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There is a strong federal interest in this because of the major importance of the UMRS as an interstate , international flyway for migratory birds ; its importance for federally endangered species ; the interstate nature of fish and wildlife management in the system ; and the large acreage of public lands ( 425,000 acres ) including nine national wildlife refuges with 285,000 acres . The result of this effort has been to show the logistical feasibility of initiating a space manufacturing enterprise within the constraints of the Space Shuttle , a Shuttle-derived heavy lift vehicle , and the MDRE during the period 1985 through 1990 , with advanced launch vehicles brought into operational use by 1991 ; to detail personnel and hardware requirements during this initial period ; to determine the habitat requirements for each space facility in the system ; to highlight certain key problems for intensive research and development which would facilitate or improve the system ; and to provide cost estimates for research and development , for materiel and services procurement , for crew selection , training , and employment , for administration and other overhead costs , and for transportation . They include estimates of uncertainty and to cover off on extreme events ; the tradeoffs , costs and benefits , transparency , openness and intellectual property involved in models ; fairness , which was a key issue , as was data ; the need to involve industry and engage stakeholders in modelling ; the whole concept of integrated modelling , of system-wide understanding that includes not only the environmental and biophysical integration but people and the economy ; an emphasis on decision support , not decision making , because people 's decision making is influenced by many external pressures , not just the information on the state of the system ; and also a full cost accounting of benefits and costs . Let 's just take an extreme example of an extremely liberal administration , appointing an extremely liberal Commissioner and an extremely conservative President coming in four years from now who would , say , wanted to radically privatize the system ; or it could go just the other way around . The SEA-21 initiative we envision will complement the efforts I have talked about in the other modes , especially their emphasis on improving intermodal connections ; on facilitating increased investment by leveraging every federal , local and private sector dollar invested in the system ; and on providing the capacity and flexibility we need to move much higher volumes of both passengers and freight . An eminent physiologist accounts for the presence of rudimentary organs , by supposing that they serve to excrete matter in excess , or matter injurious to the system ; but can we suppose that the minute papilla , which often represents the pistil in male flowers , and which is formed of mere cellular tissue , can thus act ? Changes are proposed by many participants in the software development process for such reasons as meeting new product requirements ; for improvements to the architecture and design of the system ; or to correct defects found during testing , review , or use of the system .