EN   EN 
 
 
 EUROPEAN  
COMMISSION  HIGH REPRESENTATIVE  
OF THE UNION FOR  
FOREIGN AFFAIRS AND  
SECURITY POLICY  
Strasbourg, 15.2.2022  
JOIN(2022) 4 final  
 
JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE 
COUNCIL  
An EU Approach for Space Traffic Management   
An EU contribution addressing a global challenge   
 
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 1 INTRODUCTION  
Given the ever -growing volume of space debris  and the exponential increase of space traffic, 
space is increasingly congested, threatening the viability and security of space infrastructure 
and operations. This unprecedented  population  of objects is a real, concrete risk impacting 
routine operations i n orbit every single day,  posing a direct threat to the safety and security 
for orbital traffic and space sustainability.  We now stand at a crossroads: if we do not find 
ways to manage space traffic, our past and present space activities will jeopardise th e safety, 
security and sustainability of outer space and, as a result, our future ability to rely on space as 
enabler of key services in benefit of humankind.  
Close approaches are becoming more common in Low Earth Orbit (LEO) as the number of 
satellites i ncreases due to the proliferation of mega -constellations. Recently, a growing number 
of incidents have occurred which could have had catastrophic results. The sheer number of 
trackable and untrackable space objects and the rapid pace of space operations in crease 
exponentially the risk of potential future incidents. The potential repercussions may render 
certain orbits unusable for decades to come; and as a direct corollary, severe ly 
compromise or lead to failure of space operations . The latter, considering the increasing 
dependence on space data and services, entails a high level of strategic risk  and may disrupt 
key services such as communications, civil protection and emergency response . Should for 
instance the provision of EU global Positioning, Navigatio n, Timing  (PNT)  and Earth 
Observation data and services be interrupted or severely compromised, this would have a direct 
impact upon the security, safety, economy, and well -being of European citizens, therefore 
limiting our freedom of action.  
In a context of an increasingly contested space environment, Space Traffic Management (STM)  
will contribute  to the security and defence dimensions  of the EU in space . Space services are 
key enablers for defence  and civilian  capabilities.  Because of their strategic natu re, space assets 
are thus becoming targets of various kinds of threats. Their disruption would seriously affect 
the ability of the EU and its Member States to defend themselves . Additionally, d ecreasing the 
risk of in -orbit collision will enhance the resilience of space infrastructure, including those 
satellites supporting defence and security applications.  Building autonomous  – yet 
interoperable with our main partners – EU S pace Surveillance and Tracking  capacities  to 
support STM  is therefore of param ount importance . A global STM  effort  would also contribute 
to transparency and confidence building  in general,  and help avoid misunderstandings and 
deescalate tension s in case of  incidents.  
Since the orbital environment is a globally shared resource, space  operators worldwide are to 
varying degrees interdependent. Consequently, t he establishment of STM requires a buy -in by 
all space -faring actors . 
The EU is a major international space -faring actor with an own European Space Policy and 
Space Programme includ ing Position, Navigation & Timing (PNT) and Earth Observation  
components . The EU has therefore a legitimate inter est and obligation to actively contribute to  
the global debate and take a distinct stance in shaping the necessary actions for the management 
of space traffic. The EU already promotes a multilateral approach to ensure the 
preservation of the long -term safety and sustainability of activities in outer space, with 
the objective of reducing threats and risks for all space systems.  The EU has been en gaged 
 
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 in the preservation of a safe, sustainable, stable and secure outer space for decades and remains 
committed to the peaceful use of outer space.  
The Council , the Commission and the High Representative have recognised the need for an EU 
STM approach to  address these global multifaceted challenges to the safety, security and 
sustainability of space operations,  in a series of a high -level policy documents urging for 
action .1 
In the absence of an international regulatory framework, several public and private initiatives 
seek to address safety of space operations. In the race to establish a secure environment in space 
to guarantee security on the ground the EU must act now, swif tly, collectively and resolutely .  
The objective of this Joint Communication is to lay out a concrete EU approach on STM  
for a safe, sustainable and secure use of space, preserving EU interests in full compliance 
with the respective competences of the EU and its Member States . 
 
2 THE IMPERATIVE FOR AN EU STM APPROACH  
The imperative for the EU to proceed with policy -making and action in STM , given the  lack of 
international norms and standards, rests upon some primary questions – on the boundaries of 
this rapidly evolving public policy domain, on the main drivers urging for action, and  on how 
the EU could respond to the exigencies of this global challenge.  
2.1 The definition of STM  
The first issue to address is the absence of a consensus  on an internationally agreed, clear 
definition  of STM along with its primary objectives2. While a consensual definition of the term 
is yet to emerge at international level, the protection of space infrastructure and the guarantee 
of safe and sustainable u se of outer space in the long term cannot wait  in view of an ever -
growing number of actors and objects in space .  
Based on an exhaustive study of definitions and approaches3 and in order to progress at EU 
level, this Communication defines STM as the  means  and rules to access, conduct activities 
in, and return from outer space safely, sustainably and securely.  
STM relates to the  following elements:  
a) Space Situational Awareness (SSA) activities, including Space Surveillance and 
Tracking (SST); and  
b) orbital de bris mitigation and remediation;  
c) management of space orbits and radio spectrum;  
                                                 
1 On 22 February 2021, the Commission adopted an Action Plan on synergies between civil, defence and space industries , which announced 
the launch of intensified dialogue and development work towards an STM flagship project . The May 2021 Competitiveness Council 
conclusions on ‘New Space for Peo ple’ stressed ‘the importance of developing a Space Traffic Management (STM) approach for Europe in 
the future and guiding global standards’. The process of the Strategic Compass, currently debated at the Council, acknowledge s the importance 
of developing an EU approach on STM as a useful contribution to the Common Foreign and Security Policy objectives of the EU. 
2 Various definitions have been proposed in several political, academic and international fora. At the same time, the complexity for defining 
STM  has increased with new concepts emerging, such as Space Traffic Safety (STS), Space Traffic Coordination (STC), and more rece ntly 
Space Traffic Coordination and Management (STCM).  
3 Pilot Project on Space Traffic Management – The rise of importance of Space Traffic Management (STM)  
 
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 d) the entire life -cycle of space operations including launch phase, in -orbit operations of 
spacecraft, and end -of-life de -orbit operations;  
e) re-entry phase of spacecraft  into the airspace  (both controlled and uncontrolled).  
This working definition remains dynamic  and might further evolve during the upcoming 
discussions on STM at EU and international level, detailing and complementing the various 
phases of the above activities.  
2.2 The compelling need to act  
After 50 years of commercial use of space systems, the need for an EU STM  approach  is more 
compelling . Itis characterised by four consecutive developments in the space sector. These 
drivers , including  the congestion and wider range o f actors in the space environment, render 
STM indispensable and prompt a global policy -making response.  
Firstly, the economic aspects of space are changing with the  era of “new space”4. The cost 
of sending satellites into space is continuously decreasing , notably  due to the use of re -usable 
launchers and the development of micro -launchers. At the same time, the development of small 
satellites is lowering the price tag to take payloads into space. This has attracted venture capital 
given that the potential r eturn on investment is growing.  
The consequence of the changing economic env ironment of space activities is a strong increase 
in the number of satellites in orbit , notably with the development of so -called mega -
constellations. Since the beginning of the s pace race, about 6,000 launches  have put in orbit 
11,800 satellites of which 4,550 are currently operational5. It is estimated that more than 20 ,000 
additional satellites will be launched  in the next ten years6. This growing number of satellites 
increases the complexity of space operations and makes it impossible to safely operate a 
spacecraft  not taking into account other spacecraft . 
Secondly, the rise in number of satellites and space traffic activity increase s the volume of 
debris generated and the risk of collisions  (see Table 1). Already today, there are around 128 
million pieces of debris smaller than 1 cm orbiting Earth, and approximately 900 ,000 pieces 
between 1 and 10 cm. The current count  of large debris (defined as 10 cm or larger) is 34 ,0007. 
                                                 
4 Definition  of New Space: private companies, SMEs and start -ups that develop novel space technologies and applications  
5 Source: Eurospace.  More than 470  spacecraft were launched every year in 2017, 2018 and 2019, while only 110 spacecraft were launched on 
average per year between 2000 and 2013  
6 An indicative list: Space X Starlink, Amazon Kuiper, the success of One Web, Boeing V -band, Iceye, Kepler, Tele sat LEO, Spire, Theia, etc.  
7 Source: ESA  
 
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Table 1: Events = risk or high risk of collision between two space objects as detected by EU SST.  
Thirdly, space is increasingly contested, threatening the security and resilience  of the EU’s 
and Member States’ space assets and  highlighting the urgent need for international discussions 
to agree on and implement norms of responsible behaviour in outer space by state and non -state 
actors.  Especially, LEO, the area of outer space arou nd Earth that includes all orbits below 
2,000km, and  is the home of the International Space Station and of thousands of other satellites , 
is rapidly becoming a hazardous area due to  space debris and inoperable spacecraft orbiting at 
very high speeds. A cascade where each collision  increases the likelihood of further collisions  
is increasingly becoming a real risk for the operability of LEO. 8 
Fourthly, whilst these three interlinked developments are occurring , there currently exist only 
very limited global “rules of the road” on conduct in outer space . Despite notable 
achievements at United Nations ( UN) level9, the development of a comprehensive approach at 
international level is facing considerable diplomatic and political hurdles, which add to the 
urgency to act.  
In the light of these developments, the necessity for the EU to act and develop an EU 
approach on STM is compelling.  
2.3 The need to act collectively  
As space is global and  not confined by national boundaries , the capacity of one country to 
impose its legal obligations on another in the space domain is limited , even if  major space -
                                                 
8 Cascade in which each collision generates space debris.  
9 In 2018, the COPUOS developed 21 guidelines for the long -term sustainability of outer space activities.  

 
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 faring nations might address the challenge of   STM by adopting national guidelines , like the 
US with the adoption of the Space Policy Directive 3 in 2018.10  
If Member States a nd the EU want to protect their space assets, it is imperative  to work on a 
collective approach with the involvement of  all EU  stakeholders . This will increase EU 
resilience  by avoiding  technological dependenc ies, ensure strategic autonomy  through the 
development of EU capacities , and guarantee  cooperation with partners, in particular through 
burden sharing . 
The EU is well -positioned to  act , being able to identify needs, aggregate requirements, 
synthesise stakeholders’ views, leverage tech nology and coordinate external engagement . 
The EU approach on STM will build on four avenues  develop ed in parallel  1) assessing the 
STM requirements and impacts for the EU , 2) enhancing EU operational capabilities to support 
STM , 3) fostering the STM regulatory aspects  and 4) promoting the EU STM approach at the 
international level . 
 
3 ASSESSING THE STM REQUIREMENTS AND IMPACTS FOR THE EU  
The EU needs a clear understanding of the requirements and the potential impact of STM  
developments on various European stakeholders. Beyond the capacity to aggregate needs and 
establish requirements, this entails  mobilis ing the various stakeholders across the civilian and 
military communities and ensur ing convergence on common level.  
The Commission and the High Representative, within their respective competences , will set up 
a process of consultation and discussion with all relevant EU stakeholders to assess the 
needs and impact of STM on the various policy areas of the EU. For instance , in the area  of 
transport,  in particular Aviation  where consistency between space and air-traffic  management 
needs to be ensured , in order to ensure specifically the safety , security and sustainable 
performance of aviation, due to the increasing traffic to and from space, and from uncontrolled 
debris re -entering the airspace . As a result, cooperation between the different actors and 
authorities should be fostered . To this end, an inclusive and transparent consultation 
mechanism  will be established to gather the positions of the stakeholders involved , including 
the EU space industry . A regular dialogue on STM  will address inter alia the specific needs of 
the European space ecosystem .  
While affirming the principle of a civilian S TM under civilian control, the EU approach on 
STM should also take into account the specific needs of defence and security  as an integral  
element of a common strategic culture for the space domain . The defence requirements and 
constraints for STM could relate to the operation of military satellites, of military payloads or 
of civilian satellites and services, which have military users, such as the Public Regulated 
Service (PRS) of Galileo. The milita ry could also have requirements linked to specific areas of 
operations such as Common Security and Defence Policy  missions and operations.  
Capturing both the civilian and the military needs and analysing the impact of STM across the 
various policy areas of  the Union will be carried out by the Commission and the High 
                                                 
10 https://trumpwhitehouse.archives.gov/presidential -actions/space -policy -directive -3-national -space -traffic -management -policy/  
 
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 Representative with the support of the European Defence Agency (EDA) for consolidating the 
specific military needs in question  and acting as the military interface for STM.  
Action 1:  
By mid -2022 , the Commission and the High Representative  will set up a consultation 
mechanism with all relevant EU stakeholders . This will  aggregate by early 2023 the civilian 
and military  requirements towards an EU STM approach and maintain a regular dialogue on 
STM -related developments  coverin g both civil ian and military needs . As part of this 
mechanism,  the EDA will work with Member States to consolidate military needs . 
 
4 ENHANCING EU OPERATI ONAL CAPABILITIES TO  SUPPORT STM  
To perform STM activities, it is necess ary to be able to observe space traffic  continuously . The 
EU Space Surveillance and Tracking (SST) constitutes the operational pillar  for the EU 
STM approach. The EU SST Consortium11 provides data, information and services  related to 
the surveillance and tracking of space objects orbiting the Earth. It will be replaced by the EU 
SST Partnership in accordance with the Regulation establishing the Union Space Programme 
(‘Space Regulation’).12 This new Partnership  will include m ore Member States willing to join 
and will provide additional services for E uropean and international users .13 
4.1 Towards an autonomous EU Space Surveillance and Tracking of space 
objects  
The work performed by the EU SST Consortium since 2014 has paved the way for the 
development of an effective and reliable protection of space assets of the EU especially the 
satellites of the European Union Space Programme , its Member States and other space 
operators that have registered with the se rvice.   
Today, EU SST is providing collision avoidance services14 to more than 260 satellites 
distributed in Low Earth Orbit, Medium Earth Orbit and Geostationary Orbit using Member 
States’ civil and military assets that remain under the control of its Member States and the EU 
as provided for in the Space Regulation. As part of  the Spac e Situational Awareness component 
of the EU Space Programme, EU SST is the key operational capability  for future EU STM. It  
also supports other EU policies requiring autonomous decision -making15.  
In order t o face the STM challenges,  the EU must further develop its SST capabilities to a 
sufficient level of autonomy , while taking into account ongoing work carried out by the 
Member States, including in the framework of the E uropean Defence Fund (EDF) . This 
requires:  
                                                 
11 The EU  SST Consortium  established by Decision 541/2014/EU is the entity delivering the EU  SST services. It is composed of seven Member 
States, France, Germany, Italy, Poland, Portugal, Romania and Spain.  
12 Regulation (EU) 2021/696 of the European Parliament and of the Council of 28 April 2021 establishing the Union Space Programm e and 
the European Union Agency for the Space Program me and repealing Regulations (EU) No 912/2010, (EU) No 1285/2013 and (EU) No 
377/2014 and Decision No 541/2014/EU, OJ L 170, 12.5.2021, p. 69 –148. 
13 The Space Regulation provides a budget of EUR 200 million for SST.  
14 Article 55 1) a) of the Space Regulat ion defines the Collision Avoidance service provided by the EUSST as followed: the risk assessment of 
collision between spacecraft or between spacecraft and space debris and the potential generation of collision avoidance alert s during the phases 
of launch , early orbit, orbit raising, in -orbit operations and disposal phases of spacecraft missions.  
15 For example, civil protection in case of risky re -entry of space objects for instance,  and CFSP/CSDP as recalled in the Strategic Compass  
 
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 - Improvement of the p erformance of  EU SST services and development of additional SST 
services  – The performance of the operational capabilities needs to be reinforced to cope 
with f uture STM operational challenges; new  services need to be developed in order to 
prepare the EU for STM operational challenges ; and  
- Use of new technologies – New technologies are already applied today; however, their 
use needs to be reinforced in anticipation of the new challenges raised by ST M. 
- Involvement of the EU industrial ecosystem  –EU industry already contributes to EU 
SST; however, their potential could be leveraged further, with regard to SMEs and start -
ups, building upon the public services delivered by EU SST.  
4.2 Improve and extend EU  SST services  
EU SST provides services based mainly on the U nited States (US)  catalogue of space objects, 
complementing this catalogue increasingly with its own data and national catalogues. EU SST’s 
main value added is to provide an intermediary task in case of high -interest events, for example 
producing more up -to-date and precise data through the tasking of EU SST assets and the 
processing of data.  
So far, the US have  been providing data on space objects  above 10 cm and continue improving 
their catalogue . In order to increase its resilience through diversity of sources, ensure  its 
strategic autonomy and support cooperation with partners, in particular through burden sharing , 
the EU needs to increase the performance of its SST operational capabilities.  To this end, 
it needs to ensure that:  
 the EU SST Partnership pursue s the necessary activities in order to be able to detect all 
objects equal and above 10cm. 
Activities for the development of new assets could include, for example, the 
development of space -based sensors in the context of the Secure Connectivity 
Programme, and more performant radar and telescope systems.  The development of new 
technologies and sensors has to make best use of civil and defence synergies.  
 the EU SST Partnership has acces s to more SST assets located outside continental 
Europe.  
The capability to observe space objects efficiently is related directly to the geographical 
positioning of the assets (radars, telescopes and lasers). To date, EU assets are mostly 
located in contin ental Europe.  To the extent possible, coverage of the sky should be 
enhanced with EU -controlled assets located outside the European continent.  
Furthermore , the number of satellites launched and the pace of launches is increasing rapidly, 
which automaticall y increases the alerts related to collision avoidance and re -entries. The EU 
SST Consortium provides three services: Collision Avoidance , which supports spacecraft 
operators in managing conjunctions of their satellites during routine and special operations , as 
well as Re -entry Analysis and Fragmentation Analysis. The Space Regulation introduces two 
additional services: Mitigation and Remediation16.  
These n ew additional services  and an evolution to upgrade the functionality of the existing 
services will be  required in order to address new challenges in space, such as mega 
constellations. Building on the work already carried out by the EU SST Consortium, the future 
                                                 
16 Space debris mitiga tion aims to reduce the generation of space debris in the future and space debris remediation aims to develop methods to 
manage the existing space debris.  
 
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 EU SST Partnership should develop the additional serv ices related to the EU STM approach. 
These  services could serve  to support mitigation operations, and complement remediation 
and in -orbit servicing operations , by increasing the safety of critical operations, by 
developing platforms for communication and coordination of satellite operators registe red as 
users of EU SST, and by providing in -orbit contingency and anomaly support etc.  
4.3 Develop new technologies to tackle STM requirements  
The development of automatic collision -avoidance services and the use of artificial 
intelligence and quantum technology should be accelerated  to cope with the increased 
number of space objects and EU SST users. In addition, the surge of operators in general  will 
require for the EU to ensure that the false alarm rate (number of false collision warnings) 
decreases in order to focus on the most problematic conjunctions.  The EU will address these 
technological challenges through research  and development  activities  that are key to foster the 
quality of SST services provided.  
This will require mobilising available fund ing opportunities at Commission and Member 
States level , including  synergy funding or  blending of EU and national funds.  This could 
potentially be complemented by funds of the European Space Agency (ESA) in support of EU 
policy , provided that the security interests of the EU and its Member States are protected.  
In addition, synergies between research activities supported under Horizon Europe17 and 
activities under the European Defence Industrial Development Programme (EDIDP) and 
the European Defence Fund (EDF)  need to  be ensured.  
4.4 Making the most of the EU industrial ecosystem  
EU industry is directly involved in the development of the current SST operational capabilities : 
EU companies are participating in calls for tenders published by the members of the EU SST 
Consortium. As a result, up to 75% of the funds provided  by the EU to the EU SST 
Consortium are sub -contracted to EU industry .18 This has already created a European 
industrial ecosystem around SST that should be in a position to contribute to the EU STM 
approach.   
It is necessary to ensure that all the potential offered by EU industry, including New Space, 
is exploited building upo n the public services delivered by EU SST . SST Data  could 
constitute a real opportunity for EU industry. The Space Regulation foresees the development 
of an EU SST catalogue19 by end of 2024 using EU SST sensors.  This catalogue20 will be 
based on the work performed in recent yea rs with the establishment of an EU SST data -sharing 
platform  (EU SST database21). The development of improved SST operational capabilities  and 
additional assets located outside continental Europe will furthe r improve the quality of the 
future EU catalogue.  Some layers of this  catalogue and the related data-sharing platform will 
                                                 
17 The term ‘Horizon Europe’ in this document refers to the Specific programme implementing Horizon Eu rope and the European Institute of 
Innovation and Technology; activities carried out under them have an exclusive focus on civil applications.  
18 The remaining 25% are consumed by the participating national entities of the EU SST Consortium itself.  
19 A cons istent record and history of traceable data (e.g. object information, measurement data, orbit data, uncertainty) that are mai ntained by 
a unique system.  
20 The EUSST Catalogue should be available by end of 2024.  
21 The EU SST Database is the platform for sh aring, storing and disseminating data and information within EU SST (e.g. object information, 
measurement data, orbit data, tasking requests, national and EU SST catalogues) and connects to the Operations Centres of the  Member States.  
 
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 be made available to EU companies for research activities related to the development of added -
value derived STM services in Europe an d at the international level.   
In addition, t he dialogue with the EU’s SST -related industry needs to be intensified. The aim is 
to make the best use of the EU’s capabilities  and innovation  in the field of SST . This should 
take the form of actions initiated  by the EU SST Partnership to reap the benefits of the EU 
industry ’s innovation potential. Specific measures could include for example regular Industry 
Days where companies  have the opportunity to present the new  technologies and innovations , 
or as within the framework of the CASSINI initiative ,22 dedicated hackathons for SMEs and 
start-ups, calls, grants, prize, etc.  
These measures, while stimulating innovation, will feed the EU SST Partnership with the latest 
technological developments.  
Action 2: The Commission, with the  support of the  EU SST Partnership , will 
a) improve the performance of existing services:  
- by mid 2023 (preparation phase) elaborate an architecture analysis of the future STM needs 
including identification of the necessary resources for a more efficient and performant EU SST 
system , able to detect all objects above 10cm; and 
- by 2025 (implementation phase), start the deployment of additional ass ets. 
b) develop new services:  
- by mid -2023, propose new services to address forthc oming challenges raised in STM;  
- by 2025, validate the new services that will become operational.  
c) foster technology:  
- by end of 2023 liaise with the EU industry to establish a specific forum on  technological and  
innovation cross -fertilisation;  
- by end of 2023, prepare a detailed research plan targeting new technologies;  and 
- by end of 2025, assess its implementation process.   
Action 3: The Commission will  initiate specific actions in the framework of CASSINI to reap 
the full innovation potent ial of start -ups.  
Action 4:  The Commission, in coordination with the EU SST Partnership, will make accessible 
to industry:  
- by 202 3 parts of the data sharing platform; and  
- by 2025  parts of the future EU SST catalogue . 
 
                                                 
22 https://ec.europa.eu/defence -industry -space/eu -space -policy/space -research -and-innovation/cassini -space -entrepreneurship -initiative_en   
 
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 5 FOSTERING STM REGULATORY ASPECTS  
The EU STM approach also addresses  the regulatory aspects of  STM . It will comprise non -
binding measures (standards and guidelines) and, as well, binding obligations (legislation) at 
EU level.  
5.1 Monitoring the development of STM standards and guidelines  
The benefits of standards  for European industry are broad23. STM  standards developed by 
space stakeholders aim to ensure interoperability and safety, reduce costs and facilitate space 
manoeuvers.  Standards help manufacturers reduce costs, anticipate technic al requirements, and 
increase productivity, innovation  and efficiency.  
The space sector is highly technical and requires the use of standards at every stage of the value -
chain. National, European and international standardisation bodies adopt space standa rds. Other 
UN technical agencies play an important role in the establishment of sectorial world standards.  
Beyond the traditional standardisation bodies24, several specific actors exist in the space 
sector25. Space related guidelines are also developed within the UN framework, the latest 
example are the UN’s “Long Term Sustainability guidelines”.26 The STM standards and 
guidelines have a direct impact on the safe and sustainable use of outer space.  
The EU should foster an EU common approach towards stand ards because they have a tangible 
effect on the shaping of the future global STM system. A specific forum  aiming at ensuring a  
holistic EU approach on STM in international standardisation fora dealing with STM will be 
established in close cooperation with the Member States. All other EU actors will have the 
opportunity to participate, such as the EU SST Partnership, EU industry, etc.  
5.2 Development and promotion of STM standards and guidelines  
The EU should facilitate the development of STM standards and guide lines aiming at ensuring 
the safe and sustainable use of space.  
For that reason, the EU should be at the forefront of the development of STM guidelines 
and standards . The EU should be pro -active  at ensuring the development of international 
standards where feasible and needed, and developing its own EU standards whenever 
appropriate. In addition, the EU should prioritise the most impactful standards and guidelines, 
and promote their implementation  through a toolbox and r ecommendations.  
The Commission intends to develop a toolbox  based on identified STM standards and 
guidelines, which could help Member States when they grant licences for the provision of 
services requested by satellite operators ove r their territory. The objective is to ensure that risks 
related to space traffic (interference and collision avoidance in particular) are identified and 
mitigated . The approach would be similar to the EU toolbox for 5G security27. 
                                                 
23 On 2 February 2022, the Commission adopted  an EU Strategy on Standardisation: Setting global standards in support of a resilient, green 
and digital EU single market, COM(2022) 31 final, which underlines the link of standardis ation with projection of values, industrial leadership, 
the changing geopolitical landscape, and the EU’s role as trusted actor for developing global standards.  
24 National Standardisation Bodies, CEN/CENELEC and the International Standardisation Organisati on 
25 Such as the European Cooperation for Space Standards (ECSS), the Consultative Committee for Space Data and Systems (CCSDS), a nd the 
Inter-Agency Space Debris Coordination Committee (IADC).  
26 Guidelines for the Long -term Sustainability of Outer Space A ctivities, A/AC.105/2018/CRP.20, 27 June 2018.  
27 The EU toolbox for 5G security | Shaping Europe’s digital future (europa.eu)  
 
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 While working closely wit h Member States in the standardisation field, the Commission could 
support the selection of STM standards and guidelines, which should be promoted at EU level.  
These standards  could for example concern the use of active devices to facilitate the tracking 
of satellites, the warning of any major incident or re -entry, as well as the development of 
guidelines for special cases of STM, such as non -manoeuvrable satellites or constellations.  
5.3 Incentivise STM standards and guidelines  
In order to foster the use by  EU operators of the guidelines and standards recommended at the 
EU level, incentive measures will be put in place . For instance, the EU  will consider : 
 use a ‘safe space’ label  similar to the concept of the eco -label. Those companies and 
operators using the label could increase their share in the market by acceding to clients 
sensitive to safe and sustainable space operations;  
 adapt  award criteria to promot e the use of recommend ed guidelines and standards 
within relevant EU instruments (Horizon Europe, Space Programme Regulation, 
InvestEU, European Defence Fund, and other space initiatives , etc.),  
 establish a list of companies and operators  which implement STM guidelines or 
standards .  
Any incentive tool would require establishing a mechanism to supervise the implementation 
of the recommended guidelines and standards . The EU, in close cooperation with Member 
States, will consider the development of a certification mechanism for STM  in order to be 
able to verify the implementation by companies of the recommended guidelines and standards.  
5.4 Towards STM obligations  
In the  short term, certain limited obligations involving limited costs for the industry 
should be  envisaged . The steep increase of traffic to and from space and of the number of 
satellites in the different orbits of space and the necessity to avoid the generatio n of debris 
through further collision compels to impose certain obligations to every satellite operator. 
Therefore, a legal proposal should impose that all satellite operators providing services within 
the EU should register with a collision avoidance serv ice that offers at least a similar level of 
performances as the current services offered by EU SST.  
In addition, the entities in charge of collision avoidance services should have communication 
mechanisms and contacts (i.e. operators’  directory) at their disposal for managing conjunction 
events with other service providers to ensure timely responses and coordinated collision 
avoidance man oeuvres.  
In the medium term , a more comprehensive regulatory approach on STM should be 
developed , in consultation with M ember States, to identify relevant areas for legislation while 
preserving the competitiveness of the EU industry, in line with the respective competences  of 
the EU and its Member States .  
Some Member States have adopted national legislation regarding STM. Others are considering 
the possibility to adopt national measures. A fragmented approach to space at EU level not only 
prevents the emergence of a well -functioning  internal market  important to the development  of 
EU goods and services associated with the us e of Space, but can also have negative 
repercussions on other Union policies suc h as climate, environment and transport,  and in 
particular in aviation, where efforts to reduce fragmentation of European airspace are ongoing . 
 
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 A coherent approach at the EU leve l appears to be necessary . To that end and based on the EU 
stakeholders ’ needs and the identified rules and standards,  and after having duly associated the 
Member States to the consultation process,  the EU should  make a legislati ve proposal covering 
STM rules .  
This legislative proposal should aim  at develop ing of a common level playing field at the EU 
level, which  would  ensure that the most virtuous operators are not be penalised. It should also  
guarantee that the EU operat ors do not suffer from distortion of competition by operators 
established outside the EU benefiting from less stringent standards , for instance by imposing 
equal treatment to EU operators and to  any satellite operator intending to provide services 
within the EU.  
On the substance, the potential proposal could be limited to the establish ment  of essential STM 
requirements  taking into account existing EU level requirements for air traffic management . 
Subsequently, the European standardisation organisations could  develop the relevant technical 
requirements for STM in the form of harmonised standards or guidelines, which in turn  would  
allow manufacturers  and operators to prove compliance with these esse ntial requirements.  
Action 5: The Commission  and the High Representative depending on the EU competence  
involved  and in close collab oration with the Member States , will: 
- by end of 2023 establish the necessary forum to ensure that effective information and 
coordination regarding the standards and guidelines developed at the international level is in 
place in the EU .  
That forum will with the support  of the EU SST Partnership, EU industry  and ESA:  
 a) develop  new European and international standards ; 
 b) promote  select ed standards and guidelines at the EU level; and  
 c) create  a toolbox  to assisting Member States in licensing requests by satellite operators.  
Action 6 : The Commission, in close collaboration with Member States , will: 
- by end of 2023 identify possible incentive measures and a certification mechani sm towar ds 
the implementation  of STM standards  and guidelines  and 
- by end of 2024  establish a certification mechanism  and implement incentive measures . 
Action 7 : The Commission, in close collaboration with Member States , will 
- by end of 2023 propose an initial, limited set of obligations;  
- by mid-2024 identify possible areas for an EU STM legislation  and 
- by end of 2024 make a proposal  for an EU STM legislation . 
 
6 PROMOTING THE EU STM APPROACH  GLOBALLY  
The EU STM approach aims to contribute to a global endeavour , pairing existing regional 
capabilities and tools with an overall ambition for global cooperation. This constitutes the 
 
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 ‘external avenue ’ of the EU STM approach , which will actively promote pragmatic and 
concrete solutions towards a more global STM. This would meet the EU’s  core principles and 
values regarding outer space while preserving its diplomatic, economic and political interests 
as well as those of its Mem ber States.  
6.1 Promoting a multilateral STM  
The EU STM approach aims at contributing to a global STM  to be managed at international 
level. The EU  already : 
 promotes the preservation of a safe, secure and sustainable space environment  and 
the peaceful use of outer space on an equitable and mutual acceptable basis;  
 stresses the importance of transparency and confidence -building measures;  and  
 advocates responsible behaviour in outer space  in the framework of the United 
Nations.  
Buildin g upon these principles, the EU approach on STM will favour a multilateral STM 
approach in the framework of the UN . As part of the EU STM approach, the Union will seek 
to foster the discussion on STM in the relevant UN fora in particular the Committee on t he 
Peaceful Use of Outer Space (COPUOS), but also in the Conference of Disarmament with the 
objective to table a discussion at the UN General Assembly.  The EU will identify  and engage 
with the relevant UN bodies, which could support or contribute to such a ctivities . The 
International Telecommunications Union, for instance, is already involved in the management 
of orbits and filing of frequencies, and routinely handles standardi sation activities in various 
areas. The International Civil Aviation Organisation  is also involved in the development of 
standards in the areas where space operations interact with civil aviation.  
Acceptance by the EU of the relevant United Nations Treaties and Conventions on outer space, 
which Member States have repeatedly called upon , would help enhance EU credibility 
regarding the promotion of the sustainable use of and responsible behaviours in space, as well 
as strengthen its position and the legitimacy at international level.  The international rules 
applicable to space activities are included in five international convention s, commonly referred 
to as the “ five United Nati ons treaties on outer space”, which currently do not recognise the 
participation of international organisations. The Rescue Agreement, the Liability Convention 
and the Registration Convention allow that participation , although  not at equal footing with 
State parties. Considering the parallel competence that the Union enjoys in the area of space 
alongside its Member States, actions should be undertaken to explore EU participation in the 
Rescue Agreement, the Liability Convention and the Registration Convention while 
safeguarding the specific interests of the Union related to the impleme ntation of the Space 
Programme.  
6.2 Towards regional STM contributions to a global effo rt  
A future STM  regime would ideally be organised globally. Today very few countries in the 
world can independently deploy a globally performing SST system capable of processing the 
necessary services to perform STM, as described in chapter 4, or define a nd oversee STM 
Regulatory aspects described in chapter 5. T hus, forging partnerships and sharing the STM 
burden through complementary capabilities and norms is a practical solution in everyone's 
interest.  
 
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 Furthermore, STM relies on certain level of trust a mong space -faring nations and requires 
redundant systems. An approach made of regional contributions is a pragmatic, bottom -
up way  to build this confidence and ensure the necessary redundancy. On ce the various regional 
elements  of STM are mature enough and  sufficiently convergent, and there is sufficient 
consensus on the various rules and standards described in chapter 4 , the STM regional 
components could then form part of a global STM , with an appropriate governance still to be 
determined.  
The development  of the EU approach on STM within the Union is only the first step of a more 
general process . The aim will be to extend  the EU STM approach from the Union and its 
Member States to a Europe -wide approach, and on that basis initiate a process at the 
international level both in the UN and bilaterally . It is therefore important to promote to external 
partners the concept of a multilateral approach with regional contributions.  
6.3 Privil eged discussion with the US  
The US is the most advanced actor upon  STM, having invested billions of USD in the last 20 
years in SST capabilities. As a result, it has the most performant SST capability in the world, 
sharing its data worldwide.  Through Spac e Policy Directive 3 , it has started to develop  a 
dedicated approach  in the STM  field. 
While the EU first needs to develop its own STM approach, it must do so in close cooperation 
with the US. At the EU -US Summit in June 2021, both sides agreed to exchang e on respective 
approaches to STM . In this respect and against the background of the increasing US activities 
on STM, the Commission and the High Representative will explore ways  of ensuring closer 
cooperation  and mutual interoperability and complementarity  on STM with the US.  
6.4 Dialogues with other third countries  
The EU will pursue an active diplomacy related to STM . Discussions with international 
partners should focus on civil matters (e.g. operations, standardisations, etc.) but also highlight 
related security and defence aspects of STM. In particular, this should involve the promotion 
of the EU STM approach on releva nt perspectives such as operational safety and long -term 
sustainability of the orbital environment, including by encouraging interest in EU services  
available to a wider global community (e.g. EU SST).  
Action 8: The Commission and the High Representative , depending on the EU competence 
involved , in collaboration with the Member States will engage with the U N to identify or help 
create specific bodies for STM with a view to implementing concrete STM solutions at global 
level.  
Action 9: By mid -2022, the Commission  will explore possible ways by which the EU  could  
participate in the UN Rescue Agreement, in the Liability Convention and in the Registration 
Convention while safeguarding the interests of the Union . To this end , the Commission will 
analyse and w ork on possible measures needed in order to implement the obligations enshrined 
in these Conventions .  
 
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 Action 10: The Commission and the H igh Representative , depending on the EU competence 
involved , in close cooperation with the Member States will : 
- promote a regional approach on STM with third countries and relevant regional fora partners 
in order to prepare the future establishment of a global STM system bas ed on regional 
contributions ,  
- further engage w ith the US with a view to ensuring  closer cooperation and mutual 
interope rability on STM related matters,  
- systematically address STM in the space  dialogues with third countries . 
  
 
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 7 CONCLUSION  
As an EU  contribution to a global public policy challenge , this  Joint Communication aims at 
initiating an articulat ed coherent and coordinated EU STM approach for the EU and its Member 
States, and at promoting an EU position on STM in international and multilateral fora.   
The EU must act now  – swiftly, collectively and resolutely to ensure a safe , secure and 
sustainable use of space. T he Joint Communication proposes a dynamic and evolving EU 
approach with several concrete actions  on STM , with a view to preserving EU and Member 
States’ interests in full compliance with the competences of the EU and its Member States.  
These actions comprise assessing the STM civil and defence requirements for the EU, 
enhancing EU operational capabilities to support STM in terms of services and technologies, 
fostering STM regulatory aspects culminating in relevant leg islation, and promoting the EU 
STM approach globally.   
These efforts will enhance the resilience of EU and Member States’ space infrastructure our 
societies and economies depend on, provide greater certainty for operators, support the 
competitiveness of Eu ropean industry, and, together with our partners, make a concrete 
contribution to the global endeavour of sustaining space services and applications in the coming 
decades.