欧盟无人机战略

EUROPEANCOMMISSIONBrussels,29.11.2022COM(2022)652finalCOMMUNICATIONFROMTHECOMMISSIONTOTHE

EUROPEANPARLIAMENT,THECOUNCIL,THEEUROPEANECONOMIC

ANDSOCIALCOMMITTEEANDTHECOMMITTEEOF

THEREGIONS‘ADroneStrategy2.0foraSmartandSustainableUnmannedAircraftEco-System

inEurope’{SWD(2022)366final}ENENCOMMUNICATIONFROMTHECOMMISSIONTOTHE

EUROPEANPARLIAMENT,THECOUNCIL,THEEUROPEANECONOMIC

ANDSOCIALCOMMITTEEANDTHECOMMITTEEOF

THE

REGIONS‘ADroneStrategy2.0foraSmartandSustainableUnmannedAircraftEco-System

inEurope’Context1.

The

European

Union

has

the

ambition

to

lead

the

transition

to

a

healthy

planet

and

a

newdigital

world.

Indeed,

the

objective

of

the

European

Green

Deal1

is

to

achieve

climateneutrality

by

20502.

The

digitalisation

of

the

economy

should

strengthen

the

Union'scompetitiveness

and

empower

people

with

a

new

generation

of

technologies,

leaving

noone

behind,

in

line

with

the

European

Pillar

of

Social

Rights.

Based

on

two

strategiccommunications,

namely,

shaping

Europe’s

digital

future3

and

Europe’s

digital

decade4,

theCommission

set

out

the

specific

actions

it

will

undertake

to

aid

the

creation

of

safe

andsecuredigitalservicesandmarkets.2.

The

transport

sector,

including

the

emerging

drone5

sector

and

manned

eVTOLs6,

shouldhelpinachieving

thistwingreenand

digitaltransition.TheCommission’sSustainableandSmart

Mobility

Strategy7

(SSMS)

adopted

in

December

2020

provides

an

ambitiousroadmap

aimed

at

putting

the

European

transport

firmly

on

track

for

a

sustainable,

smartand

resilient

future.

The

Zero

Pollution

Action

Plan8

is

linked

within

the

SSMS

with

targetsand

actions

on

how

clean

the

new

EU

transport

policies

should

be,

for

instance

on

noise

andairpollutants.3.

Among

the

actions

set

out

in

the

SSMS,

the

Commission

announced

the

preparation

of

‘ADrone

Strategy

2.0forasmartand

sustainable

unmanned

aircraft

eco-system

in

Europe’

tobe

adopted

by

the

end

of

2022,

setting

out

possible

ways

to

guide

the

further

developmentofthistechnology

anditsregulatory

andcommercialenvironment.

ThisCommunicationisareflectionofthatannouncement.4.

The

Commission

has

worked

intensively

since

2014

on

building

the

foundations

of

acomprehensive

EU

policy

in

the

field

of

drones.

A

first

Communication

setting

out

thefoundations

of

this

policy

was

adopted

in

20149,

followed

by

several

major

steps,

such

as123https://ec.europa.eu/info/strategy/priorities-2019-2024/european-green-deal_enCOM(2019)

640finalhttps://ec.europa.eu/info/strategy/priorities-2019-2024/europe-fit-digital-age/shaping-europe-digital-future_en456https://ec.europa.eu/info/strategy/priorities-2019-2024/europe-fit-digital-age/europes-digital-decade-digital-targets-2030_enTheterm“drone”isthelayman

term

for

“Unmanned

AircraftSystems”

whichmeansanunmannedaircraftandtheequipmenttocontrolitremotely.‘electric

Vertical

Take

Off

and

Landing’

aircraft

(eVTOL)

are

used

for

the

transport

of

people

and

cargoinitially

with

a

pilot

on

board

controlling

the

flight,

in

the

future,

they

will

have

the

ability

to

flyautonomouslyusingthelatest

technologieswhenregulationsallow.COM(2020)789final.Communicationon

an

EUActionPlan:

'Towards

ZeroPollutionforAir,WaterandSoil'.COM(2014)

207

final,

“A

new

era

for

aviation

-

Opening

the

aviation

market

to

the

civil

use

of

remotelypilotedaircraftsystems

inasafeandsustainable

manner”7891the

‘Aviation

strategy

for

Europe’

of

201510

and

several

landmark

Declarations

endorsed

atHigh

LeveldroneconferencesheldinRiga,Warsaw,Helsinki,andAmsterdam11.5.

The

Union

has

played

a

key

role

in

developing

a

comprehensive

drone

regulatoryframework

for

its

27

Member

States,

which

is

successfully

contributing

to

the

developmentof

this

promising

sector.

Under

the

new

Basic

Regulation12

adopted

in

2018,

all

drones,irrespective

of

their

weight

are

subject

to

the

Union

harmonised

safety

rules.

Based

on

thosesafety

essential

requirements

and

following

the

risk-based

operation-centric

approachembedded

in

the

Basic

Regulation,

the

Commission

adopted

in

2019

a

series

of

rulesregulating

operations

with

drones

(i.e.

Commission

Implementing

Regulation

(EU)2019/947

on

the

rules

and

procedures

for

the

operation

of

unmanned

aircraft13

andCommission

Delegated

Regulation

(EU)

2019/945

on

operators

of

unmanned

aircraftsystems14).

In

addition,

to

ensure

the

safety

of

drone

operations

in

airspace,

the

Commissionadopted

in

2020

three

Implementing

Regulations

on

U-space15,

which

provide

the

air

trafficmanagement

system

for

drones.

Those

rules

are

the

corner

stone

of

the

new

Union

droneregulatory

framework,

facilitating

the

development

of

the

drone

industry

and

the

droneservicesmarket.6.

DevelopingUnion

rules

fordrones

hasbeen

all

themoreimportant

as

therewerevery

fewregulatory

national

frameworks

in

place

in

the

EU

Member

States,

or

at

the

global

level.Unlike

in

other

sectors,

where

the

EU

regulatory

harmonisation

process

started

after

theadoption

at

national

level

of

sometimes

diverging

regulation,

here,

it

has

been

possible

tostart

from

the

outset

with

a

truly

common

set

of

rules.

This

continues

to

present

a

uniqueopportunity

nottobemissed.7.

Today,

the

actions

announced

in

the

2015

Aviation

Strategy

have

been

largely

completedand

it

is

nowtimefor

an

updatedUnion

policy

on

drones,

buildingon

the

achievements

todate

and

takinginto

consideration

the

new

policypriorities

and

new

challenges,

as

well

asrecenttechnological,regulatory

andcommercial

developments.8.

On

the

militaryside,

drones

have

been

used

in

the

defence

sector

for

the

last

30

years,

butthe

European

military

drone

capabilities

remain

less

mature

than

in

other

regions

of

the101112COM(2015)598final,“An

AviationStrategyforEurope”HighLevelDrone

ConferencesinRiga(2015),Warsaw

(2016),Helsinki(2017),Amsterdam

(2018,

2019)Regulation

(EU)2018/1139

of

theEuropean

Parliament

andof

theCouncilof

4July

2018

on

common

rulesin

the

field

of

civil

aviation

and

establishing

a

European

Union

Aviation

Safety

Agency,

and

amendingRegulations

(EC)

No

2111/2005,

(EC)

No

1008/2008,

(EU)

No

996/2010,

(EU)

No

376/2014

and

Directives2014/30/EU

and

2014/53/EU

of

the

European

Parliament

and

of

the

Council,

and

repealing

Regulations(EC)

No

552/2004

and

(EC)

No

216/2008

of

the

European

Parliament

and

of

the

Council

and

CouncilRegulation(EEC)No3922/91,JOL

212

du

22.8.2018,p.

1.131415Commission

Implementing

Regulation

(EU)

2019/947

of

24

May2019

on

the

rules

and

procedures

for

theoperationof

unmannedaircraft,OL

152,11.6.2019,p.1.CommissionDelegatedRegulation(EU)2019/945

of

12March2019

on

unmannedaircraftsystemsandonthird-countryoperatorsof

unmannedaircraftsystems,OJ

L152,

11.6.2019,p.1.Commission

Implementing

Regulation

(EU)

2021/664

of

22

April

2021

on

a

regulatory

framework

for

theU-space,

OJL

139,

23.4.2021,

p.

161;

Commission

Implementing

Regulation

(EU)

2021/665

of

22

April2021

amending

Implementing

Regulation

(EU)

2017/373

as

regards

requirements

for

providers

of

air

trafficmanagement/air

navigation

services

and

other

air

traffic

management

network

functions

in

the

U-spaceairspace

designated

in

controlled

airspace,

OJ

L

139,

23.4.2021,

p.

184;

Commission

ImplementingRegulation

(EU)

2021/666

of

22

April

2021

amending

Regulation

(EU)

No

923/2012

as

regardsrequirementsfor

manned

aviationoperatingin

U-spaceairspace,OJ

L

139,

23.4.2021,p.187.2world,

whilst

the

potential

contribution

of

military

drones

to

future

European

Strategicautonomy

is

widely

recognised.

The

European

Commission16

has

shown

its

willingnesstogetherwiththeHighRepresentative17

toreinforcetheEU’sroleasageopoliticalactor,aposition

recognised

by

the

European

Council18

in

its

endorsement

of

the

StrategicCompass19

approved

by

the

Council

on

21

March

2022,

with

a

clear

objective

to

build

astrongerandmorecapableEUinsecurity

anddefence.9.

This

Drone

Strategy20

should

therefore

contribute

not

only

to

the

objectives

set

out

in

theSSMS,

but

also

to

the

objectives

of

the

‘Action

plan

on

synergies

between

civil,

defenceand

space

industries’21

adopted

in

February

2020,

and

which

includes

an

EU

DroneTechnologies

flagship

project.

That

Action

plan

identified

several

areas

of

possible

cross-fertilisationwhereby

defenceprojectsmay

benefitfrominnovativedevelopmentsofSMEsfor

civilian

drones

and

civil

aeronautics

may

benefit

from

developments

in

the

field

ofdefence.10.

In2020,

the

Commission

adopted

two

Communications,

which

both

introduced

new

policyactions

to

counter

possible

threats

that

drones

could

pose.

The

EU

Security

Union

Strategy22and

the

Counter-Terrorism

Agenda23

stated

that

the

threat

of

non-cooperative

drones

is

aserious

concern

in

Europe

that

needs

to

beaddressed.

Moreover,

the

proposed

Directive

onthe

resilience

of

critical

entities

(CER

Directive)24

will

introduce

obligations

on

MemberStates

and

critical

entities

to

conduct

risk

assessments,

and

on

critical

entities

to

taketechnical,

securityand

organisational

measures

to

ensure

their

resilience

against

identifiedrisks.Thissecurity

dimensionthereforealsoneedstobeaddressedinthis

DroneStrategy.11.

A

Staff

Working

Document

setting

out

the

assessment

of

the

challenges

that

the

drone

sectorfaces,as

well

as

the

analysis

and

data

underpinning

the

new

Drone

Strategy

2.0.,

which

hasbeen

conducted

by

the

Commission

with

the

support

of

an

external

consultant,

accompaniesthisCommunication25.Unleashingthegrowthpotentialofdrones12.

Drones

are

already

used

as

daily

tools

in

ever

broadening

array

of

data

intensive-demandingeconomic

sectors,

such

as

agriculture,

construction,

surveillance,

film-making,

healthcare,161718COM(2022)60,Communicationon

CommissioncontributiontoEuropeandefence,15.2.2022.JOIN(2022)24,

Communicationon

theDefenceInvestmentGapsAnalysisandWay

Forward,18.5.2022EUCO

1/22,

European

Council

conclusions

24-25

March

2022,

29.3.2022

-

EUCO

21/22

European

Councilconclusions30-31May

2022,31.5.20221920A

Strategic

Compass

for

Security

and

Defence

“For

a

EuropeanUnionthat

protectsitscitizens,

valuesandinterestsandcontributestointernationalpeaceandsecurity”,

21.03.2022.While

recognisingthe

differencesand

commonalitiesbetweenthe

different

use

cases

and

the

need

to

avoidtakinga

one-size

fitsall

approachto

all

issues,

for

further

reference

inthe

followingtext,

the

term‘drones’will

be

used

to

cover

all

vehicles

involved

in

Innovative

Aerial

Services,

including

manned

eVTOL(electrically

powered

vehicles

capable

of

vertical

take-off

and

landing),

as

well

as

Unmanned

AircraftSystemsusedinthedefencesector.21Communication

from

the

Commission

to

the

European

Parliament,

the

Council,

the

European

Economic

andSocial

Committee

and

the

Committee

ofthe

Regions

“ActionPlanonsynergiesbetween

civil,

defence

andspaceindustries”,COM(2021)

70final,22.02.2021.222324COM(2020)605

finalof

24July

2020COM(2020)

795finalof

9December2020COM(2020)

829

final

The

European

Parliament

and

the

Council

reached

political

agreement

on

the

proposedDirectiveon

28June2022(Security

Union

(europa.eu)25Factfindingstudy

preparinga“DroneStrategy

2.0”,Finalreport,Ecorys,

20223medicalemergency,

energy,environment,public

safety

and

security.Drones

couldbe

usedin

the

future

also,

for

example,

as

platforms

for

communication

hubs

or

for

weather

andpollution

monitoring,

and

for

maintenanceof

renewable

energy

installations,

especially

foroffshorewind.13.

In

the

transport

sector,

the

use

of

drones

for

deliveries

is

already

being

tested

in

manycountries.

First

pilot

trials

in

passenger

transport

are

expected

to

take

placeinthe

EuropeanUnion

within

the

coming

years.

It

is

important

that

the

Union

safeguards

its

open

strategicautonomy

inthisarea.14.

The

drone

eco-system

also

includes

the

defence/military

dimension

for

the

purpose

ofachieving

technological

synergies

between

civil,

security

and

defence

sectors.

Reapingsynergies

between

the

civil

and

the

military

use

of

drones,

including

counter-dronetechnologies,

is

an

important

success

factor

forthecompetitiveness

ofthe

European

droneeco-systemaswellasthe

Union’sdefencecapabilities.15.

Onthecivil

side,

thedroneservices

market

includes

threesegments

which

areinterlinked:the

new

Innovative

Aerial

Services

(IAS)26,

including

two

segments:

”Aerial

Operations“(surveillance,

inspection,

mapping,

imaging,

…),

and

“Innovative

Air

Mobility“

(IAM)27,covering

international,

regional

and

Urban

Air

Mobility

(UAM)

and

thirdly,

”U-space“.Althoughfirst

IAM

operationsareexpectedtobeconductedwithmanned

eVTOL

aircraft,such

operations

will

likely

be

in

the

future

performed

on

similar

platforms

but

remotelypilotedandthenfully

autonomous.16.

With

the

right

framework

in

place,

the

drone

services

market

in

Europe

could

by

2030

reacha

value

of

€14.5

billion,

with

a

compoundannualgrowth

rate

of

12.3%,

and

create

145,000jobs

in

the

EU28.

The

different

segments

of

this

market

are

constantly

growing

in

terms

ofcompaniesandvolumeof

operations.17.

Against

this

background,

theexistingstrategy

from

2015

has

been

overtaken

by

thesenewdevelopments

and

a

new

strategy

is

needed

at

EU

level

to

provide

a

forward-looking

visionforthefutureholisticdevelopmentofthesector.2627Due

to

the

lack

of

a

definition

and

in

line

with

the

regulatory

operation

centric

approach,

EASA

hasdeveloped

the

notionofInnovative

Aerial

Services

(IAS)

which

correspondsto

the

set

ofoperationsand/orservices

enabled

by

the

new

airborne

technologies

–

the

operations

and/or

services

include

both

thetransportation

of

passengers

and/or

cargo

and

aerial

operations

(e.g.

surveillance,

inspections,

mapping,telecommunicationnetworking).The

concept

of

Innovative

Air

Mobility

(‘IAM’)

is

to

accommodate

operations

with

novel

aircraft

designs(that

do

not

automatically

fall

under

one

of

the

known

categories,

but

which

have

vertical

take-off

andlanding

(VTOL)

capabilities

for

take-off

and

landing,

specific

(distributed)

propulsion

features,

can

beoperated

in

unmanned

configuration,

etc.),

that

are

conceived

to

offer

a

new

air

mobility

of

people

and

cargo,in

particular

in

congested

(urban)

areas,

based

on

an

integrated

air

and

ground-based

infrastructure.

IAMdescribes

a

diverse

array

of

aircraft

types

(such

as

manned

and

unmanned),

whose

designs

are

enabled

byongoing

innovations

particularly

in

the

areas

of

hybrid

and

electrification

of

propulsion

systems,

energystorage,

lightweight

materials,

digitalisation

and

automation.

These

innovations

have

made

possible

an

arrayof

novel

designs

spanning

multi-rotor,

tilt

wing,

tilt-rotor,

poweredwing,

offering

short

take-off

and

landing(STOL)throughtoVTOL

capabilities.28Factfindingstudy

preparinga“DroneStrategy

2.0”,Finalreport,Ecorys,

2022.4TheCommission’svision18.

Setting

out

a

clear

vision

for

the

development

of

the

drone

sector

will

provide

the

foundationfor

the

next

steps

at

EU

level

to

develop

a

thriving

viable

drone

eco-system

in

the

Union.This

vision

for

2030,

which

has

been

developed

with

the

support

of

the

Drone

Leaders’Group29,canbeformulatedasfollows:-By

2030

drones

and

their

required

eco-system

will

have

become

an

accepted

part

ofthelifeofEUcitizens.-Drones

will

be

used

to

provide

numerous

services

to

the

benefit

of

diversifiedcivilian

and

defence

end-users,

including

EU

citizens,

organisations,

Member

Statesand

industry.

Drones’

aerial

operations

will

include

emergency

services,

inspectionsandsurveillanceusingdronestogatherdata,aswellasforthedelivery

ofgoods.---IAM

services

will

start

providing

regular

transport

services

of

passengers,

initiallyusingaircraftwithapilotonboardbutwith

theultimateaimtofully

automatetheiroperations.

Drone

services

will

effectively

integrate

or

complement

existingtransportation

systemsand

contribute

to

the

decarbonisation

of

the

transport

systemby

providing

an

alternative

to

carbon

intensive

modes

of

transport,

while

minimisingtheir

impact

on

the

environment

throughout

their

life

cycle.

UAM

will

become

apart

of

the

future

urban

multimodal

intelligent

mobility

ecosystem

and

the

groundand

air

infrastructures

enabling

these

transport

services

will

be

widely

deployed

andintegrated.An

increased

spectrum

of

distinct

types

of

drones

and

use

cases

will

coexist.

TheUnion

legislator,

the

Commission,

the

European

Union

Aviation

Safety

Agency(EASA)and

theMember

States

all

havean

institutional

responsibility

to

safeguardthe

safety,

security

and

efficiency

of

their

operations.

They

ensure

that

all

droneservices

are

provided

in

a

manner

that

ensures

safety,

security,

sustainability,privacy,

and

affordability,

in

line

with

citizens’

expectations

and

addressing

theirconcerns.

Drones

used

for

the

transport

of

people

and

goods

will

be

particularlyoriented

to

the

achievement

of

publicly

accessible

services,

thus

creating

benefitsforcitizensandlocalcommunities.The

current

U-space

regulatory

framework

will

have

been

completelyrolled

out

inthe

EU.

Additional

advanced

U-space

services

will

support

large

scale

highlyautomated

and

digitally

connected

affordable,

safe,

secure,

and

environmentallyfriendly

unmanned

aircraft

operations

in

several

Member

States.

The

integrationbetweenmannedandunmannedtrafficinthesameairspacewill

beinitiated,insideandoutsideU-spaceairspace.--The

EU

drone

industry

will

have

become

viable

and

accessible

to

EU

citizens

andbusinesses

with

an

active

participation

of

actors

of

all

sizes,

including

a

variety

ofdiversified

SME’s,

fostering

collaboration

between

all

actors,

and

broadening

thespectrum

significantly

beyond

the

limited

number

of

global

multinationalstakeholders.Civil-defence

industry

synergies

will

be

systematically

identified

and

exploited.They

will

benefit

both

sectors.

They

will

improvethecompetitiveness

ofEuropean29Drone

Leaders’

Group

Report:

https://transport.ec.europa.eu/news/drone-leaders-group-supports-preparation-drone-strategy-20-2022-05-02_en5industry

and

strengthen

Europe's

strategic

autonomy,

by

allowing

Member

States

torely

on

competitivedronetechnology

ofEuropeanorigin.-The

drone

eco-system

will

provide

jobs,

promote

and

protect

Europeantechnological

know-how

and

allow

for

growth

opportunities

for

the

EU

economy

asa

whole,

enabling

European

companies,

including

new

SMEs

to

grow

and

flourishasgloballeaders.Makingthevisionareality19.

This

strategy

covers

ten

areas

which

should

unfold

the

development

of

the

drone

eco-systemand

help

to

achieve

the

above

vision.

They

were

identified

on

the

basis

of

the

input

receivedduring

wide-ranging

consultations

which

are

described

in

the

accompanying

Staff

WorkingDocument.

Those

areas

are

grouped

under

two

main

objectives.

The

first

one

is

to

build

theUniondroneservicemarket,andthesecondone

istostrengthentheUnion’scivil,securityand

defenceindustry

capabilitiesand

synergies.

Each

area

aims

to

reinforcetheefficiencyof

the

different

segments

of

the

overall

drone

value

chain,

ranging

from

drone

operators,dronemanufacturers,thedefencesector,counterdronestotheU-space.A.Buildingthe

Uniondroneservicesmarket1.Improvingairspacecapabilities(U-spacedevelopmentandintegrationwithAirTrafficManagement)20.

One

of

the

major

objectives

of

the

existing

Air

Traffic

Management

(ATM)

andStandardised

European

Rules

of

the

Air

(SERA)30

is

to

avoid

collisions

between

aircraft.TheSERA

arebuilt

on

theprincipleof

“seeand

avoid”which

is

used

by

thepilot

to

avoidmid-air

collision.

Considering

that,

in

drone

operations,

the

intention

is

for

the

pilot

not

tobeon-board,astrict

adherencetothisprinciplecannotbeapplied

and

hencecollisionrisksneedtobemitigatedwithadequate

alternativemeans.21.

The

integration

of

drones

in

the

airspace

therefore

calls

either

for

the

revision

of

the

existingaviation

safety

rules

to

take

account

of

those

differences,

or

for

the

development

of

entirelynew

rules

designed

specifically

for

those

new

entrants.

The

Union’s

strategy

so

far

has

beento

progress

on

both

fronts.

In

the

first

stage,

the

airspace

for

drones

is

separated

from

theairspace

used

for

manned

operations

to

then

achieve

in

a

second

stage

a

full

integration

ofboth,

allowing

all

airspace

users

(manned

and

unmanned,

as

well

as

IAM

and

regular

airtraffic,

but

also

operators

of

State,

including

military,

manned

and

unmanned

aircraft)

tosafely

andfreely

operatewithinthesame

airspaceortransitbetween

airspaces.Flagshipaction1:

The

Commissionintends

to

adoptamendments

to

the

StandardisedEuropean

Rules

of

the

Air

and

the

Air

Traffic

Management/Air

Navigation

ServicesRegulationtosafelyintegratedroneandpilotedeVTOL

operations.22.

In

terms

of

adapting

airspace

capabilities,

in

2016

the

Commission

launched

an

initiativeaimed

at

ensuring

the

safe

and

secure

integration

of

drones

into

the

airspace:

the

so-calledU-Space,

a

bespoke,

fully

digital,

and

automated

traffic

management

system

that

has

beendesigned

to

enable

the

efficient

and

affordable

scaling

up

of

drone

services.

The

U-Space30CommissionImplementing

Regulation(EU)

No

923/2012

of

26

September

2012layingdownthe

commonrules

of

the

air

and

operational

provisions

regarding

services

and

procedures

in

airnavigation

and

amendingImplementing

Regulation

(EU)

No

1035/2011

and

Regulations

(EC)

No

1265/2007,

(EC)

No

1794/2006,(EC)No730/2006,(EC)No1033/2006and(EU)No255/2010,OJ

L

281,

13.10.2012,p.

16should

be

as

cost-effective

as

possible,

while

providing

equitable

access

to

airspace

for

adiversity

of

drone

operators

from

across

the

EU

and

enabling

military

and

State

mannedandunmannedaircraftoperationsinasafeand

efficientmanner.23.

U-space

development

was

subsequently

initiated

in

2017

in

the

context

of

the

SingleEuropean

Sky

ATM

Rese