Canadian Space Launch Act

Bill C-28, Canadian Space Launch Act · Second reading · now at second reading in the House Where it stands

What Bill C-28 would do

The bill would create legal rules under the Aeronautics Act for space launches and re-entry activities in Canada. It would expand regulation powers over launch vehicles, re-entry vehicles, and the operation and zoning of launch sites. The bill would also let the Minister of Transport indemnify operators for third-party damages in specific public interest cases, or require operators to indemnify the government. Additionally, it would give the minister emergency powers to stop launches for safety or security reasons.

Official text (opens in a new tab)

116 statements

Kevin Lamoureux, Parliamentary Secretary to the Leader of the Government in the House of Commons

Liberal
“We need this bill to help our economy and create thousands of jobs in space, aerospace, and schools. I want the member to explain why the House must pass it now.”
Official Hansard

Mr. Speaker, recognizing that now is the time, the government is focused on building Canada strong for all of us in different ways. When we think of securing our future and of the economic potential, the thousands of jobs and the contributions to the GDP, it is not just about the space industry but also involves our aerospace industries and post‑secondary facilities, with both direct and indirect jobs. We are talking about tens of thousands of lives. All of us get impacted by it. The legislation is a critical step in moving forward. I am wondering if the member could provide his thoughts on why it is important that, as a House, we deal with this issue at this time so we can create—

Dan Muys, Flamborough—Glanbrook—Brant North

Conservative
“I support the space industry. But this space bill gives too much decision-making power to the minister. It lacks clear rules and transparency.”
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Official Hansard

Mr. Speaker, we agree. There is incredible economic opportunity in the space economy and in sectors related to it. Conservatives have always agreed with that. I know that my colleague from Okanagan Lake West—South Kelowna identified in his thoughts in the House, going back to Diefenbaker, Mulroney and Harper, how we have helped advance that. What we are saying and have said consistently in only the first two hours of debate on this piece of legislation is that there are the gaping holes in Bill C-28 that would rest all the power with the minister to make those decisions. That causes grave concerns around Liberal insider access. It certainly is not a matter of transparency. Where are the rules, where—

Dan Albas, Okanagan Lake West—South Kelowna

Conservative
“The space agency is not a security or spy agency. It does not have the legal power to do security checks on space cargo. I am asking the member if he is worried that the minister is relying on an agency that cannot do that job.”
Official Hansard

Mr. Speaker, the member is an industrious member of the transport committee. I learn more each time I speak with him. Earlier today, the Minister of Transport told me in response to a question that the people at the Canadian Space Agency would help him make sure that payloads have national security screening. There would be no statutory duty to consult DND or CSIS. The Canadian Space Agency is not a security or intelligence body. It has no statutory mandate to conduct national security investigations. It has expertise but zero authority. Is the member concerned that the minister would depend on an agency to do something it is not meant to do?

Dan Muys, Flamborough—Glanbrook—Brant North

Conservative
“We need intelligence and defence experts to study this space bill at committee. It spends a lot of money, but it does not protect us from foreign interference.”
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Official Hansard

Mr. Speaker, I thank my colleague, the vice-chair of the transport, infrastructure and communities committee, for his great work on this project and on so many others. The member raises excellent points. The CSA is not the expert on defence, and that is why we need to hear from experts at committee, such as CSIS, as the member mentioned, and others, that can address it. If we are going to invest this kind of money into a project such as the one that is being proposed, where are the safeguards against foreign interference? Where are the safeguards against influence by others? Those questions have not been asked, nor does the legislation address how that would happen.

Tamara Jansen, Cloverdale—Langley City

Conservative
“I do not support this space bill. It makes taxpayers pay if space launches fail, but lets rich private investors keep all the profits.”
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Official Hansard

Mr. Speaker, the new Liberal space bill reads like yet another one-sided deal. Taxpayers would cover the risk, while Liberal friends and wealthy private investors would collect the reward. If launches fail, Canada pays. If they succeed, the profits are privatized. Why is the government proposing building a space program where the public carries the liability but the benefits are reserved for a select few?

Dan Muys, Flamborough—Glanbrook—Brant North

Conservative
“This bill should not make taxpayers pay for everything if something goes wrong with a space launch. The committee studying this bill needs to add better rules and oversight for private companies.”
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Official Hansard

Mr. Speaker, that is an excellent question. That is the crux of this. Why would all the liability be on the taxpayer if things do not go right? Those are the questions we want to ask as the bill is studied at committee. Those are the oversights, rules and transparency that need to be added. Do not get me wrong; there is obviously a role for the private sector. Conservatives have always believed there is a great role for the private sector. That has certainly been proven in the space economy throughout the years and in our leadership on the Canadarm and so many other programs, but there needs to be an equal weighting because the private sector will invest where there is certainty and regulatory oversight. That is what needs to happen.

Steeve Lavoie, Beauport—Limoilou

Liberal
“I want the House to pass this bill. It sets up rules so Canada can launch its own rockets and satellites instead of relying on other countries, which will create jobs and help the economy.”
Official Hansard

Mr. Speaker, I first want to mention that I will be sharing my time with the member for Sydney—Glace Bay. I am pleased to rise today in support of Bill C-28, which represents a significant step forward for Canada’s economic and strategic future. To begin, I would like to point out that I was elected a year ago today. I want to thank the people of Beauport—Limoilou for putting their trust in me, and I hope that they have been proud of the work that I have accomplished for them in this first year. I also want to take a moment to wish all of my colleagues a happy first anniversary. I would also like to thank the people who work every day, with diligence and dedication, to serve the people of Beauport—Limoilou. I thank Souraya, who welcomes all visitors to the office with warmth, empathy, and professionalism. I thank her for her daily commitment and her reassuring presence. I thank Aboubacar, who assists newcomers and residents who need help with the Canada Revenue Agency. I thank him for his attentiveness, patience and kindness. I thank Nicholas, who builds valuable relationships with organizations in the riding and accompanies me to community events. I thank him for his unwavering commitment to the residents and his professionalism. I would like to thank Myriam, who supports me every day here in Ottawa and who works tirelessly to ensure that everything runs smoothly. I thank her for her support, her dedication and her efficiency. Finally, I would like to thank Nancy, who manages the constituency office remarkably well, with a masterful touch. I thank her once again for her invaluable support in this wonderful and crazy adventure. Serving the constituents is a team effort, and I am fortunate to be surrounded by exceptional people. I thank them all. Finally, I would be remiss if I failed to thank my partner and my children for their support. Without Mélanie, I would not be here today. She has been by my side since I first started thinking about this, right from the very beginning of this journey. She told me she would always be there for me, and she is, every single day. Without her, none of this would be possible. This work is demanding. It requires a great deal of time, energy and sacrifice. Without the support of our families, it is very difficult to succeed and stay the course. I thank her for being that pillar of strength, that quiet strength and that indispensable presence in my life. Last week, the day after Bill C-28 was tabled in the House, we marked Earth Day. It is a day that reminds us that we share the same planet, with shared responsibilities. Often, when we take a step back and look a little further afield, this reality becomes even more clear. We got a glimpse of this recently with the Artemis II mission. The images of earth captured during the mission and broadcast by NASA were striking. Seen from space, our planet appears both vast and fragile, without borders or divisions. Even though we have had images of earth for over 60 years, we never tire of them; they are still as magnificent as ever, as if we were seeing them for the first time. Millions of people around the world watched that mission with fascination. For a moment, borders became blurred. Differences gave way to a shared sense of pride, curiosity and wonder. Space exploration has this unique power. It reminds us that, when we work together, when we rely on knowledge, innovation and collaboration, there is virtually no limit to what we can accomplish. It also reminds us that, even in a world that is undergoing rapid and often complex and uncertain changes, we still have the ability to come together around promising and ambitious projects for the good of humanity. Canada must not be a mere observer on the sidelines of this great adventure. In fact, Canada has always been at the forefront of the great advancements in space. We were one of the first countries to send a satellite into orbit. We developed technologies that are recognized around the world. In 1962, Canada became the third country in the world, after the U.S. and Soviet superpowers, to design and build its own satellite. That is a testament to the historic leadership and ambition that have always driven Canada’s space program. Even now, Canadians are still directly involved in the most ambitious missions of our time. These achievements are a reflection of exceptional expertise, a steadfast commitment to innovation and a forward‑looking vision. Above all, they remind us of one essential thing: potential; the potential of Canada, the potential of our businesses, the potential of our researchers and engineers, and the potential of the younger generations who look to these accomplishments and see endless possibilities. Behind every mission, behind every technological breakthrough, there are young people with dreams, young people who choose to pursue careers in science, engineering, aeronautics and space exploration, because they know these fields hold the promise of a bright future. That is why we have a responsibility to create the conditions necessary for this potential to be fully realized here. Today, despite our recognized expertise and our long‑standing contributions, Canada remains the only G7 country without a sovereign space launch capability. As we can see, several other countries have already achieved this. Take the United Kingdom for example, which established its space sector in 2018 and has since developed a $35‑billion industry employing more than 50,000 people. In practical terms, this means that our companies, our institutions, and even our government must rely on other countries to launch their satellites into orbit. This dependence results in costly delays, diverts investment that could be made right here in Canada and exposes our critical infrastructure to decisions beyond our control. Nearly 20% of the Canadian economy relies on satellite connectivity, whether for telecommunications, agriculture, marine navigation, supply chain information, mining projects in remote areas, science, government operations or Canadian defence. This dependence is only going to increase. The global space industry is booming, with projections exceeding $1.5 trillion by 2032. Bill C-28 reflects that reality. This bill enables us to transform our expertise into a genuine driver of economic growth. It represents a concrete opportunity to create wealth, support our businesses and secure Canada’s place in the global economy of tomorrow. It aims to provide Canada with the necessary framework to develop a sovereign space launch capability right here, on our own soil. It will also help attract investment, create high-quality jobs and position Canada as a key player in the space economy of the future. By passing this bill, we have an opportunity to take this industry to a whole new level, with the potential to generate up to $40 billion in total revenue in Canada. Behind those numbers lie very real benefits for Canadians. For example, a spaceport project in Nova Scotia could create up to 16,000 jobs and boost the economy of an entire region, while adding $300 million to Canada’s GDP. Most importantly, this bill allows us to move from merely recognizing our potential to taking concrete steps to realize it. By developing space launch capabilities in Canada, we are strengthening both our sovereignty and our competitiveness in an industry poised for tremendous growth. Since the new government took office, it has made a number of decisions with this sovereignty in mind, including on economic diversification, investments in our infrastructure and yesterday’s announcement regarding the sovereign wealth fund that Canada is setting up. If the past few weeks have taught us anything, it is this: When we look beyond the immediate, when we work together and when we believe in our abilities, we can achieve great things, and Canada is no exception.

Dan Muys, Flamborough—Glanbrook—Brant North

Conservative
“This bill does not set clear rules. Instead, it gives the minister too much power to make decisions. Without clear rules, businesses will not invest in our space industry.”
Official Hansard

Mr. Speaker, my colleague talks about transforming the great potential of the space economy into action. One of the things that we as Conservatives believe is that this bill has massive, gaping holes, in terms of no regulatory framework. It is certainly a blank cheque to the minister to make decisions. That lack of regulatory certainty is going to drive private sector investment in the space economy away. How do we attract private sector investment when there is no certainty? The private sector needs regulatory certainty in order to invest. Would the member care to comment on that?

Steeve Lavoie, Beauport—Limoilou

Liberal
“I want the House to pass this bill quickly. It will bring space industry investments to Canada for future generations.”
Official Hansard

Mr. Speaker, with this bill, we are providing certainty and predictability. We want investments to be made here in Canada. These are investments for future generations. During my speech, I talked about the young people who watched Artemis II. I am well aware that some things are expenditures and others are investments. In this case, we are talking about long-term investments. We need to pass this bill now to bring those investments here. This is a sector that is growing rapidly and exponentially. Decisions need to be made now and quickly. That is what Canadians expect from us. They expect us to make decisions and ensure that Canada is ready for the future.

Kevin Lamoureux, Parliamentary Secretary to the Leader of the Government in the House of Commons

Liberal
“This bill would help Canada's aerospace industry grow, especially in Quebec, Manitoba, and Ontario. I want my colleague to share how he thinks this bill would help the industry in Quebec.”
Official Hansard

Mr. Speaker, I appreciate the comments my colleague has put on the record this afternoon. I really want to amplify that Quebec, Manitoba and Ontario have very strong and healthy aerospace industries. In many ways, Quebec leads space development, and the aerospace industry in particular, and there would be, through the passage of this legislation, the opportunity to expand those critical industries. I wonder if my colleague could provide his perspective, because I know he is very opinionated on the aerospace industry in Quebec, on how that industry would benefit through this legislation.

Steeve Lavoie, Beauport—Limoilou

Liberal
“Canada needs to be able to launch its own rockets. A fifth of our economy depends on satellites, but we are the only G7 country that cannot launch them on our own. We must act now to protect our independence.”
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Official Hansard

Mr. Speaker, I thank my colleague for his excellent question. Yes, in the past, we were not quick enough to invest in certain sectors. Our decisions did not come fast enough. Now is the right time to make this kind of decision. The whole world is watching us, and Canada is the only G7 country that is not autonomous. Twenty per cent of Canada’s economy relies on satellites, yet we have no autonomous launch capabilities. We have been talking a lot about sovereignty over the past year. People see what is going on with the global uncertainty. This is highly relevant to the government’s actions. There are short-, medium- and long-term actions.

Kevin Lamoureux, Parliamentary Secretary to the Leader of the Government in the House of Commons

Liberal

Linked statement

“We want to launch our first spacecraft from Canada by 2028, and we need this law to do it. Will the member explain how this bill helps Canada's future and creates good jobs?”
Official Hansard

Mr. Speaker, the government and the Prime Minister have established a fairly ambitious goal. Hopefully, sometime in 2028, we will actually be able to launch something from Canada, which would be a first. Part of that is ensuring that we get this legislation in place. I wonder if my colleague could provide his thoughts on why this legislation would do a lot of what we have been talking about: securing Canada’s future and creating good-quality jobs into the future.

Steeve Lavoie, Beauport—Limoilou

Liberal
“We need to move quickly and pass this bill. The space sector will create future jobs in engineering and innovation for Canada.”
Official Hansard

Mr. Speaker, this sector will create jobs for the future. We are talking about innovation and engineering. It is a developing sector with incredible potential that puts Canada front and centre. These are decisions that have to be made today. In practical terms, investments are already being made, but right now, we need to speed up the process and take the right steps.

Mike Kelloway, Parliamentary Secretary to the Minister of Transport and Internal Trade

Liberal
“I want the House to pass this bill to set up rules for launching rockets in Canada. Canada is the only G7 country that cannot launch its own rockets, and we should not have to rely on other nations. This bill will bring jobs and new business to Nova Scotia, where a commercial spaceport is already being built.”
Official Hansard

Mr. Speaker, I rise today with pride and with purpose to speak in support of Bill C-28, the Canadian space launch act. As a proud Nova Scotian, the member of Parliament for Sydney—Glace Bay and someone who has previously had the honour of representing Cape Breton—Canso, I know this project. I know the people behind it. I know the communities that have believed in it and I know exactly what is at stake, because this is not just a bill, but a decision. It is a decision about whether Canada will be a country that launches or a country that watches from the sidelines. Bill C-28 is about whether Canada becomes a sovereign, space-faring nation, one that launches from its own soil, builds its own capabilities and competes in one of the fastest-growing sectors on earth or whether we continue to rely on others. Right now, despite all of our talent, all of our innovation and all of our history, Canada is the only G7 country without domestic launch capability. This is not a position we should accept, and it is not a position Nova Scotia is willing to accept. I was proud to stand alongside the Minister of Justice and the CEO of the Maritime Launch Services when we announced the Canada-U.S. Technological Safeguards Agreement. That agreement cleared the path, and it made commercial space launch in Canada possible, but possibility is not enough. Bill C-28 would turn the possibility into reality. It would provide a legal and regulatory framework, and the certainty that allows companies to invest, to build and to launch from Canadian soil. Without it, the opportunity does not disappear, but it simply goes somewhere else. I hope colleagues across the aisle will support the bill, but if they do not, they should be prepared to explain some things to Nova Scotians. Why is it that the federal Conservatives keep opposing the very projects that the Progressive Conservative governments in Nova Scotia are proudly championing? Let us be very clear about the facts. A Progressive Conservative premier supports the project. A Progressive Conservative finance minister supports the project. A Progressive Conservative minister of economics supports this project. They have said so publicly. They have invested in it, and they are building it. However, federal Conservatives stand in this House and question it. This just does not add up. Premier Tim Houston has been clear. Nova Scotia is proud to be home to Canada’s first commercial spaceport, and its government did not just say that; it backed that up with real investment, real policy and real leadership. It understands exactly what this project represents. It is jobs, growth, opportunity and a future. This is not an isolated case. Nova Scotians have seen this pattern before. Here are three examples. Offshore wind, developed in partnership with the same Progressive Conservative government, was opposed by the federal Conservatives. It was mentioned today. The Mersey River Wind project, a $206-million investment powering 50,000 homes, was opposed by the federal Conservatives. Now, a spaceport supported by a Progressive Conservative premier is questioned once again by the federal Conservatives. Nova Scotians to whom I talk are asking a very simple question: Why does the federal Conservative Party keep saying “no” to Nova Scotia? Here is the reality. This is not theoretical. It is not hypothetical. This is happening right now in Nova Scotia. On November 20, 2025, a rocket launched from Nova Scotia, from Canadian soil, for the first time in 27 years. A rocket has already launched, so let us be honest about what this debate is. This is not about whether the industry could exist; it already does. The question is whether Canada will lead it or lose it. This is about investment in Canadian industry, workers and communities that have been told too many times to wait their turn. It is about creating good-paying jobs during construction and in the long term, but it is much more than that. It is about people. It is about whether young Canadians can build careers in aerospace, advanced manufacturing, robotics and innovation without having to leave Nova Scotia to do it. For far too long, the story in Atlantic Canada has been about out-migration, young people leaving for opportunities somewhere else. Bill C-28 is about changing that story. It is about building something new, something that has never existed in this country before. That requires vision, leadership and investment before the finish line, because that is how industries are built. We do not wait until an industry is complete to support it; we support it so it can exist. It is not a flaw in the policy, but that is the policy. Canada has a proud history in space. We built the Canadarm. We sent astronauts into orbit. We are part of lunar missions. Jeremy Hansen is part of the Artemis program to return to the moon. We have the talent. We have the innovation. We have the credibility. When it comes to launching from our own country, we rely on others right now, on foreign infrastructure and on foreign timelines. Strong partners matter, but so does standing on our own two feet. A country like Canada should not have to ask for permission to launch its satellites. That gap, quite frankly, needs to be closed, and Nova Scotia is where we close it. Nova Scotia is uniquely positioned for this with its geography, its coastal location and its Atlantic launch trajectory. These are not theoretical advantages. These are real competitive advantages in the global space economy. This is why Maritime Launch Services chose Canso. This is why international partners from Europe to Asia are already lining up for Nova Scotia. This is why this is not just a regional project, but a national asset rooted in my province of Nova Scotia, serving all of Canada. The project also represents partnership with the municipalities involved, in particular Guysborough County, indigenous communities engaged in this economic opportunity, workers, tradespeople, engineers and innovators across this country. This is what building a nation looks like. It is ambitious, forward-looking and grounded in real communities in Nova Scotia. Again, I ask what the alternative is. Is it to step back, to hesitate or to let other countries take the lead? This is what is at stake without Bill C-28: Investments, jobs and opportunities go elsewhere, and Canada falls behind. Nova Scotia is not asking for permission to build the future. We are already building it. A rocket has already launched. The infrastructure is being built. The partnerships are in place and the momentum is real. The only question is whether the House will match that ambition. The federal Conservatives can continue to say no to Nova Scotia, but our government and in fact the Progressive Conservative provincial government in Nova Scotia are saying yes to jobs, innovation, economic growth, Canadian sovereignty and a country that builds. Bill C-28 would make Canada a space-faring nation. It would strengthen our sovereignty. It would create real opportunity for Canadians and send a clear message to Canadians and to the world: Canada is not standing on the sidelines anymore. We are stepping forward, we are building and we are launching.

Dan Albas, Okanagan Lake West—South Kelowna

Conservative
“This bill does not protect our national security. It leaves out security reviews, and the Canadian Space Agency does not have the job or power to keep us safe. Other countries protect themselves from these risks, but this bill does nothing to stop dangerous technology from falling into the wrong hands.”
Official Hansard

Mr. Speaker, the parliamentary secretary may or may not be aware, but the Minister of Transport, when I questioned him today about the glaring gaps in national security screening, said not to worry because we have the Canadian Space Agency. Well, the Canadian Space Agency has no national security mandate. In fact, the bill itself, Bill C-28, is completely silent on CSIS or any other national security review. If the Canadian Space Agency has expertise, maybe on a technological basis, but no authority when it comes to national security, who is in charge of making sure that our system is not going to be compromised? We can look at the United Kingdom and the United States: They have clear national security to make sure there are not dual-use technologies that can be applied against their people. There is nothing in this bill on that.

Mike Kelloway, Parliamentary Secretary to the Minister of Transport and Internal Trade

Liberal
“We are creating rules for space launches that follow international standards and keep us safe. I want the transport committee to study this bill and help improve it.”
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Official Hansard

Mr. Speaker, I thank the member and I do enjoy our time together on the transport committee. Let me look at this from a certain perspective. We are here today to talk about a legislative framework for processes that follow international standards and that keep security first and foremost in mind. Right now, we are putting that legislative framework to session, but we have a very talented transportation committee. I hope at some point we get a chance to study this project and offer solutions and opportunities, ones that I know that we will look to take seriously.

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

Bloc Québécois
“This bill helps Canada launch satellites and grow its space industry. The member talked a lot about Nova Scotia, but he ignored Quebec. Over 40,000 people in Quebec work in aerospace. I want to know if Quebec will have a place in this plan.”
Official Hansard

Mr. Speaker, I note that the member opposite is an MP for Nova Scotia and that he is also the Parliamentary Secretary to the Minister of Transport for the Liberal government. I am stating that information because the bill we are currently debating, Bill C-28, addresses the need for Canada to develop its satellite launch and aerospace capabilities, among other things. I think this is a laudable objective, but in his speech, the MP spoke almost exclusively about how important this is for Canada and for Nova Scotia. He completely ignored the fact that more than 40,000 people work in the aerospace sector in Quebec and that Quebec is truly a leader in this cutting-edge technology. I would like to know whether I should be concerned about my colleague’s speech, and I would like to know if there is a place for Quebec in all of this.

Mike Kelloway, Parliamentary Secretary to the Minister of Transport and Internal Trade

Liberal
“This bill will help every province, including Quebec. Quebec has the skills and knowledge in space and aviation to do well under these new rules.”
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Official Hansard

Mr. Speaker, the member makes some solid points. I used Nova Scotia as an example, but I could have easily used Quebec as an example, in terms of the innovation and the collective intelligence when it comes to space, aviation and things of that nature. I think this regulatory framework touches all provinces, all opportunities, the skills and abilities, and the political and collective will of the Quebec people. I think that good things will be happening in Quebec as well as a result of this regulatory framework.

Darren Fisher, Dartmouth—Cole Harbour

Liberal
“This project could let young people stay and work in Nova Scotia instead of moving away. Why was this location chosen, and what makes it good for the project?”
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Official Hansard

Mr. Speaker, I want to thank my hon. colleague, who is also from Nova Scotia, for his passion for our province. I share that passion. I have often used the example that many young people had to leave Nova Scotia and go to some of the bigger cities in Canada to find their way, and now they would no longer have to. Could the hon. parliamentary secretary describe the genesis of this project? Why this location? What is the strategic advantage of this project in this location in Nova Scotia?

Mike Kelloway, Parliamentary Secretary to the Minister of Transport and Internal Trade

Liberal
“Canso is a great place to launch satellites into space. Local towns, First Nations, and businesses support doing this there. The Conservatives keep saying it cannot be done.”
Official Hansard

Mr. Speaker, Canso meets all the standards by which it is more productive and easier to bring product to space via a variety of means, in particular, satellites and whatnot. I appreciate the member bringing it up. Many folks in the municipal district of Guysborough and adjacent communities, municipalities, first nations and the private sector support this for all the advantages that Canso brings. Time and time again, we hear from the Conservatives that it is not possible, as well as more negatives.

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