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This story was originally published by ProPublica.

When SpaceX CEO Elon Musk chose a remote Texas outpost on the Gulf Coast to develop his company’s ambitious Starship, he put the 400-foot rocket on a collision course with the commercial airline industry.

Each time SpaceX did a test run of Starship and its booster, dubbed Super Heavy, the megarocket’s flight path would take it soaring over busy Caribbean airspace before it reached the relative safety of the open Atlantic Ocean. The company planned as many as five such launches a year as it perfected the craft, a version of which is supposed to one day land on the moon.

The FAA, which also oversees commercial space launches, predicted the impact to the national airspace would be “minor or minimal,” akin to a weather event, the agency’s 2022 approval shows. No airport would need to close and no airplane would be denied access for “an extended period of time.”

But the reality has been far different. Last year, three of Starship’s five launches exploded at unexpected points on their flight paths, twice raining flaming debris over congested commercial airways and disrupting flights. And while no aircraft collided with rocket parts, pilots were forced to scramble for safety.

A ProPublica investigation, based on agency documents, interviews with pilots and passengers, air traffic control recordings and photos and videos of the events, found that by authorizing SpaceX to test its experimental rocket over busy airspace, the FAA accepted the inherent risk that the rocket might put airplane passengers in danger.

And once the rocket failed spectacularly and that risk became real, neither the FAA nor Secretary of Transportation Sean Duffy sought to revoke or suspend Starship’s license to launch, a move that is permitted when “necessary to protect the public health and safety.” Instead, the FAA allowed SpaceX to test even more prototypes over the same airspace, adding stress to the already-taxed air traffic control system each time it launched.

The first two Starship explosions last year forced the FAA to make real-time calls on where to clear airspace and for how long. Such emergency closures came with little or no warning, ProPublica found, forcing pilots to suddenly upend their flight plans and change course in heavily trafficked airspace to get out of the way of falling debris. In one case, a plane with 283 people aboard ran low on fuel, prompting its pilot to declare an emergency and cross a designated debris zone to reach an airport.

The world’s largest pilots union told the FAA in October that such events call into question whether “a suitable process” is in place to respond to unexpected rocket mishaps.

“There is high potential for debris striking an aircraft resulting in devastating loss of the aircraft, flight crew, and passengers,” wrote Steve Jangelis, a pilot and aviation safety chair.

The FAA said in response to questions that it “limits the number of aircraft exposed to the hazards, making the likelihood of a catastrophic event extremely improbable.”

Yet for the public and the press, gauging that danger has been difficult. In fact, nearly a year after last January’s explosion, it remains unclear just how close Starship’s wreckage came to airplanes. SpaceX estimated where debris fell after each incident and reported that information to the federal government. But the company didn’t respond to ProPublica’s requests for that data, and the federal agencies that have seen it, including the FAA, haven’t released it. The agency told us that it was unaware of any other publicly available data on Starship debris.

In public remarks, Musk downplayed the risk posed by Starship. To caption a video of flaming debris in January, he wrote, “Entertainment is guaranteed!” and, after the March explosion, he posted, “Rockets are hard.” The company has been more measured, saying it learns from mistakes, which “help us improve Starship’s reliability.”

For airplanes traveling at high speeds, there is little margin for error. Research shows as little as 300 grams of debris — or two-thirds of a pound — “could catastrophically destroy an aircraft,” said Aaron Boley, a professor at the University of British Columbia who has studied the danger space objects pose to airplanes. Photographs of Starship pieces that washed up on beaches show items much bigger than that, including large, intact tanks.

“It doesn’t actually take that much material to cause a major problem to an aircraft,” Boley said.

In response to growing alarm over the rocket’s repeated failures, the FAA has expanded prelaunch airspace closures and offered pilots more warning of potential trouble spots. The agency said it also required SpaceX to conduct investigations into the incidents and to “implement numerous corrective actions to enhance public safety.” An FAA spokesperson referred ProPublica’s questions about what those corrective actions were to SpaceX, which did not respond to multiple requests for comment.

Experts say the FAA’s shifting approach telegraphs a disquieting truth about air safety as private companies increasingly push to use the skies as their laboratories: Regulators are learning as they go.

During last year’s Starship launches, the FAA was under pressure to fulfill a dual mandate: to regulate and promote the commercial space industry while keeping the flying public safe, ProPublica found. In his October letter, Jangelis called the arrangement “a direct conflict of interest.”

In an interview, Kelvin Coleman, who was head of FAA’s commercial space office during the launches, said his office determined that the risk from the mishaps “was within the acceptable limits of our regulations.”

But, he said, “as more launches are starting to take place, I think we have to take a real hard look at the tools that we have in place and how do we better integrate space launch into the airspace.”

On Jan. 16, 2025, as SpaceX prepared to launch Starship 7 from Boca Chica, Texas, the government had to address the possibility the giant rocket........

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