirect benefits, the Canadian Forces plays an absolutely critical role. That is what this legislation would do. It would further enhance those opportunities.

I suspect it is only a question of time before we see more people wanting to explore the space option, the rocket options. We do develop rockets here in Canada. When I toured Magellan Aerospace, they talked about the rocket components to some of their missiles. I suspect it would only take some significant modifications for us to expand upon rocket development here in Canada.

Speaking about Manitoba, there was a time in Manitoba's history when rockets were being launched at significant heights in Churchill, maybe not into orbit, but we were testing rockets in and around the community of Churchill. We have a government, a Prime Minister who says we want to look at ways to build that stronger and healthier economy for all. Well, Churchill could play a role in this, in some form or another into the future. I know the member for Churchill is a very strong and powerful advocate for the community of Churchill, in particular the port of Churchill. There are opportunities to be had by members of Parliament in virtually all regions of the country when we talk about the expansion and the level of expertise, the jobs and the potential that is there.

It was interesting. I was provided with a comment with regard to the U.K. The commercial space launch sector in the U.K. was really launched back in 2018. Today, it is now worth $35 billion and employs 50,000 people. I would suggest that Canada is well-positioned to really grow in that industry.

We talk about difficult and challenging times, in good part because of what I classify as the three Ts: Trump, tariffs and trade. I can tell colleagues that we need to be doing what the Prime Minister has been talking about and acting on, in terms of looking for ways to become more independent from an economic point of view. This is an area where we can do that.

We have been doing a lot in terms of looking for export opportunities and trade opportunities. We are using all forms of reaching out, while looking for other countries and wealth generators to invest in Canada. As a government over the last year, we have been exceptionally successful at doing that. However, there are other things that we could be doing. Bill C-28 is one of those other things that we could be advancing to build a stronger and healthier economy, to look at some specific industries, to complement our Canadian Forces, to build our space industry, and to complement and see the growth of our aerospace industry. All three of those would benefit with this legislation passing.

My ask to members, in particular within the Conservative Party, is to reflect on the answer that I was provided earlier by the Conservative Party. We should look at it as an opportunity. Yes, there is no doubt there are going to be questions about the legislation. It is the first of its kind that this government is bringing forward. However, let us not delay, indefinitely, legislation that can actually be a good point forward in developing and getting these types of jobs generated and providing that sense of security to Canadians.

A significant percentage of our economy, close to 15% to 20%, goes through satellites. We need to be in the game. What the Prime Minister of Canada, this cabinet and this Liberal caucus are bringing forward would enable Canada to be in the game in a very tangible way. I would hope that all members would support the principle of this legislation.

Canadian Space Launch ActGovernment Orders

April 28th, 2026 / 11:45 a.m.

Conservative

Dan Albas Conservative Okanagan Lake West—South Kelowna, BC

Madam Speaker, the member for Winnipeg North mentioned his admiration for what the U.K. has done, in terms of its space program. In fact, the outer space program act of 1986 established very clearly under the U.K. model that the licensing authority must be satisfied that an activity will not impact national security. There is no statutory duty to consult DND or CSIS in Bill C-28 and no defined national security clearance. This completely contrasts with what the U.K. has.

Does this member realize that there is a real existing gap that puts us at risk, compared to our G7 partners?