Communication from the Commission to the Council and the European Parliament -  European Space Policy - Preliminary Elements {SEC(2005)664}
Date: 2005-05-23
Institutions: European Commission
Subjects: EU policy, space policy, space research, space technology

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 23.05.2005 
COM(2005) 208 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

European Space Policy - Preliminary Elements 

{SEC(2005)664} 

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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

European Space Policy - Preliminary Elements 

TABLE OF CONTENTS 

INTRODUCTION...................................................................................................................... 3 

1. 

2. 

2.1. 

2.2. 

3. 

3.1. 

3.2. 

4. 

4.1. 

4.2. 

4.3. 

4.4. 

4.5. 

STRATEGY................................................................................................................. 4 

ROLES AND RESPONSIBILITIES ........................................................................... 6 

Roles............................................................................................................................. 6 

Governance .................................................................................................................. 7 

PRIORITIES AND COSTS ......................................................................................... 7 

Priorities ....................................................................................................................... 7 

Costs............................................................................................................................. 8 

IMPLEMENTATION .................................................................................................. 9 

Industry policy ............................................................................................................. 9 

International Cooperation........................................................................................... 10 

Instruments................................................................................................................. 10 

Management of EU programmes ............................................................................... 12 

Regulatory and institutional framework..................................................................... 12 

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INTRODUCTION 

The ‘Space Council’ as defined in the Framework Agreement between the EC and ESA met 
on  25  November  2004,  under  the  joint  chairmanship  of  the  EU  Presidency  and  the 
Chairmanship of the European Space Agency (ESA) Council at Ministerial level and decided 
in its orientations1 that its second meeting would: 

“Recognise  and  identify  priorities  of  the  European  Space  Programme,  including 
estimation of possible costs. 

“Identify the roles and responsibilities of the EU, ESA and other stakeholders of the 
European Space Programme as well as the relevant funding sources. 

“Identify  industrial  policy  principles  and  funding  principles  related  to  the 
implementation of the European Space Programme”. 

This  paper  responds  to  these  orientations.  It  has  been  produced  by  the  EC-ESA  joint 
secretariat.  The  document  has  been  discussed  with  the  Member  States  in  the  High  Level 
Space  Policy  Group.  Furthermore,  discussions  with  industry  have  taken  place  on 
5 April 2005.  Finally,  based  on  the  orientations  of  the  second  Space  Council  scheduled  for  
7  June  2005,  the  joint  secretariat  intends  to  further  develop  this  paper  transforming  the 
preliminary elements into a more concrete proposal for a European Space Policy and related 
Programme  to  be  submitted  to  the  third  Space  Council.  This  final  proposal  will  take  into 
account the results from an open consultation process. 

This European Space Policy will consist of: a strategy outlining the objectives; the definition 
of the roles and responsibilities of the main actors in delivering these objectives; the European 
Space  Programme  identifying  the  priorities  of  the  main  actors;  and  a  set  of  implementing 
principles agreed amongst them. 

1 

Annex II 15000/04 adopted during the 2624th meeting of the COMPETITIVENESS Council of the EU 
(15259/04 paragraph 11) 

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1. 

STRATEGY 

Space activities are strategic for their  contribution to the construction of Europe. Space is a 
tool to serve the interests of the Union, its Member States and its citizens: strategic influence, 
scientific progress, economic growth in the knowledge economy and security. 

The  EU  is  increasingly  a  global  actor.  After  enlargements,  the  EU’s  strategic  influence  has 
increased.  This  requires  reflection,  adaptation  and  creation  of  the  necessary  instruments, 
including space policy. 

The  definition  of  a  European  vision  of  space  and  of  the  priorities  which  result  from  it  is 
prerequisite to further success in this field. European ambitions have clearly to be identified in 
order to allow each actor, institutional or private, to deploy the means required to deliver these 
priorities.  Space  activities  go  beyond  cross-sectoral  policies  like  research  and  innovation. 
Their scope affects many Community policies. 

Space is a strategic industrial sector for growth and employment, and thus part of the Growth 
and  Employment  strategy.  Space  applications  underpin  economic  activity  and  crucial 
government  services,  taking  their  significance  beyond  the  research  environment.  Their 
effectiveness  depends  on  integration  with  terrestrial  systems,  to  exploit  the  comparative 
advantage of each. Their benefits are spread across Europe. New applications markets will be 
driven by innovation, in particular through SMEs. 

Space-based  science  and  applications  play  an  important  role  in  strengthening  the 
competitiveness of the knowledge-based society in Europe. Major successful space research 
missions  under  European  leadership  have  placed  ESA  and  its  Member  States,  the  European 
science community and both manufacturing and services industries at the forefront. Scientific 
and industrial space research is a strong driving force for new technology developments with 
many subsequent applications of benefit to society and the environment. Space is an asset of 
European  integration,  not  only  through  its  technical  capacities  but  also  through  the  global 
adventure and challenge it represents for Europe. 

European security policy is developing rapidly. Space based situation awareness and reaction 
capability  will  play  a  substantial  role  in  this  policy.  The  differentiation  between  defence 
infrastructure  and  internal  security  infrastructure  and  systems  is  becoming  blurred  and 
common  use  needs  to  be  clarified.  The  Council  of  the  EU  has  recognised  that  space  assets 
could contribute both to making the EU more capable in the field of crisis management and to 
fighting  other  security  threats.  It  has  therefore  approved  the  idea  that  identified  and  agreed 
upon  ESDP  requirements  should  be  reflected  in  the  global  EU  space  policy  and  European 
space programme2. 

The EU needs guaranteed access to capabilities in the development, launch and operation of 
space  assets,  secured  through  a  mix  of  independent  capability,  strategic  international 
partnership  and  reliance  on  market  forces.  Europe’s  investment  in  space  infrastructure  and 
services  also  benefits  and  influences  neighbouring  countries,  developing  countries  and 
international partners. The international dimension of space policy thus will increase. 

2 

Council Document 11616/1/04 REV 1, approved November 2004 (Bulletin EU 11-2004 Point 1.6.16) 

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Today, European companies are key actors in the world-wide commercial market of satellite 
manufacturing, launch services and satellite operators; Europe has a sound technology base; 
and  scientific  excellence  has  been  established.  All  this  has  been  achieved  with  public 
expenditure  in  space  representing  six  times  less  than  that  of  the  US.  The  European  space 
sector needs to maintain excellence at an affordable cost. 

Member States expressed their wish to see an increased EU dimension in space policy at the 
first ‘Space Council’ in November 2004. They recognised the possibilities for space activities 
to contribute to European policy objectives in a number of areas3, while the implementation 
should draw on the existing European capabilities, notably the European and National Space 
Agencies. 

Bringing  about  the  full  potential  of  scientific,  technological,  industrial  as  well  as  economic 
and  strategic  benefits  of  space  will  require  sustained  funding  commitments.  In  addition  to 
existing ESA and national funding lines, EU funding will prove crucial. Given the relatively 
limited volume of public funding available for space-related activities when compare to e.g. 
the US, it is essential to make the most efficient use possible of resources and achieve value 
for money. 

The effective division of competences between the EU and its Member States in space-related 
activities  implies  that  financial  and  non-financial  efforts  from  main  European  public  actors 
have to be coordinated and complementary. This means reaching understanding on roles and 
responsibilities and increasing transparency between all actors involved, that is, achieving an 
optimized  planning  and  use  of  resources.  Demonstrating  increasingly  efficient  and  effective 
use of resources will attract and lever further public and private investment. 

Within the roles and responsibilities it takes on, each actor must have the courage to prioritise, 
driven by user needs and requirements. Applications (exploitation of space systems integrated 
with  terrestrial  systems)  will  have  a  prominent  place  in  the  Programme.  This  will  pave  the 
way  for  users  to  contribute  to  generate  the  necessary  funding,  thus  strengthening  the  public 
sector  market.  Additionally,  the  EU  needs  guaranteed  and  competitive  capabilities  in  the 
launch and operation of space assets as part of a European Space Policy. 

The EU must take into account that a large part of the infrastructure which Europe comes to 
rely on is owned by its Member States and not necessarily shared on an EU-level, particularly 
in defence-related systems, that there are gaps which will not be met by current plans and that, 
even  for  existing  and  planned  satellites,  data  interfaces  are  not  always  harmonised.  Galileo 
and  Global  Monitoring  for  Environment  and  Security  (GMES)  are  the  currently  most 
advanced  applications  projects.  Space  is  increasingly  a  key  element  for  key  EU  policies, 
including  transport,  agriculture,  environment,  security  and  information  society,  integrated 
with terrestrial components in monitoring and communications networks and services. 

3 

2624th meeting of the Council of the European Union COMPETITIVENESS (15259/04 paragraph 31) 

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The implementation of the European Space Policy shall be accompanied by the development 
of: 

(a) 

(b) 

(c) 

a sector-specific industrial policy, enabling Europe to ensure the industrial and 
critical technological sources and competences required and, at the same time, 
a globally competitive space industry; 

a  policy  on  international  cooperation  which  meets  both  wider  geopolitical 
objectives  of  European  external  relations  policies,  including  neighbourhood 
policy, and the effective day-to-day operation of space systems; 

instruments  for  investing  in  programmes  and  for  ensuring  their  efficient 
management. 

2. 

ROLES AND RESPONSIBILITIES 

2.1. 

Roles 

Roles  and  responsibilities  within  the  European  Space  Policy  have  to  be  defined  so  as  to 
achieve  clear  and  complementary  task  allocation  and  in  accordance  with  existing  legal 
provisions. For the coming period, the main actors have identified their primary role, taking 
account of the intentions of each other. 

The role of the EU will be: 

•  to define the priorities and requirements for space based systems at the service of the EU’s 

main objectives and policies and citizens’ needs; 

•  to aggregate the political will and user demand in support of these; 

•  to  ensure  the  availability  and  continuity  of  services  supporting  EU  policies  by  funding 
relevant up-stream research activities; purchasing services or securing the deployment and 
operational  phases  of  space  systems,  as  appropriate;  and  in  due  course  stimulating  user 
funding; 

•  to  ensure  integration  of  space-based  systems  with  related  ground  and  in-situ  systems  in 
promoting the development of user-driven application services supporting EU policies; 

•  to create an optimum regulatory environment to facilitate innovation; 

•  to promote coordination of the European position in international cooperation. 

EU  space  activities  will  be  implemented  through  existing  European  capabilities,  notably 
through  the  European,  National  Space  Agencies,  industry,  etc.  The  EU  also  stimulates  the 
development  of  innovative  services  to  exploit  space  systems  which  bring  benefits  across 
Europe, to industry and citizens. 

It will be the role of ESA by decisions of its Member and Co-operating States: 

•  To  support  the  technical  specification  of  the  space  segment  of  space  application 

programmes, taking particular account of EU requirements; 

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•  to develop and implement space technologies, in particular in access to space, science and 

exploration; 

•  to pursue excellence in scientific research in, of and from space; 

•  to advise the EU on space segment requirements to support availability and continuity of 

services; 

•  to implement international cooperation within the ambit of ESA-led programmes. 

The  individual  Member  States  represented  in  the  ‘Space  Council’  will  identify  in  the 
European  Space  Policy  the  rationale  for  programmes  conducted  nationally,  taking  into 
account  the  principle  of  subsidiarity,  and  propose  the  part  these  should  play  in  the  overall 
European Space Programme, where they contribute to its objectives.  

Most  Member  States  of  the  EU  and  of  ESA  are  already  investing  in  operational 
meteorological, climate and environmental monitoring satellites through their membership of 
EUMETSAT  and  could  consider  with  other  EUMETSAT  members  their  role  in  relation  to 
operational GMES services. 

In addition, the European Space Programme will take account of private sector stakeholders. 
Programme  management  will  maximise  the  development  of  products  and  services  to  be 
supplied by the private sector to governmental and commercial customers. In particular, risk-
sharing public private partnerships will be explored wherever possible. All stakeholders will 
be consulted during the setting up and periodic review of the programme. 

2.2. 

Governance 

The  EU  has  to  promote  scientific  and  technical  progress,  industrial  competitiveness  and  the 
implementation  of  its  policies,  based  on  a  European  space  policy.  The  closer  integration 
between  space  activities  and  the  policies  of  the  EU  which  they  may  serve  will  increase  the 
effectiveness  of  both  those  policies  and  of  space  policy.  There  are  many  actors  in  space-
related activities in Europe. Complementarity of their activities has to be ensured. Europe will 
therefore need to optimize its governance scenario for space. 

Actors will use European technical capacities, networked depending on the activity, known as 
‘networks  of  centres’.  ESA  will  coordinate  efforts  to  restructure  space-related  public 
infrastructure,  with  a  view  to  increasing  the  efficiency  of  the  programmes.  The  limits  on 
public financing require the consolidation of financial resources. 

3. 

PRIORITIES AND COSTS 

3.1. 

Priorities 

In compiling the European Space Programme, the main actors will discuss their priorities and, 
in line with the understandings reached on respective responsibilities, take into account each 
other’s proposals before taking final decisions. In this way, the programme will achieve more 
than its component parts could achieve separately.  

Priorities  are  defined  according  to  the  objectives  exploitation  and  exploration  of  space. 
Exploitation  is  user-driven  and  addresses  space  as  a  tool  to  fulfil  policy  objectives. 

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Exploration addresses space-specific objectives and concerns space as a place for discovery, 
including  the  development  of  basic  tools  and  the  improvement  of  scientific  knowledge. 
Further information on the priorities described below is found in Annex B. 

Because  EU  interests  will  be  driven  primarily  by  the  ability  of  space  to  contribute  to  the 
achievement  of  its  policies,  its  activities  will  focus  on  applications.  Needs  related  to  the 
implementation of Community policies represent already a sizeable volume of activities using 
space-derived information. They will expand, in particular as the EU’s role as a global actor 
increases and it relies on independent assessment of global environment, natural resource and 
security concerns. The EU will take into account, in particular, the economic potential of an 
application  (whether  for  commercial  use  or  public  service  use,  including  security),  the 
maturity  of  the  technologies  for  exploitation  and  whether  market  forces  alone  will  provide 
European users with necessary systems. 

The priorities for the EU will therefore be:  

•  Galileo, a user-driven application programme to be delivered and exploited. 

•  GMES, at an earlier stage and requiring the integration of space-based and ground-based 
monitoring  capacities  in  user-driven  operational  application  services.  It  becomes  the 
second  EU  flagship,  capable  of  mobilising  European  actors  and  resources  in  support  of 
environment  and  security  policy.  It  will  be  closely  coordinated  with  the  Group  on  Earth 
Observations  (GEO)  initiative,  designed  to  provide  more  comprehensive  and  sustained 
Earth  observations  at  the  international  level,  to  aid  research  on  the  environment  and 
sustainable development. 

•  Long  term  research  into  satellite  communications  technologies,  in  the  context  of  the 
“i2010”  (European  Information  society  in  2010)  initiative,  remains  significant,  as  part  of 
an integrated approach to information and electronic communications. 

ESA will focus on exploration of space and on the basic tools on which both exploitation and 
exploration of space depend: access to space, scientific knowledge and space technologies. Its 
priorities  will  accordingly  lie  in  securing  a  guaranteed  and  competitive  access  to  space 
through  a  family  of  launchers;  in  pursuing  excellence  in  science  of  space  (the  mandatory 
Science  Programme),  from  space  (Earth  science  through  the  Earth  Observation  Envelope 
Programme) and in space (Life and Physical Sciences on the ISS); in exploiting its know-how 
in the robotic and human exploration of the planetary system; and in developing technologies 
to  maintain  a  competitive  space  industry  equipped  to  meet  Europe’s  future  space  system 
needs. 

Member States in the ‘Space Council’ have been invited to introduce their priorities in order 
to contribute to the preparation of the European Space Programme, taking full account of their 
already envisaged programmatic priorities in the ESA and EU framework. 

3.2. 

Costs 

The costs of these priorities for the EU, ESA and Member State national programmes will be 
identified  in  the  coming  months  and  be  subject  to  normal  budgetary  and  programmatic 
approval  procedures.  In  particular,  this  communication  does  not  prejudge  the  ongoing 
discussions on the EU’s financial perspectives. By coordinating efforts, the actors will ensure 
that new investments bring additional outcomes. 

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4. 

IMPLEMENTATION  

4.1. 

Industry policy 

The space sector is government-driven worldwide, in R&D and infrastructure investment, in 
exploitation  and  in  the  way  it  is  regulated.  The  commercial  market  operates  in 
telecommunications/broadcasting,  some  services  associated  with  navigation  and  Earth 
observation and, in limited respects, launch services. The market is characterized by a limited 
number  of  suppliers,  as  well  as  a  strong  public  demand.  The  space  sector  pursues 
technologically  high  risk  developments  with  long  investment  cycles.  It  requires  capabilities 
for design, development and production. 

An  internationally  competitive  space  industry  is  central  to  the  achievement  of  Europe’s 
economic and political objectives, thus contributing to the Growth and Employment strategy. 
It  employs  a  high  skilled  labour  force,  key  for  a  knowledge  based  economy.  The 
implementation  of  the  European  Space  Policy  requires  an  industry  policy  specific  to  the 
sector,  enabling  Europe  to  maintain  know-how  and  independence  in  critical  technologies  as 
well as competitivity, without distorting competition. 

The  European  space  industry  is  highly  dependent  on  commercial  contracts  open  to  global 
competition. The low level of the European commercial and institutional markets, which are 
also  often  open  to  overseas  suppliers,  make  industry  vulnerable  to  any  market  downturn. 
Policies  have  to  have  regard  to  the  need  to  maintain  strategic  capabilities  and  competences 
within Europe, as well as to ensure productivity. 

Exploitation  of  space  systems,  by  ground  segment  and  service  industries  is  an  even  greater 
source  of  growth  and  employment.  A  user  driven  approach  and  integration  with  other 
technical  infrastructures  will  result  in  the  multiplication  of  commercial  and  public  services 
which are expected to boost the economy and job creation. 

The EU industry policy will incorporate:  

(a) 

(b) 

Regulation  and  standardisation  activities,  including  securing  access  to 
spectrum  and  orbital  resources  and  the  establishment  of  a  suitable  legal 
framework  to  facilitate  and  encourage  the  use  of  space  services  in  all  fields. 
This  will  take  into  account  the  interoperability  of  space  and  ground-based 
systems. 

Procurement  policy,  cost-efficient,  adapted  to  the  new  EU  industrial 
environment and consistent with relevant Community law will be applied. This 
will be a consequence of space systems, integrated with in-situ monitoring and 
other  terrestrial  systems,  becoming  driven  and  eventually  paid  for  by  user 
policies. 

(c)  Measures to improve International Markets. The absence of a level-playing 
field  with  regard  to  foreign  competitors  which  benefit  from  important  and 
protected  institutional  markets  (United  States,  Russia)  is  critical  and  needs 
consideration. 

(d) 

Space  is  a  multiple-use  technology  by  nature.  The  EU  industry  policy  should 
take into account both civilian and security applications. 

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For  ESA,  the  industrial return  rule  applied  since  its  creation  has  been  a  mechanism  for  the 
development  of European  industrial capacities, now being rationalised. The contributions of 
its Member States to programmes take into account the anticipated industrial benefits of the 
initial programme. ESA has introduced a ‘fair contribution’ system, as an adaptation of ‘juste 
retour’, adjusting where possible contributions to match contracts awarded. Nevertheless, the 
impact of the way in which the system is applied has to be assessed and its benefit weighted 
against  its  potential  costs  in  terms  of  competitiveness,  along  with  the  relationship  with 
Member States’ motivation to contribute to programmes. 

4.2. 

International Cooperation 

Space activities are global by nature. They frequently have global objectives and encompass 
heavy and risky expenses  which  cannot be borne by  one investor alone. Typically, they are 
pursued on the basis of mutual interest with no exchange of funds. International Cooperation 
will continue to be a key determinant of the European Space Policy. 

Europe  will  need  to  reinforce  strategies  and  international  initiatives  in  a  number  of  areas, 
including  exploration.  In  a  broad  policy  approach,  Europe  should  further  build  up  its  space 
partnership  with  Russia;  maintain  and  develop  its  longstanding  cooperation  with  the  United 
States in the fields of science and applications; initiate or extend cooperation with the rapidly 
emerging  space  powers;  and  strengthen  Europe’s  role  in  international  space-related 
organisations and initiatives. 

In line with the objectives of the European Neighbourhood Policy, space cooperation will be 
encouraged  in  support  of  economic  and  social  development  of  Eastern  and  Southern 
neighbouring countries. 

Relationships  with  developing  countries  are  strengthening,  through  EU,  ESA,  national  and 
EUMETSAT programmes, with the growing involvement of those in Europe responsible for 
development  policy.  These  are  in  addition  to  the  agreements  reached  with  countries  on  the 
operation of the ground segment within space programmes. 

Galileo has also a strong international cooperation dimension and requires global partners for 
developing  its  full  potential.  Galileo  will  not  just  be  the  result  of  cooperation  between 
European  countries,  but  it  will  embrace  the  involvement  of  a  rapidly  increasing  number  of 
other  countries.  Cooperation  with  those  countries  will  result  in  a  better  technical 
harmonisation  with  the  other  satellite  navigation  systems  in  the  world,  strengthen  the 
worldwide infrastructure needed to operate the system, and develop and stimulate the markets 
worldwide.  Agreements  have  been  signed  with  the  US,  China  and  with  Israel.  Discussions 
have  been  initiated  with  at  least  ten  other  countries.  GMES  will  be  the  main  European 
contribution to the Global Earth Observation System of Systems (GEOSS), coordinating with 
those  of  EUMETSAT  and  of  the  Member  States  which  are  in  the  GEO.  In  the  context  of 
communication  systems,  international  cooperation  activities  will  be  pursued  to  extend  the 
benefit of satellite services and applications to third countries. 

4.3. 

Instruments 

The EU will contribute to the financing of space-related activities through different sources. 
The  deployment  and  operations  of  Galileo  are  being  implemented  under  a  public-private 
partnership  scheme  (concession)  for  which  the  public  financing  will  come  from  a  specific 
budget  line  in  the  frame  of  the  trans-European  network  policy.  The  7th  RTD  Framework 

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Programme  (FP7)  will  also  cover  applications  and  pre-developments  of  second  generation 
Galileo technologies. 

The “Security and Space” thematic priority under the Specific Programme “Cooperation” of 
the  FP7  is  anticipated  to  be  a  significant  source  of  funds  for  the  new  flagship,  GMES.  The 
initial  operational  services  will  be  implemented  in  a  step-wise  approach,  addressing  all 
components  of  GMES,  starting  with  a  limited  number  of  fast-track  services,  on  the  base  of 
consolidated priorities. The selection of these fast-tracks will first be based on the maturity of 
the demand expressed by users. Needs may be regrouped and integrated in common services. 
GMES will also contribute to, and benefit from, the complementary proposal for a directive, 
INSPIRE4. 

GMES will be the main European contribution to the global 10-Year Implementation Plan for 
a  Global  Earth  Observation  System  of  Systems  (GEOSS).  GEOSS  will  be  a  distributed 
system  of  Earth  observation  systems  building  on  current  cooperation  efforts.  GMES  will 
benefit  from  the  integration  and  developments  of  in-situ  observation  research  activities  of 
GEOSS  that  will  be  supported  by  the  “Environment  (including  Climate  change)”  thematic 
priority of FP7. It will also benefit from data integration and management activities that will 
be  undertaken  by  the  “Information  and  Communications  Technologies”  thematic  priority  of 
FP7. 

The  “Information  Communications  Technologies”  thematic  priority  of  FP7  will  continue  to 
cover innovative satellite communications and location-based systems and services. 

Additional  financing  for  space-related  activities  could  come  from  other  horizontal  FP7 
Specific  Programmes,  such  as  Capacities  (e.g.  Research  Infrastructures)  and  “People” 
depending  upon  competing  demands.  The  EU  will  also  contribute  from  the  FP7  thematic 
priority  on  “Security  and  Space”  to  aspects  of  those  ESA-led  programmes  which  constitute 
the foundations of a coherent programme, namely in the areas of space exploration, access to 
space and science, focusing on strengthening upstream research. Finally some financing will 
come  from  other  sources  such  as  the  Competitiveness  and  Innovation  Programme,  for 
example  for  critical  technologies,  technology  transfer  and  specific  SME  measures,  data 
archiving and dissemination services. 

The direct action part of the FP7 implemented by JRC also foresees provision for support to a 
range  of  user  policies  which  require  space-based  services.  These  include,  contributions  to 
security,  agriculture,  environment,  development  aid,  global  change  and  management  of 
natural  resources.  The  EU  Satellite  Centre,  the  services  of  the  European  Commission  and 
ESA  should  intensify  their  collaboration  aiming  at  further  increasing  synergies  and  thus 
contributing to the nucleus of a European Earth observation system. 

ESA  programmes  can  be  classified  in  two  categories:  mandatory  activities,  and  optional 
activities. Mandatory activities, which encompass mostly the Space Science programme and 
certain basic technology activities, represent about 20% of the ESA yearly budget. Their level 
is  determined  by  a  five  year  Level  of  Resources.  Science  missions  are  evaluated  by  peer 
review and approved by ESA Member States. 

4 

INSPIRE  intends  to  create  a  European  spatial  information  infrastructure  that  delivers  integrated  spatial  information  services. 
These services should allow to access spatial information from a wide range of sources from the local level to the global level. 

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As the name implies, ESA Member States choose whether to participate in optional activities 
and  at  what  level.  Related  decisions  are  taken  only  by  participating  States.  They  typically 
subscribe  in  accordance  with  the  anticipated  ability  of  their  industrial  interests  to  secure 
development  contracts  in  the  programme,  with  provision  to  adjust  contributions  (within 
limits) to reflect the actual outcome of the tender process – ‘fair contribution’. 

4.4.  Management of EU programmes 

The  GALILEO  Joint  Undertaking  ensures  the  management  of  the  programme  during  the 
development phase including the selection procedure of the concessionaire. The management 
of the Community contribution to the GALILEO programme will be the responsibility of the 
European GNSS Supervisory Authority. The construction and management of the system will 
be  conceded  to  a  private  consortium  for  duration  of  about  20  years.  The  Galileo  Security 
Board  (GBS)  is  currently  responsible  for  security-related  issues.  It  will  be  replaced  by  the 
Centre for Security and Safety, within the Supervisory Authority. 

The  GMES  initiative  will  address  the  development  of  operational  services,  securing  the 
necessary ground and space infrastructure, identifying gaps and with a strong focus on future 
user  needs.  A  dialogue  between  users  and  technology  providers  will  be  established.  It  will 
have: 

•  to  evolve  from  a  loose  collection  of  projects  and  incomplete  information  collection 
networks, taking into account the pilot phases already identified in the GMES initial phase; 

•  to  become  a  coordinated  set  of  activities  responding  to  user  needs  and  leading  to  initial 
operational services, based on European and global monitoring networks and meeting strict 
validation criteria; 

•  to embrace assets of individual Member States; 

•  to ensure cooperation and full complementarity with developments in the GEO; and 

•  to undergo a significant increase in committed annual resources, supported by an adequate 

communication strategy. 

An efficient management structure has to be set up to take GMES through this transition. As 
stated  in  the  Commission  Communication  ‘Building  the  European  Research  Area  of 
knowledge  for  growth’5,  “Joint  Technology  Initiatives,  which  may  take  the  form  of  joint 
undertakings,  are  envisaged  in  the  fields  of  […]  global  monitoring  for  environment  and 
security”.  A  Joint  Technology  Initiative  may  be  decided  on  the  basis  of  Article  171  of  the 
Treaty. The most appropriate means to achieve the objectives will have to be selected.  

Satellite  communications  developments  will  be 
appropriate. 

implemented 

jointly  with  ESA,  as 

4.5. 

Regulatory and institutional framework 

The necessary implementation measures to attain the objectives of the European Space Policy 
will  be  taken  and  will  be  established  by  adequate  legal  instruments.  Thus  there  will  be  the 

5 

COM(2005)118 final, 6 April 2005 

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opportunity  for  the  current  principles  of  governance  in  space  in  Europe  to  evolve,  while 
securing  long  term  political  recognition  for  the  strategic  benefits  of  space,  and  hence  to 
maintain ESA as Europe’s pole of excellence. 

The legal framework should move in parallel to the institutional evolution. Several scenarios 
can be envisaged. These examples are not exhaustive, nor mutually exclusive: 

(a) 

(b) 

(c) 

(d) 

(e) 

The  EU  might  take  substantially  more  responsibility  for  (i)  identifying  and 
bringing  together  user  needs,  (ii)  aggregating  the  political  will  in  support  of 
these,  (iii)  ensuring  the  necessary  technology  developments  to  meet  these 
needs  and  (iv)  ensuring  the  availability  and  continuity  of  services  to  support 
them  and  their  related  policies.  EU  might  also  increase  its  investments  in 
public  space-related  and  terrestrial  infrastructures  (including  access  to  space) 
required for the deployment of integrated operational services; 

ESA might reflect how to respond to the development of its relationship with 
an enlarged, and still enlarging, EU, in the light of the duration of the EC-ESA 
Framework Agreement; 

The EU might need to reflect on whether it has the appropriate mechanisms for 
managing its space activities; 

Individual  Member  States  and  their  National  Space  Agencies  might  reflect 
whether  there  would  be  value  to  increase  cooperation  through  networks  of 
technical centres with European and national counterparts; and 

Other organisations, for example with operational roles in space, might reflect 
on their long-term relationship with their Member States and the contribution 
they will bring to the European Space Programme. 

There needs  to  be a  full assessment of these scenarios and of the impact of current policies 
and  practices  on  competitiveness.  Such  an  assessment  should  be  in-depth  and  objective  and 
consider  all  aspects,  including  the  propensity  of  industry  and  Member  States  to  invest,  as 
Europe moves to implement its first European Space Programme and beyond. The assessment 
should take account of known key decision points in the European calendar. 

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