Communication from the Commission to the Council and the European Parliament - European Space Policy {SEC(2007) 504} {SEC(2007) 505} {SEC(2007) 506}
Date: 2007-04-26
Institutions: European Commission
Subjects: space policy, space research, space technology, trade policy

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 26.4.2007 
COM(2007) 212 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL  
AND THE EUROPEAN PARLIAMENT 

European Space Policy 

{SEC(2007) 504} 
{SEC(2007) 505} 
{SEC(2007) 506} 

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TABLE OF CONTENTS 

1. 

2. 

3. 

3.1. 

3.2. 

3.3. 

3.4. 

4. 

4.1. 

4.2. 

4.3. 

5. 

5.1. 

5.2. 

6. 

6.1. 

6.2. 

6.3. 

Introduction .................................................................................................................. 3 

Strategic mission of the European Space Policy.......................................................... 4 

Applications ................................................................................................................. 5 

Satellite navigation....................................................................................................... 5 

Earth observation ......................................................................................................... 6 

Satellite communications ............................................................................................. 6 

Security and defence .................................................................................................... 7 

Foundations .................................................................................................................. 7 

Science and Technology .............................................................................................. 7 

International Space Station (ISS) and Exploration of the Solar System...................... 8 

Access to space ............................................................................................................ 9 

A competitive European space industry....................................................................... 9 

The regulatory framework.......................................................................................... 10 

Public investment in space ......................................................................................... 10 

Governance ................................................................................................................ 11 

Institutional framework.............................................................................................. 11 

Coordinated European Space Programme ................................................................. 12 

International relations................................................................................................. 12 

Annex 1: Key actions ............................................................................................................... 13 

Annex 2: Glossary.................................................................................................................... 15 

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1. 

INTRODUCTION 

''In the middle of the 20th century, we saw our planet from space for the first time. Historians 
may eventually find that this vision had a greater impact on thought than did the Copernican 
revolution of the 16th century, which upset the human self-image by revealing that the Earth 
is not the centre of the Universe. From Space, we see a small and fragile ball dominated not 
by human activity and edifice but by a pattern of clouds, oceans, greenery and soils''1.  

Space  helps  us  understand  the  fragility  of  our  planetary  systems  and  their  complex 
interrelation. It also gives us the tools to address many other challenges of the 21st century. It 
is essential and urgent to make effective use of these tools in the implementation of a  wide 
range  of  policies.  Space-based  systems  provide  improved  weather  forecasts,  satellite 
broadcasting  and  advanced  navigation  services;  they  open  up  new  opportunities  in  tele-
education  and  tele-medicine.  They  are  critical  to  key  areas  of  the  economy:  communication 
systems,  electrical  power  grids,  and  financial  networks  all  rely  on  satellite  timing  for 
synchronisation.  Satellite  communications  will  bring  benefits  for  every  citizen  by  providing 
cost-effective solutions for services such as high definition TV, broadband or mobile TV, in 
particular for remote and rural areas. Space also contributes to the knowledge-based society, 
providing the tools for understanding our planet, its origins, its environment, the Solar System 
and the Universe. Space can contribute to European cohesion and identity, reaching citizens 
across  all  countries.  It  can  also  provide  valuable  support  to  European  external  policies, 
particularly humanitarian aid and development policy. 

Space  in  Europe  has  been  successfully  developed  over  30  years  in  the  framework  of  ESA. 
However, at a time when new powers are emerging  with  high ambitions and  capabilities as 
regards  space,  Europe  cannot  afford  to  lose  out  on  securing  the  potential  economic  and 
strategic benefits of space for its citizens. Europe must make further efforts to preserve and 
improve its global competitive position. It must remain a leader in space systems and hence 
an indispensable international partner providing first class contributions to global initiatives. 

With  the  arrival  of  the  new  millennium,  the  need  to  establish  a  comprehensive  European 
Space Policy to respond to these challenges has been widely recognised by the EU, ESA, and 
their  Member  States  it  has  been  endorsed  by  EU  Heads  of  State  and  Government  and  was 
affirmed at the 2nd meeting of the Space Council in 2005.The European Space Policy should 
allow  the  European  Union,  the  European  Space  Agency  (ESA)  and  their  Member  States  to 
increase coordination of  their activities  and programmes, and organise  their respective roles 
relating to space, providing a more flexible framework to facilitate Community investment in 
space  activities.  This  is  equally  true  in  the  areas  of  security  and  defence  space  programmes 
and in the integration of space policy into a range of the EU's external relationships. 

Important  steps  have  been  taken  to  strengthen  the  relationship  between  ESA  and  EU, 
including  the  establishment  of  the  EC-ESA  Framework  Agreement2  and  launching  the 
European flagship projects Galileo and GMES3. 

1 
2 

3 

Our Common Future: Report of the World Commission on Environment and Development, UN 1987 
Council Decision on the signing of the Framework Agreement between the European Community and 
the European Space Agency (12858/03 RECH 152 7 October 2003) 
Global Monitoring for Environment and Security 

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The Commission set out the preliminary elements of the space policy in its communication of 
May 20054. The Competitiveness Council of the EU and the Ministerial Council of the ESA, 
meeting in June 2005 under the Framework Agreement as the 'Space Council', responded by 
setting  out  guidance  on  the  content  and  nature  of  the  European  Space  Policy  and  the 
accompanying preliminary elements of a European Space Programme. 

Accordingly,  this  document  has  been  compiled  in  consultation  with  the  Member  States  of 
both organisations and other interested stakeholders. This first ever European Space Policy is 
a joint document of the European Commission and the Director General of the ESA. 

2. 

STRATEGIC MISSION OF THE EUROPEAN SPACE POLICY 

The development of a truly European Space Policy is a strategic choice for Europe, if it does 
not  want  to  become  irrelevant.  Space  systems  are  strategic  assets  demonstrating 
independence and the readiness to assume global responsibilities. Initially developed as 
defence  or  scientific  projects,  they  now  also  provide  commercial  infrastructures  on 
which important sectors of the economy depend and which are relevant in the daily life 
of citizens. However the space sector is confronted with high technological and financial 
risks and requires strategic investment decisions.  

Europe needs an effective space policy to enable it to exert global leadership in selected 
policy areas in accordance with European interests and values. To fulfil such roles the EU 
increasingly  relies  on  autonomous  decision-making,  based  on  space-based  information  and 
communication systems. Independent access to space capabilities is therefore a strategic asset 
for Europe. 

The space sector is a driver and enabler for the Partnership for Growth and Jobs. Space is a 
€90bn  market  worldwide,  growing  at  7 per  cent  per  annum.  European  companies  secure 
40 per  cent  of  the  commercial  markets  for  satellite  manufacturing,  launch  and  satellite 
services.  Space  also  offers  great  scope  for  high  technology  innovation  in  selected  areas 
opening the possibility for the development of lead markets.  

To  respond  to  the  challenges  described  above,  the  strategic  mission  of  a  European  space 
policy will be based on the peaceful exploitation of Outer Space by all states and will seek: 

•  to develop and exploit space applications serving Europe's public policy objectives and the 
needs  of  European  enterprises  and  citizens,  including  in  the  field  of  environment, 
development and global climate change; 

•  to meet Europe's security and defence needs as regards space; 

•  to ensure a strong and competitive space industry which fosters innovation, growth and the 

development and delivery of sustainable, high quality, cost-effective services; 

•  to contribute to the knowledge-based society by investing strongly in space-based science, 

and playing a significant role in the international exploration endeavour; 

4 

European Space Policy - Preliminary Elements COM(2005) 208 final, 23.05.2005 

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•  to secure unrestricted access to new and critical technologies, systems and capabilities in 

order to ensure independent European space applications. 

To  achieve  this  strategic  mission  will  require  the  EU,  ESA  and  their  Member  States  to 
improve the efficiency and effectiveness of their space activities by taking significant new 
steps in:  

•  establishing  a  European  Space  Programme  and  the  coordination  of  national  and 

European level space activities , with a user-led focus; 

•  increasing  synergy  between  defence  and  civil  space  programmes  and  technologies, 

having regard to institutional competencies; and 

•  developing a joint international relations strategy in space. 

3. 

APPLICATIONS 

The key to securing the maximum political, economic and social return from investment 
in  space  technologies  lies  in  the  development  and  exploitation  of  space  applications, 
meeting the objectives of EU policies and the needs of European enterprises and citizens. 
The evolution of European user needs requires the development of integrated space systems, 
seamlessly linking satellite and terrestrial telecommunications, positioning and monitoring in 
areas of strategic, economic and societal value.  

3.1. 

Satellite navigation  

Europe is committed to establishing a sustainable global civil navigation satellite system 
under the control of the EU. Global markets for satellite navigation equipment and services 
are  estimated  to  reach  €400bn  by  2025.  Following  the  establishment  of  the  EGNOS5, 
GALILEO  has  been  developed  as  a  joint  initiative  of  the  EU  and  ESA.  Being  a  strategic 
infrastructure6,  GALILEO  incorporates  in  its  management  structures  all  the  necessary 
instruments to ensure the security of the system.  

Governance  structures  will  have  to  be  adapted  to  ensure  the  best  value  for  money  in  the 
deployment  and  operation  of  GALILEO,  and  the  most  effective  involvement  of  both  public 
and  private  partners.  Many  non-EU  countries  are  seeking  to  become  partners  in  the 
programme. Collaboration will be based on the principles of non-discrimination and loyal co-
operation. 

Technological  support  for  GALILEO  will  continue  through  applications  research  and  a 
coherent system evolution programme. In order to provide safe and guaranteed applications, 
the  necessary  framework  in  terms  of  certified  services  and  products,  global  standards  and 
interference monitoring capabilities has to be implemented. 

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European Geostationary Navigation Overlay Service 
European Council, Laeken, 14 December 2001 

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 It is essential to ensure that GALILEO will be deployed without further delay and that 
it  strives  to  provide  safe  and  state-of-the-art  solutions.  GALILEO  will  grant  fair  and 
non-discriminatory access and the continuity and safety of service. 

3.2. 

Earth observation 

Autonomous access to information relating to environment, climate change and security 
is  of  strategic  importance  for  Europe.  Substantial  economic  and  social  benefits  are 
associated  with  improved  use  of  Earth  observation-derived  information.  It  can  be  used  to 
manage natural resources and to support timely preparation by public authorities in order to 
reduce  the  effects  of  adverse  weather  conditions  and  climate  change,  as  well  as  for  crisis 
management. 

GMES  will  improve  Europe’s  monitoring  and  assessment  capacity  in  environment 
policy and contribute to addressing security needs. It will facilitate decision making at all 
levels of government by improving the evidence base in policy areas across all three pillars of 
the  EU  Treaty.  Monitoring  is  also  a  key  element  of  the  fight  against  climate  change.  The 
Global  Earth  Observation  System  of  Systems  (GEOSS)  aims  at  global  synergy  of  Earth 
observations  to  which  GMES  represents  the  main  European  contribution.  The  scope  of  the 
mutual  contribution  between  GMES  and  GEOSS  will  be  embedded  in  the  GMES 
international strategy.  

The Commission has set out a strategy for delivering GMES7 according to the Council 
mandate8.  This  will  optimise  planned  European  space  and  in-situ  infrastructure  and  fill 
identified gaps to respond to the requirements of service users. Decisions already taken start 
the process of securing the availability of the space component, to be co-funded by ESA and 
the  EU  and  coordinated  and  implemented  by  ESA.  Europe  will  in  parallel  enhance  its 
meteorological infrastructures and services. 

For  GMES  to  become  fully  operational,  the  EU  and  Member  States  will  establish 
infrastructures  and 
appropriate 
management arrangements to ensure sustainable services responding to identified user 
needs. 

funding  arrangements,  policies,  operational 

3.3. 

Satellite communications 

Satellite  communications,  driven  by  private  sector  investments,  most  notably  from  the 
broadcast and telecommunications sector, represent 40 % of the current revenues of the 
European  space  sector.  They  are  an 
integral  part  of  the  Information  and 
Communication Technologies, such as the modernisation programme of the Air Traffic 
Management  in  Europe.  Cost-effective  communications  systems  rely  on  a  complementary 
mixture  of  satellite  and  terrestrial  networks.  Operational  applications  are  market  driven. 
European  companies  are  successful  in  global  markets  for  both  fixed  and  mobile  satellite 
services,  which  exhibit  high  value-added  characteristics,  strong  productivity  growth  and 
strong  profit  margins.  Many  new  applications  will  emerge  in  the  coming  years,  associated 
with high risk and long-term investment. 

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‘Global  Monitoring  for  Environment  and  Security  (GMES):  From  Concept  to  Reality’  -  COM(2005) 
565 
Council Resolution 2001/C 350/02 (13.11.2001) 

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European  policies  will  facilitate  the  introduction  of  innovative  services,  including 
aggregating demand in remote and rural areas in order to permit satellite services to be 
as viable as terrestrial solutions. The space industry's technical capabilities need to keep 
pace with global competitors, many of which are underpinned by defence investments. 
The  EU  will  invest  in  advancing  technology  developments  to  achieve  convergence  and 
interoperability between terrestrial and satellite-based networking sectors. 

3.4. 

Security and defence 

The  EU  Security  Strategy9  highlighted  that  Europe  faces  constantly  evolving  threats 
which are more diverse, less visible and less predictable. The Commission has identified 
security of EU citizens as one of the three main objectives in its work programme. To tackle 
these constantly evolving threats requires a mixture of civilian and military solutions. Space 
assets provide a significant contribution to this. 

The  EU  approach  to  crisis  management  emphasises  the  synergy  between  civilian  and 
military  actors.  Space  system  needs  for  planning  and  conducting  civilian  and  military 
Crisis  Management  Operations  overlap.  Many  civilian  programmes  have  a  multiple-use 
capacity  and  planned  systems  such  as  GALILEO  and  GMES  may  have  military  users.  The 
Member  States  in  the  Council10  have  identified  Europe's  generic  space  system  needs  for 
military  operations  and  stressed  the  necessary  interoperability  between  civilian  and  military 
users.11 Military capability will continue within the remit of Member States. This should not 
prevent  them  from  achieving  the  best  level  of  capability,  within  limits  acceptable  to  their 
national  sovereignty  and  essential  security  interests.  Sharing  and  pooling  the  resources  of 
European  civilian  and  military  space  programmes,  drawing  on  multiple  use  technology  and 
common standards, would allow more cost-effective solutions. 

The  economy  and  security  of  Europe  and  its  citizens  are  increasingly  dependent  on 
space-based  capabilities  which  must  be  protected  against  disruption.  Within  the 
framework  of  existing  EU  principles  and  institutional  competencies,  Europe  will 
substantially improve coordination between its defence and civilian space programmes, 
while retaining primary end-user responsibility for funding. 

4. 

FOUNDATIONS  

4.1. 

Science and Technology 

through 

The EU, ESA and their Member States have to continue to invest strongly to maintain 
leadership in space-based science. In this way it will constantly stretch the  boundaries of 
industrial 
technology,  feed 
competitiveness.  European  scientists  have  identified  their  current  priorities.  For  the 
science of space, they are set out in ESA’s ‘Cosmic Vision’ and focus on the conditions for 
life  and  planetary  formation  and  the  origins  and  fundamental  laws  of  the  Universe.  For 
science  in  space,  priorities  are  basic  and  applied  research  in  disciplines  such  as  fluid  and 
combustion  physics,  materials  sciences  and  human  physiology.  Priorities  for  Earth  science 

to  applications  and  so  directly  contribute 

to 

9 
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11 

A secure Europe in a better world – The European Security Strategy 
'ESDP and Space'  
European Council Committee for Civilian Crisis Management. 

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have been agreed in ESA's “Living Planet” programme and FP7 and include polar ice, ocean 
circulation  and  the  physics  of  the  Earth's  interior.  Science  frequently  involves  international 
cooperation,  leading  later  to  more  strategic  relationships.  In  addition,  strengthening  the 
foundations of space science and technology has been included in EU's FP7. 

Europe  will  be  ambitious  in  terms  of  innovation,  identifying  critical  technologies  and 
guaranteeing  their  funding.  Technology  transfers  must  be  closely  monitored  both  for 
security and commercial reasons. Synergies with non-space technologies will be maximised, 
with  appropriate  support  for  space  qualification  of  new  technologies.  New  technology 
developments  may  provide  important  niche  opportunities  for  EU  Member  State  industries, 
notably  in  Central  and  Eastern  Europe.  The  ESA-led  process  of  harmonising  technology 
development programmes provides transparency on research across Europe and paves the way 
for improved coordination. The EU will engage in complementary activities through FP7. 

The maintenance and development of know-how across the European space industry is 
essential if systems are to be developed based on European policy requirements and industry 
is to compete successfully. Space technology is institutionally driven. Countries such as China 
and  India  are  rapidly  mastering  space  technology,  becoming  challenging  competitors  on  the 
commercial market. The goal of Europe’s technology development strategy will be to ensure 
sustained and coordinated investment while achieving a better balance between technological 
independence, strategic cooperation and reliance on market forces.  

Europe faces a severe reduction in the interest in Science, Engineering and Technology 
(SET) careers among young people as well as to pursue SET careers. Without a sufficient 
quantity and quality of human capital in SET related areas, the knowledge-based economy in 
Europe  will  be  jeopardised.  Education  programmes  and  creative  learning  environments 
developed around cutting edge space projects inspire and motivate students to pursue careers 
in SET12, as well as widening the understanding of science among the public.  

Space-based activities are strongly evocative of frontier technology and have the potential to 
attract the interest of the younger generations. The Commission is committed to increase the 
interest  of  young  people  in  SET.  To  this  end,  recommendations  are  discussed  in  the  High 
Level  Group  on  Science.  The  ESA  ‘European  Space  Education  Resource  Office’  (ESERO) 
project  is  already  working  with  educational  experts  in  several  Member  States  to  supply  the 
specific  educational  needs  of  the  region  concerned  and  to  get  easy  access  to  the  already-
existing national networks. Europe will build further on this and other links with the education 
sector. 

The pursuit of world class science is crucial to expand the knowledge base; to develop 
new  technologies  and  applications;  and  to  attract  young  people  into  science  and 
engineering. 

4.2. 

International Space Station (ISS) and Exploration of the Solar System 

The international exploration endeavour has a significant political appeal in a vision of 
European  identity,  due  to  its  potential  to  contribute  to  the  creation  of  new  knowledge,  to 
foster innovation and to engage new companies and research organisations in space activities. 

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'Pupils’ and Parents’ Views of the School Science Curriculum', King's College London, January 2000 

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The US, China and Russia have moved forward with ambitious space exploration plans. Now, 
Europe needs to urgently respond to these challenges. 

Human  spaceflight  and  exploration  are  emblematic  aspects  of  space.  The  ISS  offers 
unique  opportunities  for  fundamental  and  applied  research  using  the  conditions  available  in 
space. The European participation with the Columbus laboratory module and the Automated 
Transfer Vehicle and the presence of European crew secures a visible European role in this 
venture.  The  knowledge  and  insights  gained  on  the  ISS  are  translated  into  innovative 
applications for the benefit of people on Earth, e.g. for the development of new materials and 
new therapies in medicine, and in the preparation for future planetary missions. 

Europe needs to achieve optimum utilisation of the International Space Station; prepare 
for a visible, affordable and robust exploration programme, involving the development 
and  demonstration  of  innovative  technologies  and  capabilities  and  the  robotic 
exploration  of  Mars,  to  search  for  evidence  of  life  and  understand  the  planet's 
habitability. 

4.3. 

Access to space 

Access  to  space  requires  stable  political  support  for  a  sustained  European  launcher 
programme,  ensuring  availability  of  the  related  ground  infrastructure.  Investments  will  be 
made  to  improve  existing  launchers  and  develop  new  launcher  systems,  based  on  an 
evaluation of the long-term options for strategic cooperation. Continued commercial success 
in world markets is crucial to ensure affordability. But a relatively small and open domestic 
institutional market exposes the European launcher sector to severe peaks and slumps in the 
commercial market, putting the industry at risk. 

Europe  needs  to  take  advantage  in  a  coherent  way  of  the  launcher  assets  under  its 
control. The decision concerning launch services for ESA missions, taken during ESA’s 2005 
Ministerial Council, was an important step. The European Space Policy will stimulate demand 
for applications satellites and launch services. Progressively, a flexible range of launchers will 
be  made  available  through  a  single  operator  from  the  European  spaceport  Guyana  Space 
Centre,  with  the  ESA-developed  Vega  launcher  and  the  Russian  Soyuz  launcher  joining 
Ariane 5. 

Independent  and  cost-effective  access  to  space  needs  to  remain  a  strategic  goal  for 
Europe, which will look first to its own launcher resources when defining and executing 
European programmes, based on cost-efficiency, reliability and mission suitability. 

5. 

A COMPETITIVE EUROPEAN SPACE INDUSTRY 

A  competitive  European  space  industry  is  of  strategic  importance.  Europe  needs  strong  and 
globally competitive companies in the development and manufacture of space systems and the 
provision  of  satellite  capacity  and  value-added  services.  To  achieve  this  goal  it  is  essential 
that European public policy actors define clear policy objectives in space activities and invest 
public  funds  to  achieve  them.  This  public  investment  could  help  create  a  critical  mass 
stimulating  further  public  and  private  investment.  A  focused  industry  policy  for  space  will 
also  stimulate  companies  competing  throughout  the  full  value  chain  and  help  industry  to 
manage  the  highly  cyclical  variations  in  demand  typical  of  the  space  sector,  invest  in 
technology and ensure the maintenance of critical capabilities.  

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An  effective  industry  policy  needs  to  cover  many  factors  including  regulation,  public 
procurement and R&D.  

5.1. 

The regulatory framework 

Several key factors determine the regulatory framework specific to the space sector: 

•  Standards  give  clarity  regarding  future  markets,  as  a  basis  for  investment.  Where 
public  authorities  are  the  major  users  of  space,  they  have  to  drive  the  development  of 
standards. 

•  Full  interoperability  between  national  and  European  space  and  ground-based 
systems is urgent, if Europe is to take maximum advantage of its different space assets. 
Interoperability and standardisation are intertwined issues. 

•  Access policies, in particular data access policies, will be developed, in keeping with the 
INSPIRE directive, to facilitate acquisition and exploitation by service providers and users, 
while  at  the  same  time  guaranteeing  the  control  of  the  dissemination  of  sensitive 
information through clear protocols. 

•  Export  and  import  controls  are  intrinsic  to  a  sensitive  sector  but  should  not 

unintentionally hinder the flow of technologies. 

•  Pan-European licensing of services, spectrum and content is needed, as well as a more 
flexible,  market-based  regime  for  allocating  radio  spectrum.  An  active  approach  by 
Member States to reallocating under-utilised spectrum that is currently allocated for public 
services  and  the  military  would  permit  demands  between  space-based  and  terrestrial 
infrastructures  to  be  met  in  a  more  balanced  way  and  allow  safeguarding  of  scientific 
frequency bands13. 

5.2. 

Public investment in space 

Space  is  a  lead  market  in  which  public  authorities  can  create  conditions  for  industry-led 
innovation.14 The efficient and cost-effective aggregation of public policy needs for space 
is  essential  and  urgent  to  secure  the  potential  economic  benefits  and  attract  further  public 
and private investment. Intergovernmental and European Union funding lines will each prove 
crucial, as will national and multilateral programmes. Given its relatively limited investment 
in  space,  Europe  is  more  than  ever  challenged  to  avoid  unsustainable  duplication.  Non-
discriminatory access to publicly funded infrastructure must also be ensured. 

SMEs  are  crucial  to  innovation  and  to  exploring  new  market  opportunities.  They 
perform a strong role in the development of new applications and services. Both EU and ESA 
Programmes successfully encourage participation by SMEs. 

The EC is increasing its expenditure on space. During 2007-2013, it will dedicate over €2.8bn 
to space applications and activities. Community funds, including those managed through ESA 
programmes, are governed by the EU Financial Regulation on the basis of open competition. 

13 
14 

The Radio Spectrum Policy Group Report and Opinion of 25 October 2006  
‘Putting knowledge into practice: A broad-based innovation strategy for the EU’ (COM(2006) 502) 

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Member  States  invest  a  little  under  €3bn  annually  through  ESA,  and  a  similar  amount  in 
national  programmes.  ESA  programmes  are  governed  by  the  industrial  policy  principles 
established  in  the  ESA  Convention,  in  particular  by  exploiting  competitive  bidding  while 
distributing industrial contracts in proportion to funding from Member States (“fair return”). 
This provides governments an incentive to invest  in European R&D  space  programmes and 
may contribute to maintaining competing suppliers within Europe, limiting the risk associated 
with  the  emergence  of  monopolies.  It  has  enabled  the  leveraging  of  funds,  competitive 
industries and the convergence of national priorities. It has, however, limited rationalisation of 
facilities within prime contractors and limited specialisation among suppliers of sub-systems.  

With  the  objective  to  improve  further  the  efficiency,  specialisation  and  competitiveness  of 
European  industry  and  after  an  assessment  of  the  most  recent  reform,  the  process  of 
introducing  additional  flexibility  into  the  ESA  rules  should  continue  to  develop,  taking  into 
account in particular the anticipated expansion of ESA's membership. 

6. 

GOVERNANCE 

6.1. 

Institutional framework 

The EU will use its full potential to lead in identifying and bringing together user needs 
and to aggregate the political will in support of these and of wider policy objectives. It will 
ensure  the  availability  and  continuity  of  operational  services  supporting  its  policies.  It  will 
contribute  to  the  development,  deployment  and  operation  of  corresponding  European  space 
infrastructure, while making maximum use of existing and planned assets available to Europe, 
including  those  of  EUMETSAT15.  Community  investment  has  been  made  under  existing 
competences and has been additional to that of the Member States and this should continue. 
The  newer  EU  members  are  keen  to  expand  the  benefits  of  space  to  their  societies  and 
economies; several are applying for full membership of ESA. 

ESA  and  its  Member  and  Co-operating  States  will  develop  space  technologies  and 
systems, supporting innovation and global competitiveness and preparing for the future. 
Their  activities  will  focus  on  exploration  of  space  and  on  the  basic  tools:  access  to  space, 
scientific knowledge and technologies. They will pursue excellence in science and support the 
technological preparation and validation of space systems responding to user needs, including 
those of EU policies. Accordingly, for implementing the R&D space component programmes 
which it funds,  the  EU  will  rely  on  the  management and technical  expertise of ESA, which 
will coordinate other relevant agencies and entities in Europe. 

The different approaches, separate legal processes and divergent membership of the EU 
and  ESA  can  lead  to  cumbersome  decision  making  processes,  as  experience  to  date  has 
shown  in  GALILEO.  The  Framework  Agreement  has  provided  significant  advances  in  the 
working between the EC and ESA, and with the Member States, in policy development. The 
Agreement will be assessed and improved if required. 

A  clear  framework  to  ensure  efficient  policy  making  and  programme  management  is 
essential  for  the  government  bodies  involved  and  for  the  sector's  investors  and  users.  This 
framework should continue to encompass activities in which Member States would participate 
optionally under intergovernmental arrangements, while drawing on additional resources from 

15 

European Organisation for the Exploitation of Meteorological Satellites 

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research  and,  as  appropriate,  operational  Community  budgets.  Suitable  administrative 
arrangements would be necessary to accommodate all EU and ESA Member States. The EU 
framework  should  be  explored  to  see  how  it  could  permit  such  effective  coordination 
arrangements. 

The  EC-ESA  Framework  Agreement  provides  a  solid  base  for  coordination 
arrangements  between 
intergovernmental  and  Community  actions.  As  space 
increasingly will gain an EU dimension the goal remains for the EU and ESA to pursue 
closer  and  more  efficient  cooperation,  in  particular  to  develop  space  systems  and 
sustain associated services responding to relevant EU sectoral policies.  

6.2. 

Coordinated European Space Programme 

The  European  Space  Programme  will  become  a  common,  inclusive  and  flexible 
programmatic  basis  for  the  implementation  of  all  space-related  activities.  EUMETSAT 
and other relevant entities will be associated in this process. Each project in the Programme 
remains subject to the legal and financial constraints of the body funding it. The role of the 
private  sector  in  the  development  of  products  and  services  will  be  maximised;  risk-sharing 
public  private  partnerships  will  be  explored  wherever  possible.  Preliminary  elements  of  the 
Programme are contained in a document associated with this Policy. 

Europe  needs  consistently  to  achieve  maximum  complementarity  and  transparency 
among  all  space  programmes,  while  avoiding  both  the  creation  of  monopolistic 
structures  and  overcapacity.  Member  States  should  continue  to  orient  their  national 
programmes towards shared European objectives. Users should be a driving force for 
the process. 

6.3. 

International relations 

Europe  needs  to  remain  an  indispensable  international  partner  providing  first-class 
contributions  to  global  initiatives  and  exerting  leadership  in  selected  domains  in 
accordance with European interests and values. Within an open attitude towards cooperation, 
Europe must take judgements on when to rely on partners and where to retain independence. 
Europe  will  assess  opportunities  for  cooperation  according  to:  the  access  they  bring  to 
complementary capabilities or to markets; a fair sharing between partners of efforts, costs and 
risks;  their  contribution  to  EU  external  policies,  particularly  sustainable  development, 
cooperation with developed countries, stability and humanitarian aid, with particular focus on 
Africa  and  the  European  Neighbourhood;  and  their  relevance  to  programmatic  priorities.  In 
pursuing these objectives it is fully committed to comply with UN Treaties and Conventions. 

The  EU  will  take  the  lead  in  the  overall  representation  of  applications  programmes  for  its 
policies  (in  particular  GALILEO  and  GMES),  while  ESA  will  take  the  lead  in  the  overall 
representation  of  Europe  on  programmes  in  the  areas  of  science,  launchers,  technology  and 
human  spaceflight,  each  in  consultation  with  the  other  and  with  Member  States  and,  as 
appropriate, other relevant partners such as EUMETSAT. 

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Annex 1: Key actions 

The  implementation  of  the  European  Space  Policy  during  the  short-term  will  involve  a 
number of specific actions. These have been identified and are listed below. 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

During 2007, the Commission will draw up an action plan on the basis of the public 
response  to  its  Green  Paper  on  GALILEO  applications;  and  will  also  propose  the 
appropriate  legal  and  managerial  framework  to  address  the  requirements  of 
international partners, while safeguarding European interests.  

The  first  three  operational  GMES  services  covering  land,  marine  and  emergency 
response  will  enter  pilot  phase  by  2008,  funded  under  FP7.  The  Commission  will 
make  proposals  by  2009  on  the  programmatic  and  institutional  framework  for  a 
sustainable  GMES  system,  after  close  consultation  with  stakeholders.  ESA  will 
continue  to  coordinate  and  implement  the  development  of  the  GMES  space 
infrastructure  in  line  with  identified  needs  of  service  users  and  by  2008  will  also 
propose,  in  close  cooperation  with  EUMETSAT,  activities  for  Meteosat  Third 
Generation. 

On  integrated  space  applications,  ESA  and  Commission  will  propose  new  R&D 
projects, including integration with terrestrial systems, before end-2008.  SESAR, the 
Single European Sky Air Traffic Management Research Programme will represent an 
example of structured demand for integrated services. 

invest 

through  FP7  on  development  of 

The  EU  will 
integrated  satellite 
communications  networks  and  services,  to  ensure  interoperability  with  terrestrial 
networks for new market opportunities. ESA will invest in new technologies, system 
design capabilities and innovative services in the framework of its telecommunications 
R&D programme. 

The different actors concerned with security and defence will continue to implement 
the  'ESDP  and  Space'  Roadmap16  and  will  set  up  a  mechanism  to  exchange 
information and identify opportunities for increasing coordination and synergy. Before 
end-2007, the EU Council will identify the requirements within the ESDP framework 
relevant to GMES services dedicated to security users. ESA will propose a programme 
to develop common security technologies and infrastructures. 

On space science and technology, ESA will prepare funding proposals in support of 
the Cosmic Vision Programme by 2008 and propose new technology R&D activities, 
in coordination with the EC through FP7, including to reduce dependence on critical 
technologies from non-European suppliers. 

16 

'Initial  roadmap  for  achieving  the  steps  specified  in  the  European  Space  Policy:  ESDP  and  Space' 
(9505/05) 

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(7) 

(8) 

(9) 

Europe  will  pursue  the  effective  exploitation  and  utilisation  of  the  International 
Space  Station  from  2007  onwards  based  on  the  launch  of  Automated  Transfer 
Vehicle-based  services  and  the  Columbus  module.  By  2008,  ESA  will  produce 
proposals for the involvement of Europe in the international exploration endeavour 
presenting options in planetary exploration and in cooperative development of human 
transport capabilities. 

ESA will prepare scenarios and propose programmes to develop technologies for next 
generation  launchers  through  2008,  while  supporting  the  exploitation  of  existing 
systems.  During  2007,  the  Commission  will  evaluate  the  benefits  of  negotiating 
reciprocal opening of public sector markets in its dialogues with major space partners. 

The  Commission  envisages  to  ask  the  European  standards  organisations  to  make  a 
systematic  assessment  of  necessary  future  standardisation  in  support  of  the 
regulatory  framework;  intends  to  evaluate  the  need  to  legislate  at  European  level  to 
achieve the control of satellite-derived data dissemination or other harmonisation of 
legislation;  further  encourage  the  move  to  a  flexible,  market  based  approach  for 
spectrum  allocation  and  to  encourage  pan-EU  approaches  to  spectrum  use;  and  to 
discuss  with  Member  States  and  international  partners  how  export  control 
regulations can be better streamlined. 

(10)  The Commission and ESA will propose to the Member States by 2008 a coordination 
mechanism  covering  all  programmes,  to  operate  in  close  coordination  with 
EUMETSAT  and  other  relevant  entities,  with  a  view  to  reinforcing  and  regularly 
updating the European Space Programme. 

(11)  The EC-ESA Framework Agreement may be complemented as needed on the basis 
of  an  evaluation  of  experience  to  date.  In  addition,  the  Commission  and  ESA  are 
conducting an appraisal of the main possible cost-efficient scenarios for optimising 
the  organisation  of  space  activities  in  Europe  and  adapting  the  EU-ESA  relationship 
accordingly, in accordance with the request made by the 'Space Council' at its second 
meeting in June 2005. 

(12)  The  EU,  ESA  and  their  Member  States  will  establish  a  coordination  mechanism  on 
international relations by end-2007, associating other relevant entities as appropriate, 
and develop a joint strategy for international relations in space by the end of 2008. 

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Ariane 

ATV 

CFSP 

Annex 2: Glossary 

Europe's  heavy  payload  space  launcher.  There  have  been  several 
versions  of  the  launcher  from  the  first  in  1979  to  the  present  day 
Ariane 5. 

Automated Transfer Vehicle: multipurpose support spacecraft under 
development  by  ESA  to  be  launched  on  Ariane  5  in  order  to 
transport supplies and fuel to the International Space Station 

Common  Foreign  and  Security  Policy,  established  and  is  governed 
by Title V of the Treaty on European Union. 

Columbus 

The European Space Agency's multifunction laboratory and largest 
contribution to the International Space Station. 

Cosmic Vision 

ESA’s long-term plan for space science. 

CSG 

Centre  Spatial  Guyanais,  Europe’s  spaceport  operated  by  Centre 
National  d’Etudes  Spatiales  (CNES)  under  an  agreement  with  the 
European  Space  Agency.  Strategic  facility  aimed  at  providing 
Europe  with  access  to  space  with  the  optimal  geographical 
conditions for geostationary launches. 

EC-ESA  Framework 
Agreement  

Framework  Agreement  between  the  European  Community  and  the 
European  Space  Agency:  approved  on  the  EC  side  by  Council 
Decision  (12858/03  RECH  152  7  October  2003);  came  into  force 
May 2004. 

EGNOS 

European  Geostationary  Navigation  Overlay  Service, 
an 
augmentation  signal  to  work  in  conjunction  with  the  US  Global 
Positioning  System  (GPS)  and  the  Russian  Global  Orbiting 
Navigation  Satellite  System  (GLONASS)  military  navigation 
satellite systems. 

ESDP 

European Security and Defence Policy. 

'ESDP and Space'  

Council 11616/1/04 ESDP and Space Roadmap' 
Initial  roadmap 
for  achieving  the  steps  specified  in  the  European  Space  Policy: 
ESDP and Space' (9505/05 dated 30 05 2005) 

EUMETSAT 

European  Organisation  for  the  Exploitation  of  Meteorological 
intergovernmental  organisation  established  by 
Satellites,  an 
Convention. It currently has 20 members and 10 cooperating states 

European 
Strategy  

Security 

'A  secure  Europe  in  a  better  world  –  The  European  Security 
Strategy'; approved by the European Council on 12 December 2003. 

FP7 

The  Seventh  EU  Framework  Programme  for  Research  and 
Technological Development 

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GALILEO 

GEOSS 

GMES 

GNSS 

GSA 

INSPIRE 

ISS 

Europe’s  global  radionavigation  satellite  system.  Joint  EU/ESA 
development composed of a constellation of 30 satellites in medium 
Earth  orbit.  GALILEO  will  provide  users  with  highly  accurate 
timing and positioning services. 

Global  Earth  Observation  System  of  Systems.  The  purpose  of 
GEOSS  is  to  achieve  comprehensive,  coordinated  and  sustained 
observations of the Earth system, in order to improve monitoring of 
the state of the Earth, increase understanding of Earth processes, and 
enhance prediction of the behaviour of the Earth system. 

Global  Monitoring  for  Environment  and  Security  GMES  is  a  joint 
EU/ESA initiative combining space and in-situ observing systems to 
support  European  goals  regarding  sustainable  development  and 
global  governance.  (see  GMES:  From  Concept  to  Reality’  – 
COM(2005) 565 final (10.11.2006)). 

Global  Navigation  Satellite  System,  a  generic  term  for  satellite 
systems providing global positioning and timing services. 

GNSS Supervisory Authority, created by an EU Council Regulation 
to managing the public interest in the Galileo project. 

'INfrastructure  for  SPatial  InfoRmation  in  Europe',  European 
Commission Proposal for a Directive. 

International Space Station: a research laboratory orbiting the Earth, 
currently being built through an international partnership. 

Living Planet 

ESA’s long-term programme for Earth science. 

Meteosat 

METEOrological  SATellite,  Europe's  geostationary  weather 
geostationary  satellite  system,  developed  by  the  European  Space 
Agency and now operated by EUMETSAT. 

Partnership for 
Growth and Jobs  

See  Lisbon  Action  Programme  for  Growth  and  Employment, 
“Working Together for Growth and Jobs: a New Start for the Lisbon 
Strategy” COM(2005) 24, 2.2.2005. 

RSPG 

SESAR  

Soyuz 

Radio  Spectrum  Policy  Group,  see  Commission  Decision  No 
2002/622/EC of 26 July 2002 establishing a Radio Spectrum Policy 
Group [Official Journal L 198 of 24.07.2002] 

Single European Sky Air Traffic Management Research Programme 

Russian space launcher being introduced to CSG under agreements 
between CNES, the Russian space agency and ESA.  

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Space Council 

The concomitant meeting of the Competitiveness Council of the EU 
and  the  Ministerial  Council  of  the  ESA,  as  established  by  the  EC-
ESA Framework Agreement. 

Vega 

Small  launcher  currently  under  development  by  ESA,  designed  to 
place 300 to 2000 kg satellites into low-Earth orbit. 

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