Commission working document - European Space Policy progress report
Date: 2008-09-11
Institutions: European Commission
Subjects: aerospace industry, international cooperation, satellite, space policy, space research, space technology, use of outer space

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 11.9.2008 
COM(2008)561 final 

COMMISSION WORKING DOCUMENT 

EUROPEAN SPACE POLICY PROGRESS REPORT 

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TABLE OF CONTENTS 

1. 

2. 

2.1. 

2.2. 

2.3. 

3. 

3.1. 

3.2. 

3.3. 

4. 

5. 

5.1. 

5.2. 

5.3. 

6. 

6.1. 

6.2. 

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

Space applications........................................................................................................ 3 

Satellite radio navigation programmes: GALILEO / EGNOS..................................... 3 

Earth Observation: GMES ........................................................................................... 4 

Security and Defence ................................................................................................... 6 

Space Foundations ....................................................................................................... 7 

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

Access to Space............................................................................................................ 8 

Exploration of the Solar System, International Space Station and Human Space 
Flight ............................................................................................................................ 9 

A competitive European Space Industry...................................................................... 9 

Governance ................................................................................................................ 10 

Institutional and financial framework ........................................................................ 10 

European Space Programme ...................................................................................... 11 

International Relations ............................................................................................... 11 

Emerging issues ......................................................................................................... 12 

UN Code of Conduct on outer-space activities.......................................................... 12 

Security of space infrastructure and Space Situational Awareness ........................... 12 

ANNEX Elements for a European Strategy for International Relations in Space ................... 14 

I. 

II. 

III. 

IV. 

Background ................................................................................................................ 14 

Principles.................................................................................................................... 15 

Objectives................................................................................................................... 16 

Methodology .............................................................................................................. 16 

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1. 

INTRODUCTION 

Following the adoption of the Space Council Resolution in May 2007, this Report provides an 
overview  on  the  main  progress  achieved  in  the  first  year  of  the  implementation  of  the 
European  Space  Policy  (ESP),  as  elaborated  jointly  by  the  European  Commission  and  the 
Director  General  of  the  European  Space  Agency  (COM(2007)212).  The  need  to  establish  a 
European Space Policy has also been endorsed by EU Heads of State and Government. The 
Member  States  of  the  EU  and  ESA  highlighted  that  the  further  implementation  of  the 
GALILEO and GMES programmes, the development of a Strategy on International Relations 
in Space and the need to develop adequate instruments and funding schemes for Community 
actions in the space domain should be first priorities, followed by improved coordination and 
synergies between defence and civilian space programmes and technologies, in a user-driven 
approach. This report describes both the important steps forward made since May 2007 and 
the further actions which are priorities in the coming period. 

2. 

SPACE APPLICATIONS 

2.1. 

Satellite radio navigation programmes: GALILEO / EGNOS 

GALILEO  and  EGNOS1 are European investments in essential  European infrastructure 
for crucial applications such as border control, transport management and logistics, financial 
operations and the surveillance of critical energy and communications infrastructures. In late 
2007,  the  Council  of  the  EU  reached  conclusions  on  the  re-profiling  and  on  the  future 
development  of  the  European  satellite  radio  navigation  programmes,  including  governance 
and procurement aspects, based on a full public, EU funding of the deployment phase.  

Governance 

Public  governance  of  the  programmes  shall  be  based  on  the  principle  of  a  strict  division  of 
responsibilities  between  the  European  Commission,  the  European  GNSS  Supervisory 
Authority  (GSA)  and  ESA.  The  European  Commission  will  be  responsible  for  the  overall 
management of the programmes as the European GNSS Programme Manager. ESA will act as 
procurement agent for the GALILEO Full Operational Capability (FOC), and as design agent 
for the programmes. The GSA, in accordance with guidelines issued by the Commission, will 
accomplish  specific  tasks  related  to  the  programmes.  Furthermore,  a  new  GALILEO  Inter-
institutional Panel (GIP) with representatives of the Council, the European Parliament and the 
Commission will be set up to follow the programmes. 

Programme implementation 

Important  technical  progress  has  been  achieved  in  the  development  and  in-orbit  validation 
phase of the GALILEO programme. GIOVE-B, the second GALILEO experimental satellite, 
has  been  successfully  launched  on  27  April  2008.  It  will  work  in  conjunction  with  the  first 
GALILEO experimental satellite, GIOVE-A, carrying critical new technologies to be tested in 

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European Geostationary Navigation Overlay Service 

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space and needed for the performances of the GALILEO systems, notably the most accurate 
atomic clock ever put into orbit.  

The  additional  Community  funds2  allocated  to  the  implementation  of  the  GALILEO  and 
EGNOS programmes are 3405 M€ for the period from 1 January 2007 to 31 December 2013. 
The  first  four  operational  GALILEO  satellites  will  be  launched  in  2010,  by  which  time  the 
related ground control infrastructure will also be established. 

In line with the revised European GNSS Regulation3, the Commission and ESA launched the 
tender for the procurement of the remaining 26 satellites and ground control infrastructure on 
1 July 2008. The full operational capability of GALILEO (30 satellites + ground stations) is 
targeted for 2013. 

At  the  same  time,  the  EGNOS  infrastructure  is  progressively  being  phased  into  operation. 
EGNOS is monitoring and correcting signals emitted from existing global satellite navigation 
systems  to  make  them  suitable  for  safety  critical  navigation  applications.  The  transfer  of 
EGNOS assets from ESA to the European Community is due to take place in early 2009.  

International cooperation 

The  European  Commission  and  ESA  have  established  international  cooperation  to  ensure 
proper access to resources (frequencies, technologies, hosting of ground stations) necessary to 
the building up of EGNOS and GALILEO infrastructures. 

Key issues ahead: 

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Completion of the in-orbit validation phase through the preparation and launch of the 
first four operational GALILEO satellites in 2010; 

Implementation  of  the  2007  Council  conclusions  on  the  GALILEO  re-profiling, 
including the governance arrangements and the relevant agreements with ESA; 

Completion  of  the  tender  for  the  procurement  of  the  remaining  26  GALILEO 
operational satellites and associated ground control infrastructure; 

Accompanying regulatory and policy measures in view of factors such as third party 
liability and export control, Public Regulated Service access, and the handling of the 
programme exploitation phase. 

Continue  to  promote  applications  that  take  full  advantage  of  EGNOS  and,  in  the 
future, of GALILEO services including in intelligent transport systems. Commission 
to  propose  a  relevant  Action  Plan  and  European  Radio  Navigation  Plan,  following 
the  publication  in  December  2006  of  the  Green  Paper  on  satellite  navigation 
applications. 

2.2. 

Earth Observation: GMES 

GMES - the European initiative for Global Monitoring for Environment and Security - is 
being built up in a phased approach, aiming at targeted Earth observation services to cover the 

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Financing arrangements for the development and IOV phases are in place from TEN-T funding. 

683/2008; OJ L196 of 24 July 2008 

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needs  of  European  citizens  in  the  areas  of  environment,  security,  emergency  response  and 
climate change. 

Services 

GMES  requires  the  integration  of  data  from  space-based  and  in-situ  Earth  observation 
capacities into operational European application services. Three user-based GMES services in 
the areas of Emergency Response, Land and Marine Monitoring will be pre-operational by the 
end of 2008. Work was also launched on identifying user requirements for security services, 
on  the  development  of  an  additional  Atmosphere  Pilot  Service,  as  well  as  on  the  potential 
contribution of GMES to addressing climate change. 

Tackling climate change and other environmental challenges depends on further research into 
understanding  these  phenomena  and  on  the  assessment  of  reliable  data  from  a  variety  of 
sources,  notably  satellites.  The  continuous  and  sustained  provision  and  analysis  of  high-
quality  satellite  data  on  essential  climate  variables  (ECVs)  is  supported  by  relevant 
programmes  of  EUMETSAT  and  ESA.  An  ESA  Climate  Change  Initiative  is  under 
preparation,  in  view  of  the  November  2008  ESA  Ministerial  Council,  targeting  a 
consolidation and preservation of its archives of 30 years of Earth observation data to support 
the re-analysis processes by climate research centres. 

During  the  GMES  pre-operational  phase  2008-2010,  the  coordinated  data  provision  for 
GMES  services  in  this  period  has  been  guaranteed  through  a  48  M€  EC  grant  to  ESA. 
EUMETSAT  has  also  decided  that  all  data  and  products  from  its  operational  satellites  and 
archives shall be made freely available to GMES services during this period.  

Overall,  for  the  setting-up  of  GMES  services,  from  2002  to  2009,  100  M€  have  been 
dedicated to the ESA GMES Service Element (GSE). The FP7 Space theme has devoted 35 
M€  in  2007  and  70  M€  in  2008  for  the  further  development  and  consolidation  of  GMES 
services. 

Programmatic and institutional framework 

The May 2007 Space Council recognised that, after ten years of R&D financing, GMES now 
needs to move firmly towards an operational basis in order to ensure its long-term availability.  

The  sustainability  of  GMES  requires  an  adequate  management  and  institutional  framework. 
GMES is based on several interlinked components (service component, space component, in-
situ component) which produce data and information for users and for the further processing 
by the downstream service sector. The Commission plans to propose appropriate governance 
and  financial  schemes  in  a  Communication  to  the  EU  Council  and  European  Parliament  in 
autumn 2008.  

The GMES in-situ infrastructure is an asset of Member States and of their local or regional 
authorities.  Commitments  will  therefore  be  sought  from  these  authorities  to  continue  data 
availability.  An  In-Situ  Observation  Working  Group  composed  of  Member  State 
representatives, and supported by the European Environment Agency (EEA), has been set up 
to  address  issues  related  to  European  infrastructure  coordination  and  harmonisation  of  data 
exchange.  

Progress on the space component 

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ESA  is  responsible  for  the  coordination  of  all  European  contributions  to  the  GMES  Space 
Component  (GSC),  in  line  with  user  needs.  It  will  implement  the  development  of  a  set  of 
satellites (the Sentinels) and their related ground segment through the ESA GSC Programme. 

The  Community  contribution  to  the  ESA  GSC  Programme  is  implemented  through  an  EC-
ESA agreement starting with 419 M€ for the  1320 M€ GSC ‘Segment 1’. An amendment to 
the Agreement is expected to be concluded to cover the envisaged Community contribution of 
another 205 M€ for GSC ‘Segment 2’, which will  be submitted for approval to the November 
ESA Ministerial Council.  

International cooperation 

The meteorological field has already shown that, to ensure access to a wide range of data at 
global level, Europe needs to find the right balance between an autonomous Earth observation 
capacity and engaging in cooperation with third countries, in particular on the coordination of 
Earth  observation  infrastructure  and  the  exchange  of  data.  At  multilateral  level,  Europe  is 
already strongly engaged in the GEOSS process4, and GMES is defined as the main European 
contribution to this international endeavour.  

In December 2007, the “Lisbon Process on GMES and Africa” was launched, responding to 
African Union requests to integrate African user requirements in the GMES services. 

Key issues ahead: 

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Maintain a firm link between establishing user requirements and securing the further 
development of services and infrastructure, in a cost-efficient manner; 

Strengthen coordination and the joint commitment by all stakeholders, especially that 
of Member States to the in-situ infrastructure; 

Obtain  the  commitment  of  ESA  Member  States  and  European  Community  to  the 
funding of the GSC ‘Segment 2’; 

Further  develop  the  future  programmatic,  financial  and  institutional  framework 
(governance)  for  GMES  as  a  whole  and  for  its  services,  space  and  in-situ 
components. This framework will provide a basis for its operational sustainability. 

2.3. 

Security and Defence 

European space capacities have become critical information tools in addressing a diversity 
of  environmental,  economic  and  security  challenges  of  a  global  or  regional  scale. 
Autonomous access to information derived from space is thus a strategic EU asset. The EU 
will  need  to  further  strengthen  its  ability  to  respond  to  these  challenges,  including  in  the 
security  and  defence  domains,  both  through  improved  coordination  and  through  the 
development of own capacities.  

The importance of European space capacities as strategic assets has been highlighted by the 
2008  report  from  the  High  Representative  and  the  European  Commission  on  the  impact  of 

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climate change on international security. At the same time, space programmes like GMES 
and  GALILEO  have  a  multiple-use  capacity  and  may,  along  with  their  civil  security 
capabilities, also have military users. 

Within the framework of existing EU principles and institutional competencies, the European 
Commission  and  the  EU  Council  General  Secretariat  are  currently  working  on  the 
identification  of  relevant  user requirements for GMES  security services, involving potential 
users and policy makers, as well as providers and developers of data. Following a workshop 
organised by the Institute for Security Studies in June 2007 in Paris, the following key areas 
have  been  identified  as  worthwhile  to  be  explored:  Border  Surveillance5,  Maritime 
Surveillance,  and  Support  to  EU  External  Action.  A  horizontal  action  on  Security  of 
Information is being pursued in order to prepare the implementation plan for data exchange in 
the security domain. 

In  order  to  address  the  complex  capacities  and  skills  required  for  the  provision  of  security 
related data and services a number of test and pilot projects have already been implemented or 
launched  under  Community  Research  Programmes  and  the  ESA  GSE,  with  participation  of 
the EU Satellite Centre. An example is the LIMES Maritime Surveillance project6, which also 
responds to EU Maritime Policy requirements. 

In  view  of  an  improved  coordination  between  civil,  security  and  defence  related  space 
activities, the services of the European Commission and the EU Council General Secretariat 
have set-up a structured dialogue, involving also the European Defence Agency (EDA) and 
the EU Satellite Centre. The objective is to exchange information and optimise the synergies 
between the various actors' activities and programmes, in the context of ESDP and other EU 
Policies. 

Key issues ahead: 

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Pursue the structured dialogue between relevant EU services and agencies in view of 
creating synergies between the various actors' activities and programmes; 

Continue identification of  user requirements for GMES  security  services, involving 
potential  users,  policy  makers,  providers  of  data  and  system  developers, 
accompanied by further test and pilot projects under the relevant programmes. 

3. 

SPACE FOUNDATIONS 

3.1. 

Science and Technology 

The EU, ESA and their Member States recognised the need to continue to invest strongly to 
maintain leadership in space-related S&T. This is reflected in the relevant ESA programmes 
as well as in the EU’s research programme (FP7).  

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Responding also to the creation of a European Border Surveillance System (EUROSUR) 

Land and Sea Integrated Monitoring for Environment and Security 

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Strengthening the foundations of space science and technology has been specifically included 
in the EU’s FP7. Coordination between the EU’s FP7 and ESA’s technology programme has 
been substantially strengthened during the past year. 

Europe continues to be ambitious in terms of innovation, identifying critical technologies and 
guaranteeing  their  funding,  while  closely  monitoring  technology  transfers,  both  for  security 
and commercial reasons. The European Commission, ESA and EDA are closely cooperating 
in this endeavour. A joint event to raise political awareness for the definition of a harmonised 
Europe-wide  approach  on  Critical  Technology  for  European  Non-Dependence  in  space  is 
scheduled  for  9  September  2008.  ESA  will  propose  to  its  Ministerial  Council  in  November 
2008  a  programme  element  related  to  critical  space  technologies,  European  strategic  non-
dependence and industrial competitiveness. 

The  ESA  mandatory  Science  Programme  will  complete  its  first  20  year  Long-Term  Plan, 
started  in  1984  under  the  name  “Horizon  2000”,  with  the  dual  launch  in  early  2009  of  the 
“Herschel” Space Observatory and the “Planck” spacecraft by an Ariane-5 launcher. A wealth 
of  scientific  satellites  and  space  telescopes  has  been  launched  under  the  Plan,  such  as 
NEWTON and INTEGRAL7. 

Key issues ahead: 

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Maintain commitment and investment in space-related science and technology; 

Define  a  harmonised  Europe-wide  approach  on  Critical  Technology  for  European 
non-dependence  in  space  technology.  ESA  is  to  submit  a  related  programme 
proposal to its 2008 Ministerial Council. 

3.2. 

Access to Space 

An  independent,  reliable  and  cost-effective  access  to  space  is  of  vital  importance  for  the 
implementation of the ESP. 

Progressively, a flexible range of launchers will be made available through a single operator 
from  the  Guiana  Space  Centre,  with  the  ESA-developed  Vega  launcher  and  the  Russian 
Soyuz  launcher  joining  Ariane  5.  In  addition,  several  medium-size  European  satellites  are 
launched on Russian launchers from the space port of Baikonour. 

In 2006-2007, Arianespace placed a total of 22 telecommunication satellites in orbit through 
eleven successful Ariane 5 launches, carrying 80% of all commercial satellites in 2007. Seven 
launches are planned for 2008. 

Key issues ahead: 

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For Ariane to remain the reference commercial launch service on the market against 
the  current  unfavourable  US  Dollar/Euro  exchange  rates  is  a  major  challenge  for 
Europe. This must be addressed during 2008; 

Aimed in particular at collecting evidence of the objects responsible for producing the antimatter and 
the first detection of the long sought ‘cosmic web’ 

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3.3. 

ESA is to prepare scenarios for the next generation of launchers. 

Exploration of the Solar System, International Space Station and Human Space 
Flight 

ESA  and  a  number  of  Member  States  have  been  playing  a  key  role  in  the  definition  of  an 
international  Global  Space  Exploration  Strategy  and  in  preparing  the  framework  for 
international coordination of space faring nations through the International Space Exploration 
Coordination Group (ISECG). A number of important European missions have been launched 
or are being prepared. 

ESA’s  ExoMars  mission  has  significantly  evolved  to  a  high  performance  Mars  exploration 
mission8. Cooperation agreements have been established between ESA and NASA in order to 
enhance  the  mission’s  robustness  and  its  scientific  value.  In  parallel,  an  agreement  has  also 
been  concluded  with  the  Russian  Federal  Space  Agency  for  cooperation  with  the  Russian 
sample return mission from Phobos, a moon of Mars.  

The  International  Space  Station  (ISS)  Programme  is  proceeding  towards  the  ‘Assembly 
Complete’  stage  by  2010,  with  a  6-person  crew  planned  for  May  2009.  The  facility  offers 
unique  opportunities  for  fundamental  and  applied  research.  European  participation  with  the 
successful launch of Node29 in October 2007, the Columbus laboratory in February 2008, the 
Automated Transfer Vehicle (ATV-1) “Jules Verne” in March 2008, as well as the presence 
of  European  crew,  secures  a  visible  European  role  in  this  endeavour.  These  successes  have 
confirmed Europe’s ability to make significant contributions to global space exploration, and 
indeed to expand its role beyond its level of 8 per cent participation in the ISS. Time has now 
come  for  reaping  the  benefits  of  long-term  investments  for  scientific  progress  and  for 
preparing  exploration  of  the  Solar  System.  However,  space  exploration  requires  very 
substantial resources and therefore has to be an international endeavour. 

Key issues ahead: 

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The  important  resources  necessary  for  space  exploration  call  for  a  strong 
commitment from Europe to define its contribution and pool its resources to offer a 
coherent and efficient European contribution to this global initiative; 

The  European  Commission  intends  to  conduct  a  political  debate  to  assess  the 
potential EU contribution to this endeavour. 

4. 

A COMPETITIVE EUROPEAN SPACE INDUSTRY 

The commercial space market has created a significant value chain in derived services, but 
also  produced  socio-economic  and  indirect  benefits.  Public  commitments  are  however 
required  to  create  a  critical  mass  stimulating  further  public  and  private  investment.  The 
European GALILEO and GMES initiatives will create significant opportunities for user-

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1st mission in ESA's Aurora Exploration Programme. 

It  provided  the  interconnection  point  between  the  US  Destiny,  ESA  Columbus  and  Japanese  Kibo 
laboratories and has hence been named 'Harmony' 

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driven  applications  and  services  and  contribute  to  the  emergence  of  new  European 
downstream markets. 

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/or societal value. The development of GMES and GALILEO 
services as well as their integration with satellite communications has been supported under 
the  EC  framework  programmes  for  RTD.  ESA  is  developing  a  proposal  for  an  Integrated 
Applications  Promotion  (IAP)  programme,  designed  to  systematically  foster  the  use  of 
integrated space technologies, in a wide range of operational services.  

The ESP underlined the need for an industrial policy taking into account the specificities of 
the space sector. The regulatory framework is a crucial element of any industrial policy. The 
European Commission has initiated a consultation process with industry to identify its needs 
for regulatory and/or deregulatory action in the space domain. In addition, it has mandated the 
European  Committee  for  Standardization  (CEN)  to  conduct  an  assessment  of  future 
standardisation  needs  of  the  space  sector  and  to  establish  a  standardisation  programme 
proposal  for  space.  As  a  start,  a  feasibility  study,  presented  in  June  2008,  identified  those 
specific sectors for which a detailed needs analysis will be performed. 

Given the established track record of the satellite communications sector, ESA is increasingly 
successful  in  introducing  public-private  partnerships  into  its  development  programmes, 
including tenders for relevant mission payloads from interested private Satellite Operators. 

Key issues ahead: 

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Promote  the  further  integration  of  satellite-based  as  well  as  terrestrial  observation, 
navigation and communication services to strengthen European downstream markets 
for applications and services; 

Further develop an industrial policy taking into account the specificities of the space 
sector  and  stimulating  innovation  and  competition  while  supporting  industry  to 
manage highly cyclical variations in demand, to invest in technology and to ensure 
the maintenance of critical technologies. 

Complete  ongoing  needs  analysis  for  regulatory  and/or  deregulatory  action  in  the 
space  domain,  as  well  as  future  standardisation  requirements.  Prepare  a 
standardisation programme. 

5. 

GOVERNANCE 

5.1. 

Institutional and financial framework 

The Framework Agreement between the European Community and ESA entered into force in 
2004 and has been extended in 2008 for a further four years until 2012. Its effectiveness will 
be kept under review. 

This  institutional  framework  for  space  should  continue  to  encompass  activities  in  which 
Member States would participate optionally under intergovernmental arrangements, while, in 

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addition,  drawing  on  resources  from  research  and,  as  appropriate,  operational  Community 
budgets. 

The  European  Commission  launched  a  call  for  tender  for  an  expert  study  to  analyse  the 
framework  conditions  affecting  the  European  space  sector.  This  analysis  will  in  particular 
focus on financing instruments and schemes required for long-term space activities in Europe 
and key regulatory issues affecting the European space sector. 

Key issues ahead: 

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EU  and  ESA  to  pursue  closer  and  more  efficient  cooperation,  based  on  the 
Framework  Agreement,  while  exploring  the  need  and  mechanisms  for  future 
adaptations;  

Address the future programmatic, financial and institutional framework (governance) 
for European space activities; 

Tackle  the  need  to  ensure  sustainable  services  through  operational  Community 
funding for space applications. 

5.2. 

European Space Programme 

First  elements  of  a  European  Space  Programme,  that  should  encompass  all  important 
European and national programmatic activities, were submitted by the European Commission 
and ESA in association with the ESP in April 2007. 

The  European  Space  Programme  is  the  practical  implementation  of  the  ESP  whose  success 
relies  on  a  European  coordinated  approach  to  space  activities.  The  European  Space 
Programme will be further developed in 2009, through the High Level Space Policy Group, 
based  on  recommendations  from  a  dedicated  ad  hoc  working  group  composed  of  Member 
State representatives. 

5.3. 

International Relations 

With  the  main  initial  objective  to  improve  transparency  and  coordination  among  ESP 
stakeholders,  the  EC-ESA  Joint  Secretariat,  in  collaboration  with  Member  States  and 
EUMETSAT, has developed ‘Elements for a European Strategy for International Relations 
in Space’ (annexed). 

This document emphasises the need and desire of European stakeholders involved in space to 
speak  with  one  voice  on  the  international  scene.  It  aims  to  set  common  principles  while 
providing  a  tool  to  enable  ESP  stakeholders  to  share  and  exchange  information  on  their 
activities and relevant  priorities and coordinate their actions. The document stipulates that 
international  cooperation  in  space  must  be  coherent  with  the  EU’s  external  policy 
priorities, e.g. through using the potential of space systems for sustainable development, in 
particular  in  Africa.  International  cooperation  must  furthermore  contribute  to  the  practical 
implementation of European space programmes. 

Key issues ahead: 

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(cid:190) 

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Further  develop  transparency,  information  exchange  and  coordination  on  the  space 
related  International  cooperation  activities  of  EU,  ESA,  their  Member  States  and 
EUMETSAT, in line with the ‘Elements for an International Relations Strategy’;  

Continue  work  on  the  future  elaboration  of  a  fully  fledged  ESP  International 
Relations Strategy, including specific strategies for GMES and GALILEO. 

Further  strengthen  coherence  between  ESP,  international  cooperation  in  space  and 
EU external policies. 

6. 

EMERGING ISSUES 

6.1. 

UN Code of Conduct on outer-space activities 

In  view  of  the  global  nature  of  space  activities  and  in  the  interest  of  sustainability  of  space 
activities and infrastructure, the EU has been preparing a draft code of conduct / guidelines on 
outer-space activities for the consideration of the relevant UN bodies, based on the principles 
of  free  access  to  space  for  its  peaceful  exploration  and  use;  preservation  of  security  and 
integrity of satellites in orbit and the right to legitimate self defence by states. 

Key issues ahead: 

(cid:190) 

Pursue  EU  efforts  to  strengthen  the  basis  for  sustainability  of  space  activities  and 
objects within the UN. 

6.2. 

Security of space infrastructure and Space Situational Awareness 

Any  disruption  in  the  availability  and  functioning  of  space-based  systems  could  today  have 
significant  consequences  on  security,  safety  and  economic  activities.  It  is  thus  crucial  to 
understand  and  to  monitor  the  population  of  space  objects,  the  environment  of  space  itself, 
and the potential of existing threats and risks to space systems, known collectively as Space 
Situational Awareness (SSA). Up to now Europe does not have its own independent capacity 
and is partly dependent on US data to monitor the population of space objects. 

As  a  result,  ESA  is  currently  preparing  a  programme  proposal  with  a  view  to  creating  a 
European SSA capacity. Guidance on the needs and requirements for such a system has been 
provided by a user group representing user communities (civil, military, operators, insurance 
companies, scientific community, and other institutions). The EDA has created a project team 
tasked to define ESDP-related SSA requirements by 2009.  

The current ESA proposal provides for such a system to be based on the federation of existing 
European ground assets and cooperation of available space segments, supplemented by new 
ground  infrastructure  deployment,  data  centres  and  space-based  precursor  services.  ESA  is 
discussing  with  its  Member  States  the  results  of  a  study  on  ‘SSA  Governance  and  data 
policy’.  The  EU  Council  General  Secretariat,  the  European  Commission  and  EU  Member 
States  will  be  involved  in  this  discussion,  including  international  implications,  in  view  of 
finding a commonly acceptable solution. 

Key issues ahead: 

(cid:190) 

ESA and the European Commission will continue to identify potential threats to the 
functioning of space-based-systems and the way to monitor these, leading potentially 

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to  the  creation  of  a  European  Space  Situational  Awareness  capacity,  based  on  an 
ESA programme proposal. 

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ANNEX 

Elements for a European Strategy for International Relations in Space 

I. 

BACKGROUND 

Europe  must  remain  a  leader  in  space  systems  and  an  indispensable  international  partner 
providing  first  class  contributions  to  global  initiatives  and  exerting  leadership  in  selected 
domains in accordance with European interests and values.  

The  European  Space  Policy  has  identified  that,  in  order  for  Europe  to  respond  to  global 
challenges and to play a global role, the strategic mission of space activities in Europe must 
be to 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; and 

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

order to ensure independent European space applications. 

The impact assessment done by the European Commission  10 for the European Space Policy 
concluded that cooperation with key international partners is indispensable to the delivery of 
many of these objectives. Further refinement of the International Strategy will make use of the 
analyses performed  annually by ESA  on  the  global space sector and on the European space 
sector in the global context. 

Optimal  results  in  such  cooperation  can  be  achieved  through  an  improved  coordination  of 
international cooperation activities across Europe and the sharing of resources in the best way. 

International  cooperation,  embedded  in  the  EU’s  external  relations,  can  also  serve  as  a 
market-opener for the promotion of European technology and services in the space field and 
in this way reinforce this strategic industrial sector. In addition, it can support the promotion 
of the values as they have developed for Europe through projects focused on environmental 
protection, climate change, sustainable development, education, access to knowledge/data for 
support of the infrastructure of developing countries, and humanitarian actions. 

The  May  2007  Space  Council  Resolution  on  the  European  Space  Policy,  invited  ‘…the 
European  Commission,  the  ESA  Director  General  and  the  Member  States  to  develop  and 

10 

SEC (2007) 506 / supported by an external expert study. 

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pursue  a  joint  strategy  and  establish  a  coordination  mechanism  on  international  relations. 
This strategy should be consistent with Member State activities and is aimed at strengthening 
Europe’s  role  in  the  global  space  field  and  at  benefiting  from  international  cooperation, 
notably with respect to issues listed in Annex 3 [to the Resolution].’ 

The present European Strategy for International Relations in Space shall provide for a tool to 
enable  stakeholders  under  the  European  Space  Policy  to  coordinate  actions  and  share 
information  and  resources  and  to  define  their  relevant  priorities  in  terms  of  actions  and 
international partners and their respective roles. 

II. 

(cid:190) 

(cid:190) 

(cid:190) 

(cid:190) 

(cid:190) 

(cid:190) 

PRINCIPLES 

International cooperation on space is not a goal in itself. The fundamental principle 
underlying cooperation is that it must serve the interests of Europe while enabling it 
to  contribute  to  global  initiatives.  It  must  contribute  to  the  implementation  of 
European Policy objectives, for example in the areas of environment, transport and 
agriculture, in coherence with European values.  

It  must  equally  contribute  to  the  practical  implementation  of  European  space 
programmes,  through  the  optimisation  of  the  available  technical  and  financial 
resources.  

It needs to be coherent with and support the implementation of the EU external 
and  trade  policy  priorities  through  greater  systematic  integration  of  space  based 
applications  and  services  into  European  foreign  policies,  whether  at  EU  level,  or 
nationally in coordination. 

the  EU  autonomous  and 

It must seek to enhance the European space industry competitiveness in order to 
give 
independent  decision  making  and  policy 
implementation  capabilities.  Depending  on  the  specific  objective,  and  given  the 
availability of European resources and capacities, a right balance has to be found in 
each  case  between  cooperation  and  the  sharing  of  resources  among  international 
partners,  on  the  one  side,  and  the  creation  and  enhancement  of  autonomous 
European  capacities,  on  the  other  side,  through  the  development  of  European 
space based and space related assets and infrastructure, including technologies.  

Europe  can  cooperate  in  a  substantial  way  with  a  limited  number  of  parties.  While 
dialogue  and  exchange  of  information  could  involve  all  partners  with  a  substantial 
interest  in  space,  practical  international  cooperation  at  a  European  level  has  to 
follow  priorities  set  on  the  basis  of the principle of mutual benefit and driven  by 
political, programmatic and budgetary considerations. 

In  pursuing 
international  cooperation  objectives  and  activities,  European 
stakeholders  are  committed  to  fully  comply  with  UN  Treaties  and  Conventions, 
specifically those designed to address activities in outer space. 

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III. 

OBJECTIVES  

The priority objectives of the European Strategy for International Relations in Space are to: 

(cid:190) 

(cid:190) 

(cid:190) 

(cid:190) 

Create synergies and complementarities between European services (notably GMES 
and GALILEO), their international dimension, and key strategic policy objectives 
and  demands  of  the  European  Union.  Ensure  EU  autonomous  capacity  as  well  as 
interoperability,  cooperation  and  exchange  with  global,  regional  and  national 
services run by relevant international partners. 

Reinforce  the  contribution  of  Europe  to  global  initiatives,  such  as  through  the 
development of GMES as European contribution to worldwide efforts in establishing 
a Global Earth Observation System of Systems (GEOSS), as well as through the 
Global  Exploration  Strategy  (GES)  Group.  Make  full  use  of  the  potential  of 
European  space  systems  for  the  relevant  EU  policies  on  addressing  Global 
challenges,  notably  sustainable  development,  humanitarian  aid  and  climate 
change.  

Define  a  coherent  European  data  policy  in  view  of  cooperation  with  international 
partners  on  the  use  of  space  based  applications  and  services  and  relevant  data 
exchange, to maximise the public interest. 

Contribute  to  innovation  through  international  cooperation  in  space  science,  space 
related research, space based applications and space exploration, including enabling 
Europe to participate in ambitious programmes the cost of which is too great for any 
one  space  power.  Seek  to  create  synergies  and  coherence  between  different 
technology and research programs. 

IV. 

METHODOLOGY 

Coordination mechanism 

(cid:190) 

(cid:190) 

(cid:190) 

11 

The  European  Commission,  ESA,  EUMETSAT  and  Member  States  will  exchange 
information  and  consult  each  other  on  ongoing  and  planned  major  international 
cooperation activities related to space. The High-level Space Policy Group (HSPG) 
is to give general guidance on the coordination of international relations. 

The EC-ESA Joint Secretariat will provide for the necessary practical coordination, 
annual update, and access to the provided information, including through the setting-
up of an e-information-network for international relations11. All stakeholders will 
inform  partners  through  the  Joint  Secretariat  /  e-network  about  their  major 
cooperation  activities  (e.g.  conclusion  or  revision  of  important  cooperation 
agreements  or  projects).  Member  States  will  receive  regular  progress  reports  at 
HSPG or Space Policy Expert Group meetings. 

In  full  coherence  with  the  general  targets  set  by  this  strategy,  the  European 
Commission  and  ESA  will  undertake  a  regular  analysis  in  order  to  define  their 

Consisting of a network of e-mail contact points coordinated by the Joint Secretariat. 

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(cid:190) 

(cid:190) 

individual programmatic needs for concrete international cooperation actions, based 
also on relevant existing and planned specific strategy and programme documents. 

The  coordination  mechanism  will  rely  on  the  existing  structures  for  international 
relations  within  EU  and  ESA,  notably  the  relevant  geographical  or  thematic  EU 
Council  groups  and  the  ESA  International  Relations  Committee  (IRC)  with  their 
established  responsibilities.  Established  competencies  of  the  EU  Council  and 
Presidency in representing and coordinating EU positions in international relations in 
general, together with the European Commission, will be fully respected.  

Europe will be in a better position to achieve its jointly formulated objectives when 
coordinating  actions  and  speaking  with  one  voice  on  the  international  scene.  The 
coordination  of  dialogue  and  cooperation  on  space  with  international  partners 
will be based on an agreed set of priorities in terms of partners and activities, and the 
respective  roles.  The  EU  will  take  the  lead  in  the  overall  representation  of 
applications programmes for its policies (in particular GALILEO / EGNOS, GMES 
and joint EU-Africa Partnership on Science, Information Society and Space12), while 
the European Space Agency will take the lead in the overall representation of Europe 
on  programmes  in  the  areas  of  science,  exploration,  launchers,  technology  and 
human spaceflight, each in consultation with the other and with Member States and, 
as appropriate, other relevant European partners such as EUMETSAT.  

Coordination in a multilateral context 

(cid:190) 

EU  and  ESA  Member  States  will  increase  their  coordination  in  the  framework  of 
international  organisations  and  multilateral  space  cooperation,  including  the 
relevant  UN  bodies.  Together  with  the  ESA  Executive  and  the  European 
Commission, they aim at an improved and consistent coordination of their positions 
prior  to  international  meetings.  The  ESA  Executive  and  the  European  Commission 
will propose those topics for which a common European position could be envisaged. 
Key thematic areas for such coordination could include: 

–  The peaceful use of outer space. 

–  The mitigation of space debris, the protection of space infrastructure and potential 

hazards from space. 

–  nuclear power sources  

–  disaster management  

–  GNSS 

–  International space law 

Prior  to  United  Nations  Committee  on  the  Peaceful  Uses  of  Outer  Space 
(UNCOPUOS)  meetings,  ESA  and  the  European  Commission  will  organise  a 
coordination  session  with  participating  ESA  and  EU  Member  States  to  decide  on 
such common positions. 

12 

endorsed by the December 2007 EU-Africa Summit in Lisbon in the framework of the EU-Africa Joint 
Strategy and Action Plan 

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(cid:190) 

Where  appropriate,  the  European  Commission  and  the  EU  Council  Secretariat  will 
consult  ESA  on  EU  initiatives  on  space  related  issues  within  the  UN  framework, 
notably  the  General  Assembly  and  its  First  Committee  (Disarmament  and 
International Security). 

Coordinated Space Dialogue with international partners 

(cid:190) 

(cid:190) 

(cid:190) 

The European Commission and the European Space Agency will jointly represent 
Europe  in  a  structured  space  dialogue  and  cooperation  with  the  strategic 
partners, U.S. and Russia. They will ensure a shared co-leadership on the different 
topics, in line with their political, programmatic and financial responsibilities. They 
will  be  accompanied  by  EUMETSAT  where  appropriate.  Dialogues  with  other 
international  partners  could  be  envisaged,  following  a  proper  assessment  of  needs 
and  benefits,  notably  in  terms  of  the  development  of  a  mutually  beneficial 
cooperation, and the identification of other potential strategic partners. 

The  European  Commission  and  ESA  will  coordinate 
their  dialogue  and 
cooperation  activities  on  space  with  other  established  and  emerging  space 
powers, and provide regular information to each other, and to the HSPG. Particular 
attention  should  be  paid  to  countries  covered  by  the  European  Neighbourhood 
Policy. 

The implementation of the joint  EU-Africa  Partnership on Science, Information 
Society and Space will require the establishment of a Space Applications Working 
Group  to  be  set  up  by  the  EC  and  the  African  Union  Commission,  with  ESA  and 
EUMETSAT  participation.  Priority  actions  and  projects  will  be  based  on 
requirements  laid  down  by  African  stakeholders,  through  the  African  Union 
Commission.  The  first  such  priority  identified  in  the  Lisbon  Declaration  of 
December 2007 is the preparation of an Action Plan on GMES and Africa. EU and 
ESA  Member  states  will  be  invited  to  play  an  active  role,  including  through  their 
national policy instruments. 

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