---
type: source
title: "NASA Phase 2 CLD frozen January 28, 2026 — revised to funded SAAs, minimum 2 awards, crew-tended (not permanently crewed)"
author: "NASA JSC Procurement / SpaceNews"
url: https://spacenews.com/nasa-releases-details-on-revised-next-phase-of-commercial-space-station-development/
date: 2026-01-28
domain: space-development
secondary_domains: []
format: thread
status: processed
priority: high
tags: [NASA-CLD, Phase-2, commercial-station, governance, SAA, space-act-agreement, anchor-customer]
processed_by: astra
processed_date: 2026-03-23
enrichments_applied: ["commercial space stations are the next infrastructure bet as ISS retirement creates a void that 4 companies are racing to fill by 2030.md", "governments are transitioning from space system builders to space service buyers which structurally advantages nimble commercial providers.md"]
extraction_model: "anthropic/claude-sonnet-4.5"
---

## Content

As of January 28, 2026, NASA's Phase 2 Commercial LEO Destinations (CLD) program was placed on hold by the incoming Trump administration "to align acquisition timelines with national space policy and broader operational objectives." No replacement date was announced.

**Key program details (from the revised Phase 2 approach, originally outlined July 31, 2025):**

- **Instrument type**: Funded Space Act Agreements (SAAs), NOT fixed-price contracts
- **Total funding**: $1-1.5 billion (FY2026-2031)
- **Minimum awards**: At least 2 companies will receive awards
- **Key requirement change**: Stations must be "crew-tended" (not "permanently crewed" — a substantial reduction in operational requirements vs. Phase 1)
- **Proposal deadline**: December 1, 2025 (original)
- **Award target**: April 2026 (original — no replacement date after freeze)
- **New requirement**: Cost-realism assessments, affordability strategies, and co-investment plans

Acting Administrator Sean Duffy's July 31 policy directive preceded the freeze; the Trump administration freeze came on January 28 — one week after inauguration.

**Program status as of March 2026:** Still frozen. No AFP (Announcement for Proposal) released. Original April 2026 award window has no confirmed replacement.

Phil McAlister (NASA commercial space division director): "I do not feel like this is a safety risk at all. It is a schedule risk."

**Companies in Phase 1 (with funded SAAs):**
- Axiom Space: ~$80M Phase 1
- Blue Origin (Orbital Reef): $172M total Phase 1
- Voyager Space (Starlab): $217.5M total Phase 1

## Agent Notes
**Why this matters:** This is the central governance event for commercial LEO infrastructure in 2026. The freeze converts an anticipated $1-1.5B revenue stream into an open risk for multiple programs. Companies that built their capital plans around Phase 2 revenue face a funding gap of indefinite duration.

**What surprised me:** Two things. (1) The requirement downgrade from "permanently crewed" to "crew-tended" — NASA softened its own requirements before the freeze, which suggests the commercial stations couldn't meet the original bar. This is NASA adjusting the market to fit what the industry can deliver, rather than the industry delivering what NASA specified. (2) "Minimum of two awards" is still the stated intent — suggesting NASA is not planning to consolidate to Axiom alone.

**What I expected but didn't find:** Any specific contingency plan for programs if Phase 2 is delayed beyond 2026. Companies like Orbital Reef with weaker private capital positions face genuine viability risk if Phase 2 slips to 2027 or beyond.

**KB connections:**
- space-governance-must-be-designed-before-settlements-exist — Phase 2 freeze is the most concrete example of governance uncertainty creating industry constraint
- single-player-dependency — Phase 2 freeze tests whether the commercial station market is resilient to NASA anchor uncertainty
- Orbital Reef competitive position — furthest behind (SDR only), most dependent on Phase 2 for capital

**Extraction hints:**
1. "NASA's Phase 2 CLD freeze has converted the primary anchor customer funding mechanism into an indefinite risk for commercial station programs that lack independent capital" (confidence: likely — evidenced by the freeze itself and programs' capital structures)
2. "NASA's reduction of Phase 2 station requirements from 'permanently crewed' to 'crew-tended' demonstrates that commercial stations cannot yet meet the original operational bar, requiring the customer to soften requirements rather than the supplier meeting them" (confidence: likely)
3. "Government anchor demand is the load-bearing demand formation mechanism for commercial LEO infrastructure, as evidenced by the Phase 2 freeze causing material uncertainty across multiple programs simultaneously" (confidence: experimental — inference from the pattern, would need market response data to confirm)

**Context:** The January 28 freeze comes against the backdrop of the new administration reviewing all NASA programs. The commercial station programs had submitted proposals for Phase 2 assuming a December 2025 deadline and April 2026 awards. The freeze means they built financial models around revenue that may not arrive until 2027 at the earliest.

## Curator Notes
PRIMARY CONNECTION: space-governance-must-be-designed-before-settlements-exist (governance freeze creating industry constraint)
WHY ARCHIVED: Central governance event — the freeze is the strongest evidence this session for government anchor demand as the primary demand formation mechanism for commercial LEO
EXTRACTION HINT: The "permanently crewed → crew-tended" requirement downgrade is especially interesting: extract as a claim about NASA adjusting demand to market capability rather than market meeting NASA demand


## Key Facts
- NASA Phase 2 CLD program frozen January 28, 2026
- Phase 2 planned funding: $1-1.5 billion across FY2026-2031
- Minimum 2 awards planned for Phase 2
- Requirement changed from 'permanently crewed' to 'crew-tended' on July 31, 2025
- Original proposal deadline: December 1, 2025
- Original award target: April 2026
- Phase 1 funding: Axiom ~$80M, Blue Origin $172M, Voyager $217.5M
- Phil McAlister: 'I do not feel like this is a safety risk at all. It is a schedule risk.'
