THE SECRETARY OF TRANSPORTATION 

WASHINGTON, D.C. 20590 

The Honorable John D. Rockefeller IV 

Chairman 

Committee on Commerce. Science 

and Transportation 

United States Senate 

Washington, DC 205 10 

Dear Mr. Chairman: 

November 6, 2013 

As required by Section 332(a) of the FAA Modernization and Reform Act of2012, I am pleased 

to provide you with the U.S. Department of Transportation's Unmanned Aircraft Systems (UAS) 

Comprehensive Plan. The Federal Aviation Administration's Joint Planning and Development 

Office developed this comprehensive plan under the guidance of the Next Generation Air 

Transportation System (NextGen) Senior Policy Committee, and in coordination with NextGen 

patiner representatives. The Plan outlines the safe acceleration of the integration of civil UAS 

into the National Airspace System (NAS). 

The UAS Comprehensive Plan includes UAS National Goals and Objectives that reflect the 

NextGen partner agencies' UAS mission needs. The work accomplished by the multi-agency 

teams in Fiscal Year 20 I 2 provides the foundation for embarking on the path towards safe 

integration ofUAS in the NAS. The completed work provides a common framework for 

evolving interagency coordination and planning and is a testament to the collaboration among 

representatives from the partner agencies and the UAS community. 

A similar letter has been sent to the Chairman of the House Committee on Transportation and 

Infrastructure and the Ranking Members of the Senate Committee on Commerce, Science and 

Transportation and the House Committee on Transportation and Infrastructure. 

Enclosure 
THE SECRETARY OF TRANSPORTATION 

WASHINGTON, D.C. 20590 

The Honorable John Thune 

Ranking Member 

Committee on Commerce, Science 

and Transportation 

United States Senate 

Washington, DC 20510 

Dear Senator Thune: 

November 6, 2013 

As required by Section 332(a) of the FAA Modernization and Reform Act of2012, I am pleased 

to provide you with the U.S. Department ofTransportation's Unmanned Aircraft Systems (UAS) 

Comprehensive Plan. The Federal Aviation Administration's Joint Planning and Development 

Office developed this comprehensive plan under the guidance of the Next Generation Air 

Transportation System (NcxtGen) Senior Policy Committee, and in coordination with NextGen 

partner representatives. The Plan outlines the safe acceleration of the integration of civil UAS 

into the National Airspace System (NAS). 

The UAS Comprehensive Plan includes UAS National Goals and Objectives that reflect the 

NextGen partner agencies' UAS mission needs. The work accomplished by the multi-agency 

teams in Fiscal Year 20 12 provides the foundation for embarking on the path towards safe 

integration of UAS in the NAS. The completed work provides a common framework for 

evolving interagency coordination and planning and is a testament to the collaboration among 

representatives from the partner agencies and the UAS community. 

A similar letter has been sent to the Chairmen of the Senate Committee on Commerce, 

Science and Transportation and the House Committee on Transportation and Infrastructure and 

the Ranking Member of the House Committee nsportation and Infrastructure. 

Anthony R. Foxx 

Enclosure 
THE SECRETARY OF TRANSPORTATION 

WASHINGTON, D.C. 20590 

The Honorable Bill Shuster 

Chairman 

Committee on Transportation 

and Infrastructure 

U.S. House of Representatives 

Washington, DC 2051 5 

Dear Mr. Chairman: 

November 6, 2013 

As required by Section 332(a) ofthe FAA Modernization and Reform Act of 2012, I am pleased 

to provide you with the U.S. Department of Transportation's Unmanned Aircraft Systems (UAS) 

Comprehensive Plan. The Federal Aviation Administration's Joint Planning and Development 

Office developed this comprehensive plan under the guidance of the Next Generation Air 

Transportation System (NextGen) Senior Policy Committee, and in coordination with NextGen 

partner representatives. The Plan outlines the safe acceleration of the integration of civil UAS 

into the National Airspace System (NAS). 

The UAS Comprehensive Plan includes UAS National Goals and Objectives that reflect the 

NextGen partner agencies' UAS mission needs. The work accomplished by the multi-agency 

teams in Fiscal Year 20 12 provides the foundation for embarking on the path towards safe 

integration of UAS in the NAS. The completed work provides a common framework for 

evolving interagency coordination and planning and is a testament to the collaboration among 

representatives from the partner agencies and the UAS community. 

A similar letter has been sent to the Chairman of the Senate Committee on Commerce, 

Science and Transportation and the Ranking Members of the Senate Committee on Commerce, 

Science and Transp01tation and the House Committee on Transportation and Infrastructure. 

Anthony R. Foxx 

Enclosure 
THE SECRETARY OF TRANSPORTATION 

WASHINGTON, D.C. 20590 

The Honorable Nick J. Rahall, II 

Ranking Member 

Committee on Transportation 

and Infrastructure 

U.S. House of Representatives 

Washington, DC 205 15 

Dear Congressman Rahal]: 

November 6, 2013 

As required by Section 332(a) of the FAA Modernization and Reform Act of20 12, I am pleased 

to provide you with the U.S. Department ofTransportation's Unmanned Aircraft Systems (UAS) 

Comprehensive Plan. The Federal Aviation Administration's Joint Planning and Development 

Office developed this comprehensive plan under the guidance of the Next Generation Air 

Transportation System (NextGen) Senior Policy Committee, and in coordination with NextGen 

partner representatives. The Plan outlines the safe acceleration of the integration of civil UAS 

into the National Airspace System (NAS). 

The UAS Comprehensive Plan includes UAS National Goals and Objectives that reflect the 

NextGen partner agencies' UAS mission needs. The work accomplished by the multi-agency 

teams in Fiscal Year 2012 provides the foundation for embarking on the path towards safe 

integration of UAS in the NAS. The completed work provides a common framework for 

evolving interagency coordination and planning and is a testament to the collaboration among 

representatives from the partner agencies and the UAS community. 

A similar lelter has been sent to the Chairmen of the Senate Committee on Commerce, 

Science and Transportation and the House Committee on Transportation and Infrastructure and 

lhe Ranking Member of the Senate Committee on Commerce, Science and Transportation. 

Anthony R. Foxx 

Enclosure 
PREPARED BY THE JOINT PLANNING AND DEVELOPMENT OFFICE (JPDO)

31, 2

Unmanned Aircraft Systems (UAS) Comprehensive Plan

A Report on the Nation’s UAS Path Forward

September 2013
UAS COMPREHENSIVE PLAN 

JPDO

Page 2 of 26

Executive Summary............................................................................................................ 3

1. Introduction..................................................................................................................... 5

2. Approach......................................................................................................................... 8

2.1 UAS National Goals, Objectives, and Targets...........................................................8

2.1.1 UAS National Goals ...........................................................................................9

2.1.2 UAS National Objectives..................................................................................10

2.2 Integration of Civil UAS in the NAS Roadmap (FAA’s Integration Roadmap).12

2.3 UAS Research and Development (R&D) Prioritization ..........................................13

2.3.1 Interagency Research Collaboration.................................................................14

2.4 Test Ranges..............................................................................................................15

2.5 Small UAS Rule.......................................................................................................15

3. Integrated Approach and the Path Forward .................................................................. 15

4. Conclusion .................................................................................................................... 17

Appendix A – FAA Modernization and Reform Act of 2012: UAS Requirements......... 18

Appendix B – UAS National Goals and Objectives Source Documents.......................... 20

Appendix C – UAS Comprehensive Plan Definitions...................................................... 22

Appendix D – UAS Comprehensive Plan Acronyms....................................................... 25
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EXECUTIVE SUMMARY 

The Unmanned Aircraft Systems (UAS) Comprehensive Plan details work that has been 

accomplished, along with future efforts needed to achieve safe integration of UAS into the 

National Airspace System (NAS). Throughout Fiscal Year 2012 (FY12), work was conducted to 

develop elements required to create a more complete picture of achieving safe UAS integration. 

The perspectives and information available from these individual activities create a framework 

and reveal an evolving capability for the integration of UAS into the NAS.

Representatives from the Next Generation Air Transportation System (NextGen) partner 

agencies – the Departments of Transportation (DOT), Defense (DoD), Commerce (DOC), and 

Homeland Security (DHS), the National Aeronautics and Space Administration (NASA), and the 

Federal Aviation Administration (FAA) – as well as industry representatives, provided through 

the FAA’s UAS Aviation Rulemaking Committee (ARC), have actively participated in 

constructing this Plan. The completed work is a testament to the collaboration among 

representatives from the partner agencies and the UAS community.

The continued safe integration of UAS in the NAS and increased NAS access for UAS will be 

driven by incremental advances in: research and development (R&D) (including test ranges); 

rulemaking (including operational approval and airworthiness standards); and development of 

UAS-related technologies. Safe integration will lead us from today's need for accommodation of 

UAS through individual approvals to a time when standardized/routine integration into the 

NextGen environment is well defined. 

Six high-level strategic goals that are specific, measureable, attainable, realistic, and timely were 

developed to reflect the principal objective of safe UAS integration into the NAS. These 

high-level goals – summarized below – were derived from existing goals provided by the partner 

agencies and should therefore resonate with the wide range of UAS stakeholders. 

The overarching approach for the Goals is to allow public integration to lay the framework for 

civil integration. The first two Goals apply to small UAS (under 55 pounds) within visual lineof-sight (VLOS), assuming the public realm would be accomplished first and civil would follow; 

the third and fourth Goals apply to the other UAS, with the same process: public would occur 

first and civil would follow. Goal 5 was established to plan and manage growing automation 

capabilities through research, and Goal 6 provides the opportunity for the U.S. to remain leaders 

in the international forum. The sum of these Goals shows a phased-in approach for UAS 

integration in the NAS.

The UAS Comprehensive Plan sets the overarching, interagency goals, objectives, and approach 

to integrating UAS into the NAS. Each partner agency will work to achieve these national goals, 

and may develop agency-specific plans that are aligned to the national goals and objectives. The 

FAA’s Integration of Civil UAS in the NAS Roadmap is an example of one such plan. It outlines, 

for planning purposes and within a broad timeline, the tasks, assumptions, dependencies, and 

considerations needed to enable UAS integration in the NAS within the wider UAS community. 

It will remain consistent with the UAS Comprehensive Plan. The FAA’s UAS Concept of 

Operations (ConOps) reflects their desired end-state, and lays out the pathway for achieving this 

end-state, anticipating the technological and procedural enhancements required to make 
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integration happen. In addition, it begins the engineering process of incorporating UAS-specific 

changes into the NextGen Implementation Plan.

Understanding and prioritizing the R&D needs associated with each of the UAS National Goals 

is key to achieving robust integration of UAS in the NAS. The need for new capabilities, 

mitigations, and verification and validation methods to enable safe and secure operations will 

require the development, integration, and implementation of emerging and new technologies. 

Each agency presents varying needs and possesses a significant body of expertise resulting from 

historical investments in UAS operations. R&D-related activities undertaken in FY12 have 

initiated a process by which the partner agencies can share information and coordinate their 

research to support the UAS National Goals, maximize the return on investment dollars, and 

ensure that research products address the FAA’s needs beyond 2015. 

Two additional activities that are critical to the integration of UAS include the small UAS Rule 

and the test range program. First, the FAA is drafting a Notice of Proposed Rulemaking 

(NPRM), targeted for release in calendar year 2014 that is intended to lead to requirements and 

parameters for how small UAS will be integrated into the NAS. Second, a Screening Information 

Request (SIR) for the test site selection process was published by the FAA on February 14, 2013. 

The selection of the six test ranges is anticipated to be completed by the end of calendar year 

2013. 

The work accomplished in FY12 provides the foundation for safe integration of UAS in the 

NAS. Valuable relationships have been established and a commitment among the NextGen 

partners is reflected in the UAS National Goals. Details required for UAS integration 

implementation are laid out in the FAA’s Integration of Civil UAS in the NAS Roadmap which 

will be updated annually. These annual updates will track and report progress. The FAA’s UAS 

ConOps begins the process of including UAS-related changes in the FAA’s NextGen 

Implementation Plan. A process has been initiated for how research that enables emerging 

technology can be identified, prioritized, and integrated into the NextGen Implementation Plan. 

Finally, a small UAS rulemaking project has been initiated, and the test range selection process 

is underway. 

Important non-safety related issues, such as privacy and national security, need to be taken into 

consideration as UAS are integrated into the NAS. The privacy requirements proposed for the 

UAS test sites are specifically designed for the operation of the test sites and are not intended to 

pre-determine the long-term policy and regulatory framework under which UAS would operate. 

However, the FAA anticipates that the privacy policies developed by the test site operators will 

help inform the dialogue among policymakers, privacy advocates, and the industry regarding 

broader questions concerning the use of UAS technologies in the NAS. 

Collectively, the efforts described in this document represent the framework of the UAS 

Comprehensive Plan. They will continue to be refined as needed, in FY13 and beyond, until safe 

integration of UAS in the NAS is accomplished for both public and civil UAS users. 
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1. INTRODUCTION

Over the last 50 years, rapid advances in aviation technology have transformed the nation’s 

skies. Our National Airspace System (NAS) has evolved to include a wide variety of fixed wing 

and rotary aircraft of various sizes, weights, and speeds, operating across the country from 

populated complex metropolitan areas to remote airfields supporting small communities. They 

operate in a range of airspace, from low-altitude to the stratosphere. Some are dependent on 

thermals and wind, such as gliders and balloons, and others fly faster than the speed of sound, 

such as supersonic planes and spacecraft. As aircraft technology expands, so do the challenges 

associated with maintaining a safe and integrated NAS. And, with the recent advent of and 

growing interest in remotely piloted aircraft – commonly known as Unmanned Aircraft Systems 

(UAS) – addressing these challenges in a complex, multi-layered system has never been more 

critical. UAS are to be integrated in an already shaped and automated NAS and Air Traffic 

Control (ATC) environment that was originally developed for manned aircraft.

The use of UAS has increased significantly in the United States. From agricultural monitoring 

and border surveillance to local crime scene investigations, search and rescue missions, disaster 

response (e.g., wildfires and floods), and military training, UAS provide a wide variety of 

operational, societal, and economic benefits to its diverse group of users. For example, according 

to the Teal Group, the market for government and commercial use of UAS is expected to grow, 

with small UAS having the greatest growth potential.1 Teal forecasts that the worldwide 

expenditures on UAS and related research could be potentially as much as $89.1 billion in 

aggregate over the next decade, with the United States playing a leading role. However, as the 

demand for UAS increases, concerns regarding how UAS will impact existing aviation grow 

stronger, especially in terms of safety, privacy, frequency crowding, and airspace congestion. 

In 2008, the Government Accountability Office (GAO) reported2 that the U.S. must develop a 

clear and common understanding of what is required to safely and routinely operate UAS in the 

NAS. Additionally, Congress underscored the significance of UAS integration when it enacted 

the FAA Modernization and Reform Act of 2012. Through this legislation, Congress set forth a 

number of specific requirements3 for achieving UAS integration – namely, a Comprehensive 

Plan and a five-year Roadmap. 

This UAS Comprehensive Plan is expected to address the following elements:

 FAA rulemaking projects being conducted under Section 332, sub-section (b).

 Methods to enhance technologies and subsystems necessary for safe and routine 

operation of civil UAS.

 Phased-in approach to civil UAS integration into the NAS.

 Timeline for phased-in integration.

 1 Teal Group Corporation, World Unmanned Aerial Vehicle Systems (Fairfax, VA: 2012). 2 U.S. Government Accountability Office. (2008, May) Unmanned Aircraft Systems: Federal Actions Needed to

Ensure Safety and Expand Their Potential Uses within the National Airspace System, GAO-08-511. 

http://www.gao.gov/assets/280/275328.pdf

3 See Appendix A: FAA Modernization and Reform Act of 2012 - UAS Requirements.
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 Airspace designation of manned and UAS operations in a cooperative NAS environment.

 Establishment of a process to inform FAA rulemaking projects related to certification, 

flight standards, and air traffic requirements for civil UAS, and the process for gathering 

informational data from designated test ranges.

 Methods to ensure simultaneous safe operations of civil and public UAS within the NAS.

 Incorporation of the Plan into the annual Next Generation Air Transportation System 

(NextGen) Implementation Plan.

Ultimately, cost-effective and safe implementation will require multi-agency coordination to 

develop a national-level plan that guides routine UAS operations in the NAS.

In April 2012, under the guidance of the NextGen Senior Policy Committee (SPC), the Joint 

Planning and Development Office (JPDO) answered this challenge, assembling executive- and 

working-level teams comprised of individuals from the NextGen partner agencies – the 

Departments of Transportation (DOT), Defense (DoD), Commerce (DOC), and Homeland 

Security (DHS) as well as the National Aeronautics and Space Administration (NASA), and the 

Federal Aviation Administration (FAA). These individuals began the work required to develop a 

UAS plan. The initial objective of the collective team was to create and coordinate approval of 

UAS National Goals and Objectives that are reflective of the NextGen partner agencies’ UAS 

mission needs, and predicated on data and information from existing documentation aggregated 

by the JPDO.4 Ultimately, the UAS National Goals and Objectives represent the framework and 

foundation of the UAS Comprehensive Plan – an endeavor the JPDO is leading in collaboration 

with the NextGen partners, which is further described in detail within this document. 

The UAS Comprehensive Plan sets the overarching, interagency goals, objectives and approach 

to integrating UAS into the NAS. Each partner agency will work to achieve these national goals, 

and may develop agency-specific plans that are aligned to the national goals and objectives. The 

FAA’s Integration of Civil UAS in the NAS Roadmap is an example of one such plan. It outlines, 

for planning purposes and within a broad timeline, the tasks, assumptions, dependencies, and 

considerations needed to enable UAS integration in the NAS within the wider UAS community. 

It will remain consistent with the UAS Comprehensive Plan. The FAA’s UAS Concept of 

Operations (ConOps) reflects their desired end-state, and lays out the pathway for achieving this 

end-state, anticipating the technological and procedural enhancements required to make 

integration happen. In addition, it begins the engineering process of incorporating UAS-specific 

changes into the NextGen Implementation Plan.

Additionally, this Comprehensive Plan supports the coordination and integration of research and 

development (R&D) necessary to achieve the UAS National Goals and the FAA’s Integration 

Roadmap goals. Development of a NextGen UAS Research, Development and Demonstration 

(RD&D) Roadmap, prioritization methodology, and prioritization database in Fiscal Year 2012 

(FY12) established initial information and a process for the JPDO and partner agencies to 

 4 See Appendix B: UAS National Goals and Objectives Source Documents.
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collaborate in their efforts to identify and address R&D needs for UAS capabilities beyond 2015. 

Assessment of R&D needs and prioritizing the activities is an essential element of the 

Comprehensive Plan. 

The FAA's chief mission is to ensure the safety and efficiency of the NAS. This includes manned 

and unmanned aircraft operations. While the expanded use of UAS presents great opportunities, 

it also presents significant challenges as unmanned aircraft systems are inherently different from 

manned aircraft. 

Safety, Privacy, Civil Rights, Civil Liberties & Security

Members of the NextGen SPC agree on the need to address privacy concerns of the public at large while safely 

integrating UAS in the NAS. As use of UAS by civil agencies and private industry grows, preserving the privacy, 

civil rights, and civil liberties of individuals becomes increasingly important. In October 2012, the SPC committed to 

working together on this issue and suggested that answers to privacy policy questions could be accomplished in 

stages. 

The FAA also recognizes the importance of non-safety related issues, such as privacy and civil liberties, physical 

security, and potential economic opportunities, which all Federal agencies and stakeholders participating in the 

development of UAS policy will need to take into consideration as UAS are integrated into the NAS. Specific to 

privacy concerns, the FAA has proposed and is requesting public input on a privacy approach for the UAS test site 

program that attempts to prudently address privacy concerns by emphasizing transparency, public engagement, and

compliance with existing law. 

The UAS test sites authorized by Congress can provide an opportunity for development and demonstration by the 

test site operators and users of policies and operating approaches that would address both UAS operator mission 

needs and related individual privacy concerns. The lessons learned and best practices established at the test sites may 

be applied more generally to protect privacy in UAS operations throughout the NAS. This incremental approach will 

provide an example to both private and public sectors on a safe and secure way to employ UAS that is consistent 

with the need for privacy.

Federal agencies are mindful that national defense and homeland security measures are to be designed and 

performed without diminishing the privacy, civil rights, and civil liberties of individuals. There are specific laws 

applicable to public agencies that ensure that those agencies follow privacy principles. In addition, many agencies 

have their own internal privacy policies providing guidance to their employees about the importance of privacy, civil 

rights, and civil liberties. Robust privacy policies, privacy impact assessments, and privacy compliance reviews or 

audits are just some of the tools that Federal agencies may use as mechanisms to protect individual rights and 

liberties.

Although there is no Federal law that specifically addresses privacy concerns with respect to civil UAS operations, 

many states have laws that protect individuals from invasions of privacy which could be applied to intrusions 

committed by using a UAS. 

Integrating public and civil UAS into the NAS carries certain national security implications, including cyber and 

communications security, domestic framework for US government operations, national airspace and defense, airman 

vetting/general aviation, and privacy concerns. In coordination with the National Security Staff at the White House, 

the FAA is working in conjunction with relevant agency partners on an Interagency Policy Committee to address 

these issues.
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The sections that follow highlight the results of the FY12 activities and explain how these pieces 

are a part of or may influence the Comprehensive Plan for UAS integration in the NAS.

2. APPROACH 

Several initiatives have advanced in parallel to plan for the integration of UAS in the NAS. They 

address the need for a common set of goals, a common understanding of how UAS will operate 

in the NAS, a timeline for accomplishing the activities required to allow for safe integration of 

UAS, and a way to evaluate research needs that enable prompt technology improvements to 

support the successful execution of that timeline. The highlights of these activities are included 

here.

2.1 UAS NATIONAL GOALS, OBJECTIVES, AND TARGETS

The JPDO developed the UAS National Goals, Objectives, and Targets in coordination with 

executive- and working-level representatives provided by the NextGen partner agencies. The 

interagency team emphasized that the UAS National Goals must represent the achievable UAS 

capabilities, considering user and stakeholder mission needs, type of operations, and operational 

boundaries. 

The initial framing of the UAS National Goals and Objectives leveraged 12 key source 

documents,5 including UAS roadmaps, plans, and integration efforts from various agencies. Key 

goals, objectives, requirements, supporting activities, and dates from applicable reference 

documents provided insight into agency-specific UAS initiatives. The common goals and themes 

reflected in the extracted data served as the basis for the development of six UAS National Goals 

and eight Objectives. These UAS National Goals and Objectives are not directly linked on a 

one-for-one basis, but rather, a specific objective could support a range of Goals. 

The following assumptions frame the formulation of the UAS National Goals, Objectives, and 

Targets: 

 Routine operations for UAS should not require exceptions or unique authorizations.

 Targets reflect the earliest start dates mandated by the FAA Modernization and Reform 

Act of 20126 for achieving initial capability in support of the UAS National Goals. 

 The UAS National Goals and Objectives must align with – and not supersede –

government United States Code (U.S.C.) title authorities and responsibilities (see below 

for further elaboration). 

 Partner agency documents constitute a baseline reflecting current plans and efforts 

toward safe UAS integration in the NAS.7

 5 Ibid.

6 The FAA Modernization and Reform Act of 2012 specifies the following UAS target dates for safe UAS 

integration into the NAS:

• August 14, 2014 – Publish a final rule on small UAS. Required by Section 332 (b)(1).

• September 30, 2015 – “No later than date” for safe integration of civil UAS into the NAS. Required by Section 

332(a)(3).
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The final set of UAS National Goals and Objectives represents the result of several iterations of 

refinement and review by partner agencies and approval by the UAS National Plan Partner 

Agency Senior-Level Executives designated by the JPDO Board. 

The Comprehensive Plan does not supersede government U.S.C. title authorities and 

responsibilities. The UAS National Goals and Objectives provide a framework for interagency 

coordination and planning. Government agencies will comply with their own processes, policies, 

and standards regarding airworthiness, pilot, aircrew and maintenance personnel certification and 

recurrent training. The authority to safely conduct public aircraft operations in the NAS is 

derived from Title 49, United States Code (49 U.S.C. §§ 40102(a) (41) and 40125). If no 

government UAS processes, policies, or standards exist, it is recommended that the agency apply 

specific provisions of 14 Code of Federal Regulations (CFR) applicable to civil UAS operations 

when they are published. The appropriate public or civil authority will be responsible for 

establishing the requirements called out in the UAS National Objectives.

2.1.1 UAS NATIONAL GOALS

1. Routine Public Small UAS Visual Line-of-Sight (VLOS) Operations Conducted in the 

NAS (without special authorization; i.e., Certificate of Authorization) (2015)8

− Initial Capability9: Operations outside of Class B/C airspace and not over populated 

areas.

− Full Capability10: Operations in all applicable domestic airspace classes subject to 

airspace requirements.

2. Routine Civil Small UAS VLOS Operations Conducted in the NAS (without special 

authorization; i.e., Special Airworthiness Certificate) (2015)

− Initial Capability: Operations outside of Class B/C airspace and not over populated 

areas.

− Full Capability: Operations in all applicable domestic airspace classes subject to 

airspace requirements.

3. Routine Public UAS Operations in the NAS (2015)

− Initial Capability: Using mitigation for UAS limitations to comply with 14 CFR Part 91 

requirements.

− Full Capability: UAS compliance with revised operating requirements addressing 

unique UAS attributes. 

4. Routine Civil UAS Operations in the NAS (2020)

− Initial Capability: Using mitigation for UAS limitations to comply with 14 CFR Part 91 

requirements.

 7

 See Appendix B: UAS National Goals and Objectives Source Documents.

8

Dates assigned to the UAS National Goals indicate when the Initial Capability will be available.

9 Initial Capability: An initial implementation available for operations that supports the planned UAS National Goal. 10 Full Capability: A final implementation available for operations that completes the planned UAS National Goal.
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− Full Capability: UAS compliance with revised operating requirements addressing 

unique UAS attributes. 

5. Define, Determine, and Establish Acceptable Levels of Automation for UAS in the NAS 

(TBD)11

6. Foster U.S. International Leadership in UAS Capabilities and in Standards Development 

(Ongoing)

− Initial Capability: UAS operations in airspace where the U.S. has the responsibility for 

the provision of Air Traffic Services (ATS).

− Full Capability: Harmonized UAS operations in accordance with International UAS 

Standards and Recommended Practices (SARPs).

2.1.2 UAS NATIONAL OBJECTIVES

1. Establish Applicable Certification and Training Requirements for Pilots/Crew Members, 

Other UAS Operational Personnel, and Appropriate Air Navigation Service Provider 

(ANSP) Personnel

1.1. Determine the roles and responsibilities of applicable pilots/crew members, other 

UAS operational personnel, and appropriate ANSP personnel for safe UAS 

integration.

1.2. Develop and propose regulatory changes, as required, to define licensing 

(certification) and training requirements for pilots/crew members, other UAS 

operational personnel, and appropriate ANSP personnel (address in 14 CFR Part 61, 

63, 65, and 141-147).

1.3. Publish, if required, final rule requirements for applicable pilots/crew members, other 

UAS operational personnel, and appropriate ANSP personnel.

1.4. Begin training and certification initiatives for pilots/crew members, other UAS 

operational personnel, and appropriate ANSP personnel.

2. Approve Applicable Medical Requirements and Standards (e.g., address 14 CFR Part 

67)

2.1. Develop and propose regulatory changes, as required, to define draft medical 

requirements and standards.

2.2. Publish, if required, a final rule establishing medical requirements and standards.

3. Establish Applicable Airworthiness Certification Requirements

3.1. Facilitate the initiation of applicable classification and basis of airworthiness 

certification.

3.2. Facilitate the development of draft airworthiness design standards.

3.3. Develop applicable draft airworthiness certification advisory circulars.

3.4. Approve and publish final system airworthiness certification advisory circulars.

3.5. Ensure that a robust and integrated test environment is available to develop, test, and 

evaluate UAS. 

3.6. Administer certification, including Advisory Circular (AC) guidance and oversight.

 11 A roadmap will be developed in 2015 which will help determine when this goal will be accomplished.
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4. Implement Small UAS Rules

4.1. Develop and publish small UAS Rules for operations within VLOS of the pilot or 

observer.

4.2. Issue permits to operate as applicable to small UAS (FAA).

5. Approve the Use of Ground Based Sense and Avoid (GBSAA) for UAS Operations

5.1. Define GBSAA performance requirements for access to all applicable domestic 

airspace classes subject to airspace requirements and classes of aircraft.

5.2. Define GBSAA equipment and operating requirements for access to all applicable 

domestic airspace classes subject to airspace requirements and classes of aircraft.

5.3. Test GBSAA equipment and procedures.

5.4. Approve GBSAA operations for routine use.

6. Approve the Use of Airborne Sense and Avoid (ABSAA) for UAS Operations

6.1. Define ABSAA performance requirements for access to all applicable domestic 

airspace classes subject to airspace requirements and classes of aircraft.

6.2. Define ABSAA equipment and operating requirements for access to all applicable 

domestic airspace classes subject to airspace requirements and classes of aircraft.

6.3. Test ABSAA equipment and procedures.

6.4. Amend 14 CFR 91.113 (Right-of-way-rules) to allow ABSAA

6.5. Approve ABSAA operations for routine use.

7. Develop and Integrate UAS Enabling Technologies within the NAS Infrastructure to 

Support Appropriate Levels of Automation

7.1. Coordinate, develop, and refine existing and/or emerging ontologies for automation. 

Baseline the ontology(ies) in order to provide standard terminology, roles, 

responsibilities, modes, and levels for usage in: requirements analysis, standards 

development, modeling and simulations assessments, systems development, 

procedures development, testing, certification processes, training documentation, and 

research specifications. Maintain consistency and interoperability with other 

automation systems to enable future systems of systems integration.

7.2. Develop a UAS Automation Roadmap (UAR) that evaluates the use of increasing 

levels of automation within the context of FAA NextGen infrastructure and 

stakeholder R&D capabilities. Continue to coordinate and update the UAR along with 

the NextGen UAS RD&D Roadmap.

7.3. Determine the requirements and develop, certify, and field UAS enabling 

technologies to support enhanced automation capabilities.

8. Approve Integrated Operations for Manned Aircraft and UAS in the NAS

8.1. Develop UAS agency-specific Integration Transition Plans.

8.2. Develop Airspace Integration Safety Case/Assessment.

8.3. Develop and publish operational standards, procedures, and guidance for UAS 

airspace operations (Regulations, Policy Documents, Advisory Circulars, Orders, 

Notices, Handbooks, and Manuals).
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8.4. Develop and publish operational standards, procedures, and guidance relative to 

airport facilities and UAS surface operations (Regulations, Policy Documents, 

Advisory Circulars, Orders, Notices, Handbooks and Manuals).

2.2 INTEGRATION OF CIVIL UAS IN THE NAS ROADMAP (FAA’S INTEGRATION ROADMAP)

The FAA’s Integration Roadmap contains FAA-developed goals, metrics (activities), and target 

dates (or date ranges), and incorporates many related UAS Aviation Rulemaking Committee 

(ARC) recommendations. The FAA’s Integration Roadmap is a five-year plan, and target dates 

are generally limited to this horizon. The FAA will reflect necessary changes to the existing set 

of goals, metrics, and target dates in yearly updates to the FAA’s Integration Roadmap. These 

annual updates enable tracking and progress reporting as recommended by the GAO.

The goals are, for the most part, intended to be addressed concurrently. The metrics help 

establish and maintain common government and industry expectations, and enable objective 

assessments of the progress made toward accomplishing each goal. The goals and metrics 

collectively reflect the incremental approach to UAS certification and integration, and establish a 

set of strategic objectives that can guide the definition of lower-level activities, schedules, and 

resource requirements. 

Goals and metrics were developed for each of the following UAS focus areas: 

(1) Certification Requirements (Airworthiness) 

(2) Certification Requirements (Pilot/Crew)

(3) Ground Based Sense and Avoid (GBSAA)

(4) Airborne Sense and Avoid (ABSAA)

(5) Control and Communications (C2)

(6) Small UAS and Other Rules

(7) Test Ranges

(8) Air Traffic Interoperability

(9) Miscellaneous

These focus areas represent the elements that should be addressed to enable UAS integration in 

the NAS. Figure 1 is an example of the information contained in the FAA’s Integration 

Roadmap. 
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Figure 1 – Example: Airworthiness Certification Requirements Activities (Metrics)

2.3 UAS RESEARCH AND DEVELOPMENT (R&D) PRIORITIZATION

The FAA has established R&D priorities to successfully achieve UAS capabilities envisioned in 

2015. However, the UAS National Goals to be achieved after initial integration in 2015 require 

technology solutions that are not fully available today. Understanding and prioritizing R&D 

needs associated with each of the UAS National Goals is critical to achieving robust integration 

of UAS in the NAS. Each partner agency brings unique needs and possesses a significant body 

of expertise resulting from historical investments in UAS operations. As a result, R&D-related 

activities undertaken in FY12 have established a process by which the partner agencies can share 

information and coordinate their research to support the UAS National Goals, maximize the 

return on investment dollars, and ensure that research products address the FAA’s needs beyond 

2015. 

The FY12 UAS R&D efforts, focused on establishing a basis for identifying and prioritizing 

R&D needs, include the following:

 Developing and issuing a NextGen UAS RD&D Roadmap, which provided a catalog of 

R&D efforts.

 Establishing JPDO and multi-agency teams to facilitate coordination of R&D-related 

efforts.

 Developing an approach for prioritizing R&D topics based on the UAS National Goals.
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The prioritization of R&D topics began with the NextGen UAS RD&D Roadmap.

12 Developed in 

2011 and signed in 2012, the Roadmap is a catalog of ongoing and planned R&D efforts being 

conducted by the NextGen partners to support the integration of UAS operations in the NAS.

Additionally, the process established a means for partner agencies to exchange information and 

coordinate with the FAA. Subject matter experts from the partner agencies – FAA, NASA, DoD, 

DHS, and DOC – contributed to the NextGen UAS RD&D Roadmap, identifying planned and 

ongoing work and critical R&D challenges in their areas of expertise. The NextGen UAS RD&D 

Roadmap defined 23 challenges within the four technical tracks of Communications, Airspace 

Operations, Unmanned Aircraft, and Human Systems Integration. 

The FY12 R&D effort used the NextGen UAS RD&D Roadmap and other studies to establish a 

prioritization approach linked to the UAS National Goals. This activity established prospective 

R&D topics, prioritization categories, a UAS R&D database, and an initial list of proposed 

high-priority R&D needs to achieve the UAS National Goals. Representatives from partner 

agencies participated in developing and reviewing the methodology and the preliminary results.

The methodology incorporates four steps:

 Use the UAS National Goals to represent the requirements driving R&D needs. 

 Develop a detailed list of prospective R&D topics (the FY12 effort identified 244 topics 

addressing 52 aspects of UAS integration in the NAS).

 Assign a priority category (Safety Critical, Necessary, Enhances, Not Applicable) to each 

of the R&D topics with respect to each of the UAS National Goals beyond initial 

integration in 2015.

 Summarize the prioritized topics associated with each of the 23 R&D challenges 

identified in the NextGen UAS RD&D Roadmap.

One of the major outcomes of the FY12 effort includes development of an initial UAS R&D 

prioritization database created by a team of subject matter experts working with partner agency 

representatives. The database documents the relationships among identified R&D needs, R&D 

challenges, UAS National Goals, and relative priorities. It will be used as a basis for more 

extensive FY13 UAS R&D prioritization work. 

2.3.1 INTERAGENCY RESEARCH COLLABORATION

In addition to the JPDO-led research collaboration, the FAA has been increasing its research 

collaboration with the NextGen partner agencies. Details of those efforts are listed in the 

paragraphs below. 

The FAA is providing subject matter experts to support NASA’s “UAS Integration in the NAS” 

project to review research objectives and assumptions. The FAA and NASA have shared UAS 

research project plans and analysis results, and have identified the need to minimize duplicative 

 12 Joint Planning and Development Office, (2012, March) 

http://www.jpdo.gov/library/20120315_UAS%20RDandD%20Roadmap.pdf
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efforts and determine how UAS research, expertise, and assets can be leveraged between them. 

There is an umbrella interagency agreement for UAS research between the FAA and NASA, 

which will allow the FAA to centralize and focus its collaboration with NASA while capitalizing 

on expertise across all NASA research centers. Specific focus with NASA is in the areas of 

Human Systems Integration, Communications, Certification, Separation Assurance/Sense and 

Avoid Interoperability, and Integrated Test and Evaluation.

The FAA and DoD have collaborated on the Defense Department’s UAS – Airspace Integration 

(UAS-AI) Quick Reaction Test. The FAA is also collaborating with DoD/USNORTHCOM on 

the follow-on Joint Test, which commenced at the end of calendar year 2012. In addition, the 

FAA conducted an evaluation of the DoD Joint ConOps for UAS-AI, which focuses on nearterm advanced accommodation of UAS in the NAS. The suite of proposed flight profile tests will 

potentially serve as an incremental step to inform the FAA’s Integration Roadmap.

The FAA and DHS collaborated on the FAA’s Demo 4. Demo 4’s high-level research objectives 

were to assess the ability for an independent Ground-Based Voice Communication System to 

restore communication between the UAS pilot and ATC in the event of a lost link/lost 

communication scenario. The objectives also tested the viability of providing an independent 

Cockpit Display of Traffic Information system to aid a UAS pilot in tracking own-ship 

information in the event of a lost link/lost communication scenario. The UAS Demonstration 

Team successfully completed Demo 4 by observing a Customs and Border Protection operational 

flight in October 2012. 

2.4 TEST RANGES

During FY12, the FAA initiated a program for test ranges in accordance with the FAA 

Modernization and Reform Act of 2012. This effort successfully generated a Screening 

Information Request (SIR) after a public comment period and public webinars, with almost 800 

registrants, to address questions on the test ranges. All comments were adjudicated and the final 

SIR soliciting applications was published on February 14, 2013. The deadline for submitting 

applications was May 6, 2013. The FAA is currently evaluating the applications and anticipates 

that the test sites will be selected by the end of calendar year 2013. As part of the test range 

agreements, the FAA will be collecting information that will help inform future rulemaking 

activities and other policy decisions related to safety, privacy, and economic growth. In addition, 

NextGen partner agencies will leverage their individual and networked laboratory facilities and 

test infrastructure, as appropriate, to advance the goals and objectives of this plan. 

2.5 SMALL UAS RULE

A Notice of Proposed Rulemaking (NPRM) on small UAS is under development with the intent 

to provide safe small UAS access to the NAS. The NPRM for small UAS is being drafted and is 

targeted for release in 2014.

3. INTEGRATED APPROACH AND THE PATH FORWARD

As described in the previous section, many parallel activities have been conducted to support the 

generation of this Comprehensive Plan. Each of these pieces plays a critical role in ultimately 

achieving the safe integration of UAS in the NAS. 
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Achieving approval of the UAS National Goals and Objectives by the NextGen partners was a 

key accomplishment, since this allowed the stakeholders to work in unison.13 With six approved 

National Goals and eight Objectives, there is a common framework and timeline to begin the 

UAS integration work. The overarching approach for the Goals is to allow public integration to 

lay the framework for civil integration. The first two Goals apply to small UAS (under 55 

pounds) within VLOS, assuming the public realm would be accomplished first and civil would 

follow; the third and fourth Goals apply to the other UAS, with the same process: public would 

occur first and civil would follow. Goal 5 was established to plan and manage growing

automation capabilities through research, and Goal 6 provides the opportunity for the U.S. to 

remain leaders in the international forum. The sum of these Goals shows a phased-in approach 

for UAS integration in the NAS.

The FAA’s UAS ConOps provides the mechanism to enable integration of UAS needs into the 

FAA’s NextGen Implementation Plan. Assessment of R&D needs to support the UAS ConOps 

and prioritizing the activities is an essential element of the Comprehensive Plan. Since the FAA 

has already defined critical research to support what is required for 2015, the FY13 R&D 

prioritization effort addresses R&D efforts in support of UAS integration beyond 2015. The 

FY13 R&D prioritization activity will develop these needs and identify ongoing research efforts 

in close coordination with the partner agencies.

The need for new capabilities, mitigations, and verification and validation methods to enable safe 

operations will require the development, integration, and implementation of emerging and new 

technologies. Advanced planning is essential, since lead times for developing technology for full 

implementation of UAS National Goals beyond 2020 can span many years. The scope of issues 

involved in UAS integration in the NAS dictates that R&D activities must be well understood 

within an integrated framework in terms of relevance, timeliness, and relationships among 

related research activities. Using the draft methodology generated in FY12 as guidance, the 

JPDO will lead a more extensive UAS research prioritization activity in FY13. The NextGen 

UAS RD&D Roadmap and prioritization of R&D needs to represent significant steps toward 

planning and coordinating the R&D required to achieve the UAS National Goals. The JPDO and 

its partners plan to continue this activity with the following next steps:

 Refine the prioritization methodology.

 Update and refine the UAS R&D prioritization database, including incorporation of R&D 

needs associated with policy decisions and mitigation of identified risks.

 Update the UAS R&D inventory established in the NextGen UAS RD&D Roadmap.

 Conduct a gap analysis comparing the inventory in an updated NextGen UAS RD&D 

Roadmap to validated R&D needs identified by the R&D prioritization activity.

 Work with the partner agencies to establish R&D Community of Interest that addresses 

integration of UAS in the NAS.

 13 Partner agency approval is in final coordination.
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 Identify further steps to fill the gaps and plan, coordinate, and assess progress of R&D 

associated with the UAS National Goals.

The FAA’s Integration Roadmap lays out a rolling five-year plan for implementing UAS 

integration in the NAS. It supports the UAS National Goals and Objectives and anticipates the 

technology and procedural enhancements required to make integration happen. In general, it 

provides a timeline for phased-in integration of UAS in the NAS. The FAA’s Integration 

Roadmap was shaped by industry recommendations received through the FAA’s UAS ARC and 

implementation details will be added through FY13.

In addition to the activities listed above, two other activities are underway that are critical to the 

successful integration of UAS in the NAS. The small UAS Rule is under development, and is 

expected to begin to address the first two UAS National Goals. Also, the test range program has 

been defined and initiated. The FAA anticipates the selection will be announced by the end of 

calendar year 2013. The small UAS Rule and the test range program activities are included in the 

FAA’s Integration Roadmap.

4. CONCLUSION 

UAS play a unique role in the safety and security of many U.S. military and civil missions. Due 

to the diverse utility that UAS offer, their use is expected to increase exponentially once safe and 

efficient integration in the NAS is accomplished. As a result, developing a safe and efficient way 

for UAS to operate in the NAS with manned aircraft has become a critical issue – particularly in 

the planning and implementation of NextGen. 

In 2008, the GAO reported that the U.S. must develop a clear and common understanding of 

what is required to safely and routinely operate UAS in the NAS. Congress then enacted the 

FAA Modernization and Reform Act of 2012, which laid out a number of requirements for 

achieving UAS integration, namely, a Comprehensive Plan and a five-year Roadmap. In early 

2012, the JPDO addressed this challenge by assembling executive- and working-level teams 

comprised of individuals from the NextGen partner agencies. Ultimately, the work accomplished 

by these multi-agency teams in FY12 provided the foundation for embarking on the path towards 

safe integration of UAS in the NAS. The JPDO will continue to convene partner agency teams to 

address such issues as security, privacy, civil rights, and civil liberties as the opportunity is 

presented, enabling integration across several key policy areas of interest. 

Specifically, valuable relationships have been established and the commitment shared by the 

NextGen partners is reflected in the UAS National Goals. Details required for UAS integration 

implementation are described in the FAA’s Integration Roadmap, which will be updated 

annually. Also, the overarching process has been defined for how research priorities to enable 

emerging technology will be identified and integrated into the FAA’s NextGen Implementation 

Plan. The test ranges will be positioned to provide data to assist with engineering activities that 

will support integration.

Collectively, the efforts described in this document represent the framework of the UAS 

Comprehensive Plan. They will continue in FY13 and beyond, as needed, until safe integration 

of UAS in the NAS is accomplished for both public and civil UAS users.
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APPENDIX A – FAA MODERNIZATION AND REFORM ACT OF 2012: UAS

REQUIREMENTS

To amend title 49, United States Code, to authorize appropriations for the Federal Aviation 

Administration for fiscal years 2011 through 2014, to streamline programs, create efficiencies, 

reduce waste, and improve aviation safety and capacity, to provide stable funding for the 

national aviation system, and for other purposes.

TITLE III—SAFETY

Subtitle B—Unmanned Aircraft Systems

SEC. 332. INTEGRATION OF CIVIL UNMANNED AIRCRAFT SYSTEMS INTO 

NATIONAL AIRSPACE SYSTEM

(a) REQUIRED PLANNING FOR INTEGRATION.—

(1) COMPREHENSIVE PLAN.—Not later than 270 days after the date of enactment of this Act, 

the Secretary of Transportation, in consultation with representatives of the aviation industry, 

Federal agencies that employ unmanned aircraft systems technology in the national airspace 

system, and the unmanned aircraft systems industry, shall develop a comprehensive plan to 

safely accelerate the integration of civil unmanned aircraft systems into the national airspace 

system.

(2) CONTENTS OF PLAN.—The plan required under paragraph (1) shall contain, at a minimum, 

recommendations or projections on—

(A) the rulemaking to be conducted under subsection (b), with specific 

recommendations on how the rulemaking will—

(i) define the acceptable standards for operation and certification of civil 

unmanned aircraft systems;

(ii) ensure that any civil unmanned aircraft system includes a sense and avoid 

capability; and

(iii) establish standards and requirements for the operator and pilot of a civil 

unmanned aircraft system, including standards and requirements for registration 

and licensing;

(B) the best methods to enhance the technologies and subsystems necessary to achieve 

the safe and routine operation of civil unmanned aircraft systems in the national 

airspace system;

(C) a phased-in approach to the integration of civil unmanned aircraft systems into the 

national airspace system;

(D) a timeline for the phased-in approach described under subparagraph (C);

(E) creation of a safe14

(F) airspace designation for cooperative manned and unmanned flight operations in the 

national airspace system;

(G) establishment of a process to develop certification, flight standards, and air traffic 

requirements for civil unmanned aircraft systems at test ranges where such systems

are subject to testing;

 14 Additional wording for this requirement may have been inadvertently omitted from this Bill (H.R.658).
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(H) the best methods to ensure the safe operation of civil unmanned aircraft systems 

and public unmanned aircraft systems simultaneously in the national airspace system; 

(I) incorporation of the plan into the annual NextGen Implementation Plan document 

(or any successor document) of the Federal Aviation Administration.

(3) DEADLINE.—The plan required under paragraph (1) shall provide for the safe integration 

of civil unmanned aircraft systems into the national airspace system as soon as practicable, 

but not later than September 30, 2015.

(4) REPORT TO CONGRESS.—Not later than 1 year after the date of enactment of this Act, the 

Secretary shall submit to Congress a copy of the plan required under paragraph (1).

(5) ROADMAP.—Not later than 1 year after the date of enactment of this Act, the Secretary 

shall approve and make available in print and on the Administration’s Internet Web site a 

five-year roadmap for the introduction of civil unmanned aircraft systems into the national 

airspace system, as coordinated by the Unmanned Aircraft Program Office of the 

Administration. The Secretary shall update the roadmap annually.
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APPENDIX B – UAS NATIONAL GOALS AND OBJECTIVES SOURCE DOCUMENTS

The documents that were used to extract UAS National Goals and Objectives pertaining to safe 

UAS integration in the NAS are depicted below.

1. NextGen UAS Research, Development and Demonstration Roadmap (JPDO) (March 2012)

2. Integration of Civil UAS into the NAS – Roadmap Basis (FAA UAS ARC) (June 2012)

3. FAA Civil/Public UAS Roadmap (2010) 

4. NAS Access Plan for Federal Public UAS (ExCom) (October 2010)

5. DoD UAS Airspace Integration Plan (March 2011)

6. DoD Unmanned Systems Integrated Roadmap FY2011-2036 (2011)

7. National Aeronautics Research and Development Plan - Progress Assessment (NSTC) 

(December 2011)

8. UAS Integration into the NAS Project Briefing (NASA) (April 26, 2012) 

9. RTCA SC-203 Terms of Reference (TOR) (April 26, 2010)
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10. GANIS Working Document - ICAO Aviation System Block Upgrades (ASBUs) (August 12, 

2011)

11. An R&D Roadmap of UAS Access to the NextGen ATS - Vol 1 (NASA ARD) (December 

17, 2010)

12. ICAO Circular 328-AN/190 - UAS (UASSG) (March 10, 2011)
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APPENDIX C – UAS COMPREHENSIVE PLAN DEFINITIONS

Term Definition

Civil Aviation Civil aviation includes two major categories:15

(1) Air transport, including all passenger and cargo flights operating on 

regularly scheduled routes, as well as on demand flights.

(2) General aviation (GA), including all other civil flights, private or 

commercial. 

All air transport is commercial, but general aviation can be either 

commercial or private. Normally, the pilot, aircraft, and operator must all be 

authorized to perform commercial operations through separate commercial 

licensing, registration, and operation certificates.

Class A Airspace Generally, that airspace from 18,000 feet MSL up to and including FL 600, 

including the airspace overlying the waters within 12 nautical miles of the 

coast of the 48 contiguous States and Alaska. Unless otherwise authorized, 

all persons must operate their aircraft under IFR.

Class B Airspace Generally, that airspace from the surface to 10,000 feet MSL surrounding 

the nation's busiest airports in terms of airport operations or passenger 

enplanements. The configuration of each Class B airspace area is 

individually tailored and consists of a surface area and two or more layers 

(some Class B airspaces areas resemble upside‐down wedding cakes), and 

is designed to contain all published instrument procedures once an aircraft 

enters the airspace. An ATC clearance is required for all aircraft to operate 

in the area, and all aircraft that are so cleared receive separation services 

within the airspace. The cloud clearance requirement for VFR operations is 

“clear of clouds.”

Class C Airspace Generally, that airspace from the surface to 4,000 feet above the airport 

elevation (charted in MSL) surrounding those airports that have an 

operational control tower, are serviced by a radar approach control, and that 

have a certain number of IFR operations or passenger enplanements. 

Although the configuration of each Class C area is individually tailored, the 

airspace usually consists of a surface area with a five nautical mile (NM) 

radius, a circle with a 10NM radius that extends no lower than 1,200 feet up 

to 4,000 feet above the airport elevation, and an outer area that is not 

charted. Each person must establish two‐way radio communications with 

the ATC facility providing air traffic services prior to entering the airspace 

and thereafter maintain those communications while within the airspace. 

VFR aircraft are only separated from IFR aircraft within the airspace.

Class D Airspace Generally, that airspace from the surface to 2,500 feet above the airport 

elevation (charted in MSL) surrounding those airports that have an 

operational control tower. The configuration of each Class D airspace area 

is individually tailored and when instrument procedures are published, the 

airspace will normally be designed to contain the procedures. Arrival 

 15 Federal Aviation Regulations FAR Part 91, 110, 121, 125, 135.
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extensions for instrument approach procedures may be Class D or Class E 

airspace. Unless otherwise authorized, each person must establish two‐way 

radio communications with the ATC facility providing air traffic services 

prior to entering the airspace and thereafter maintain those communications 

while in the airspace. No separation services are provided to VFR aircraft.

Class E Airspace Generally, if the airspace is not Class A, Class B, Class C, or Class D, and it 

is controlled airspace, it is Class E airspace. Class E airspace extends 

upward from either the surface or a designated altitude to the overlying or 

adjacent controlled airspace. When designated as a surface area, the 

airspace will be configured to contain all instrument procedures. Also in 

this class are Federal airways, airspace beginning at either 700 or 1,200 feet 

AGL used to transition to/from the terminal or en route environment, en 

route domestic, and offshore airspace areas designated below 18,000 feet 

MSL. Unless designated at a lower altitude, Class E airspace begins at 

14,500 MSL over the United States, including that airspace overlying the 

waters within 12 nautical miles of the coast of the 48 contiguous States and 

Alaska, up to, but not including 18,000 feet MSL, and the airspace above 

FL 600.

Class G Airspace That airspace not designated as Class A, B, C, D or E.

Full Capability A final implementation available for operations that completes the planned 

UAS National Goal.

Goal Statement of an end result or outcome desired by stakeholders.

Initial Capability An initial implementation available for operations that supports the planned 

UAS National Goal.

Milestone A significant point in time or event for achieving a specific result.

National 

Airspace System 

(NAS)

The common network of U.S. airspace; air navigation facilities, equipment 

and services, airports or landing areas; aeronautical charts, information and 

services; rules, regulations and procedures, technical information, and 

manpower and material. Included are system components shared jointly 

with the military.16

National Goal A statement of an end result or outcome desired by stakeholders that 

enables the accomplishment of the overarching mission. It is a top-level, 

strategic outcome that one wishes to achieve.

Objective Statement of necessary achievement to meet the goal.

Public Aviation Public Aircraft Operation (PAO) is limited by the statute to certain 

government operations within U.S. airspace. Although these operations 

must comply with certain general operating rules (including those 

applicable to all aircraft in the NAS), other civil certification and safety 

oversight regulations do not apply. Whether an operation may be 

considered public is determined on a flight-by-flight basis, under the terms 

of the statute (49 U.S.C. 40102 and 49 U.S.C. 40125) and depends on 

 16 FAA Order 7110.65, Air Traffic Control, Pilot/Controller Glossary, Change 2.
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factors such as aircraft ownership, operator, the purpose of the flight and the 

persons on board the aircraft.17

Stakeholders Individuals or organizations that stand to gain from the success or failure of 

a system/initiative.

Strategic A perspective that is mission-oriented rather than tactical or operational.

Strategy Overall plan of action to achieve an objective. Ties together objectives, 

approaches, and actions.

Unmanned 

Aircraft System 

(UAS)

An unmanned aircraft and its associated elements related to safe operations, 

which may include control stations (ground, ship, or air-based), control 

links, support equipment, payloads, flight termination systems, and 

launch/recovery equipment. 

 17 FAA Order 8900.1, Flight Standards Information Management System.
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APPENDIX D – UAS COMPREHENSIVE PLAN ACRONYMS

Term Definition

4D Four-Dimensional

ABSAA Airborne Sense and Avoid

AC Advisory Circular

ADS-B Automatic Dependent Surveillance-Broadcast

AIM Aeronautical Information Manual

ANSP Air Navigation Service Provider

ATC Air Traffic Control

ATS Air Traffic Services

BLOS Beyond Line-of-Sight

C2 Control and Communications

CDTI Cockpit Display of Traffic Information

COA Certificate of Waiver or Authorization 

CFR Code of Federal Regulations

ConOps Concept of Operations

DHS Department of Homeland Security

DOC Department of Commerce

DoD Department of Defense

DOJ Department of Justice

DOT Department of Transportation

ExCom UAS Executive Committee

FAA Federal Aviation Administration

FAA ARC FAA Aviation Rulemaking Committee

FAR Federal Aviation Regulations

FPV First Person View

FY Fiscal Year

GA General Aviation

GAO Government Accountability Office

GBSAA Ground Based Sense and Avoid

ICAO International Civil Aviation Organization

ICAO ASBUs ICAO Aviation System Block Upgrades

ICAO UASSG ICAO Unmanned Aircraft Systems Study Group 

IFR Instrument Flight Rules

JPDO Joint Planning and Development Office

LOS Line-of-Sight

MASPS Minimum Aviation System Performance Standards
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Term Definition

MOPS Minimum Operational Performance Standards

NAS National Airspace System

NASA National Aeronautics and Space Administration

NASA ARD NASA Aeronautics Research Mission Directorate

NextGen Next Generation Air Transportation System

NOAA National Oceanic and Atmospheric Administration

NSTC National Science and Technology Council

NPRM Notice of Proposed Rulemaking

PIC Pilot-in-Command

QRT Quick Reaction Test

R&D Research and Development 

RD&D Research, Development and Demonstration

RF Radio Frequency

SAA Sense and Avoid

SARPs Standards and Recommended Practices

SFAR Special Federal Aviation Regulation

SPC Senior Policy Committee

TOR Terms of Reference

U.S.C. United States Code

UA Unmanned Aircraft

UAR UAS Automation Roadmap

UAS Unmanned Aircraft System

UAS-AI Unmanned Aircraft Systems – Airspace Integration

VFR Visual Flight Rules

VMC Visual Meteorological Conditions

VLOS Visual Line-of-Sight