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SpaceX calls ULA NASA launch contract “vastly” overpriced in official protest

Falcon 9 B1054 lifts off on SpaceX's first expendable Block 5 launch. (SpaceX)

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SpaceX has filed an official protest with the US Government Accountability Office (GAO) after NASA awarded competitor United Launch Alliance a launch contract for Lucy, an interplanetary probe meant to explore a belt of unique asteroids clustered around Jupiter’s orbital swath.

Announced on January 31st, SpaceX believes that NASA made a decision counter to the best interests of the agency and US taxpayers by rewarding ULA the Lucy launch contract at a cost of $148M, a price that the company deemed “vastly more [expensive]” than the bid it submitted for the competition.

With performance roughly equivalent to SpaceX’s Falcon 9 Block 5 rocket in a reusable configuration when launching from low Earth orbit (LEO) up to geostationary transfer orbit (GTO), ULA’s Atlas V 401 variant is the simplest version of the rocket family with the lowest relative performance, featuring no solid rocket boosters. According to the company’s “RocketBuilder” tool, Atlas V 401 was listed with a base price of $109M in 2017. SpaceX’s Falcon 9 is listed with a base price of $62M for a mission with booster recovery, while the rocket’s highest-value expendable launch (for a USAF GPS III satellite worth ~$530 million) was awarded at a cost of $83M, with three subsequent GPS III launch contracts later awarded for ~$97M apiece.

Relative to almost any conceivable near-term launch contract on the horizon, SpaceX’s GPS III launch contracts act as a sort of worst-case price tag for Falcon 9, where the customer requires extraordinary mission assurance and the entire rocket has to be expended during the launch. Put in another way, NASA would likely be able to get the reliability, performance, and mission assurance it wants/needs from Falcon 9 for perhaps $50M less than the cost of ULA’s proposed launch, equivalent to cutting more than a third off the price tag. Part of NASA’s Discovery Program, the Lucy spacecraft will be capped at $450M excluding launch costs, meaning that choosing SpaceX over ULA could singlehandedly cut the mission’s total cost by a minimum of 8-10%.

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“Since SpaceX has started launching missions for NASA, this is the first time the company has challenged one of the agency’s award decisions. SpaceX offered a solution with extraordinarily high confidence of mission success at a price dramatically lower than the award amount, so we believe the decision to pay vastly more to Boeing and Lockheed for the same mission was therefore not in the best interest of the agency or the American taxpayers.”  – SpaceX, February 13th, 2019

The fact remains that the Lucy mission does face a uniquely challenging launch trajectory, offering just a single launch window of roughly three weeks, after which the mission as designed effectively becomes impossible. Missing that window could thus end up costing NASA hundreds of millions of dollars in rework and delays, if not triggering the mission’s outright cancellation. NASA and ULA thus couched the launch contract award and ~50% premium in terms of what ULA argues is Atlas V’s “world-leading schedule certainty”. Excluding ULA’s other rocket, Delta IV, Atlas V does have a respectable track record of staying true to its contracted launch targets. However, SpaceX’s Falcon 9 “schedule certainty” continues to improve as the launch vehicle matures.

Admittedly, while Falcon 9 has gotten far better at reliably launching within 5-10 days of its on-pad static fire test, SpaceX has continued to struggle to launch payloads within a week or two of customer targets. Regardless, October 2021 is more than two and a half years away, giving SpaceX an inordinate amount of time and dozens upon dozens of manifested Falcon 9 launches to reach a level of operational maturity and design stability comparable to Atlas V, a rocket that has changed minimally over the course of 16+ years and 79 launches.

 

In October 2010, NASA awarded ULA a contract valued at $187M to launch its MAVEN Mars orbiter on Atlas V 401. In December 2013, ULA won a $163M contract to launch NASA’s InSight Mars lander on Atlas V 401. In January 2019, ULA was awarded a contract for NASA’s Lucy spacecraft, priced at $148.3M for a 2021 Atlas V 401 launch. Put simply, barring ULA using a dartboard and blindfold to determine launch contract pricing or aggressive reverse-inflation, SpaceX’s very existence already stokes the flames of competition, particularly when launch contracts are directly competed by their parent agencies or companies.

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Whether or not SpaceX’s protest is entirely warranted or ends up amounting to anything, it can be guaranteed that the fact that SpaceX was there to compete with ULA at all forced the company to slash anywhere from $20-40M from the price it would have otherwise gladly charged NASA. Another ~$50M saved would certainly not be the worst thing to happen to the US taxpayer, but it’s also not the end of the world.


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Eric Ralph is Teslarati's senior spaceflight reporter and has been covering the industry in some capacity for almost half a decade, largely spurred in 2016 by a trip to Mexico to watch Elon Musk reveal SpaceX's plans for Mars in person. Aside from spreading interest and excitement about spaceflight far and wide, his primary goal is to cover humanity's ongoing efforts to expand beyond Earth to the Moon, Mars, and elsewhere.

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Elon Musk

Elon Musk will give ‘every kid in America’ a SpaceX share in 2027

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Credit: Grok Imagine

Elon Musk said he is planning to give “every one of his SpaceX shares to every kid in America” in 2027, stating that “this will be the first of many.”

SpaceX went public earlier this year, and its stock price has been relatively stable since leveling off shortly after its IPO. Based on its current price, it’s a gift of just over $10 billion to children across the United States.

It appears to be closely related to President Donald Trump’s bank accounts for children, which were set up earlier this year as Trump Accounts.

Just hours earlier, Anthropic had announced the establishment of its Anthropic Public Benefit Fund, “a new wholly-owned entity dedicated entirely to public benefit.” Musk responded by stating he recommended “giving the shares directly to the public,” and that he would be doing it that way.

Just a little bit later, Musk said children across the U.S. would be getting a share from him:

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There are roughly 70 million children, meaning someone under the age of 18, in the United States, according to the Federal Interagency Forum on Child and Family Statistics. Musk’s ownership of SpaceX stock shows he has around 849 million Class A shares of SpaceX stock, according to filings with the SEC.

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Investor's Corner

SpaceX’s biggest earnings test yet lands Tuesday, and Tesla shareholders should be watching

SpaceX reports earnings Tuesday as Wall Street watches AI spending, Starlink growth and Tesla merger

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SpaceX reports third quarter results after the market closes Tuesday, with a webcast at 4:30 p.m. ET streamed on X, and Tesla follows a day later. Bloomberg consensus, cited by Pepperstone, calls for revenue of $12.89 billion, adjusted EBITDA of $6.62 billion and adjusted EPS near $0.15. That would be about 65% growth from the second quarter and SpaceX’s first profitable quarter since its IPO. Analysts expect roughly $6.4 billion from AI and $4.9 billion from Starlink, which is projected to reach 14.3 million consumer subscribers. Capital spending is forecast at $19.6 billion, leaving free cash flow near negative $11.6 billion.

The numbers matter because SpaceX has spent months trying to win over a skeptical market. It priced its record IPO at $135, spiked to $225.64, then sank near $105 in early August. Friday’s close of $146.03 sits about 28% below the June high. The Q2 report beat on revenue at $7.8 billion and put Starlink at 12 million subscribers, but $18.4 billion of capex hurt the stock. Since then SpaceX reached orbit on Starship Flight 14 with 26 Starlink V3 satellites, agreed to buy 800 MHz spectrum for about $8 billion as part of its Starlink Mobile push, and signed a fourth compute hosting deal in four months worth roughly $13 billion a year from December. Management is targeting more than 2 gigawatts of compute by year end and a $100 billion annualized revenue run rate. Evercore ISI, which raised its target to $275, said the quarter may be judged more on those targets than the reported figures

All of this sits under the Tesla merger question. Barclays analyst Dan Levy expects an all stock deal in which SpaceX buys Tesla at a premium, using reference values of $2.1 trillion and $1.5 trillion, and said an announcement would need to come by late October or early November to be voted on at Tesla’s December 6 annual meeting. Barclays estimates Musk would hold about 37% of the combined company and 56% of the votes. Musk said in July that combining companies cannot be discussed on an earnings call, but an investor question asking when SpaceX will merge with Tesla is sitting on SpaceX’s Q&A platform, and Teslarati has tracked how the Roadster demo revived the talk.

If a deal happens, Tuesday’s result would effectively set the price Tesla holders would receive. Their shares would convert into SpaceX stock, along with exposure to a company with a heavy investment on AI, while Tesla itself expects 2026 capex above $25 billion. A strong quarter and calmer spending would make that exchange easier to sell. Another round of heavy capex and a falling stock would make it harder.

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News

SpaceX’s Gwynne Shotwell just made a quiet gesture toward Tesla

SpaceX president Gwynne Shotwell quietly followed Tesla on X, and merger watchers noticed right away.

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SpaceX President and COO Gwynne Shotwell has started following Tesla’s official account on X, a small change that landed in the middle of a very loud merger conversation. Whole Mars Catalog joked about it on Sunday.

A follow is not an announcement, and neither company has said anything about a deal. What gives the moment weight is the timing. Barclays analyst Dan Levy has told clients that an agreement could come before Tesla’s annual meeting, which must be held by December 6, with SpaceX as the buyer in an all stock deal, as we reported after the Roadster unveiling. Wedbush’s Dan Ives has stuck with a 2027 timeline.

Shotwell is the executive most worth watching if the two companies do move closer. When Musk was asked at the All In Summit why Tesla and SpaceX remain separate, Shotwell sat next to him and said SpaceX personnel had already moved into xAI to fill leadership and engineering gaps. The businesses were integrating “faster than I thought,” she said, though “not fully integrated yet.” Her responsibilities have also grown since SpaceX absorbed xAI, and she now oversees operations that include Grok and the company’s AI compute buildout.

The financial links are already there. Tesla’s $2 billion xAI investment turned into a stake of less than one percent in SpaceX, the two share the Terafab chip project in Austin, and Musk exercised his 2018 Tesla options a week after SpaceX began trading, a sequence analysts flagged as giving SpaceX public shares to use in a deal. Musk holds about 20 percent of Tesla and controls 85.1 percent of SpaceX’s voting power, according to our earlier breakdown.

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The next test is close at hand. SpaceX reports its second earnings as a public company on Tuesday after the close, and Tesla follows on Wednesday. Musk told analysts in July that “we can’t talk about combining companies and that kind of thing on an earnings call,” so a direct answer is unlikely from either stage. Tesla shareholders can still submit and vote on questions through the Say portal until 4 p.m. EDT on Monday, and the merger is a recurring theme in the queue.

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