COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE EUROPEAN PARLIAMENT, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS TOWARDS A SPACE STRATEGY FOR THE EUROPEAN UNION THAT BENEFITS ITS CITIZENS
Date: 2011-04-04
Institutions: European Commission
Subjects: aerospace industry, satellite communications, satellite navigation, space policy, space research, space technology, use of outer space

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EUROPEAN COMMISSION 

Brussels, 4.4.2011 
COM(2011) 152 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

TOWARDS A SPACE STRATEGY FOR THE EUROPEAN UNION THAT 
BENEFITS ITS CITIZENS 

SEC(2011) 381 final 
SEC(2011) 380 final 

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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

TOWARDS A SPACE STRATEGY FOR THE EUROPEAN UNION THAT 
BENEFITS ITS CITIZENS 

1. 

SPACE  POLICY:  A  RESPONSE  TO  THE  SOCIAL,  ECONOMIC  AND  STRATEGIC 
CHALLENGES THAT WE FACE 

Space  activities  and  applications  are  vital  to  our  society's  growth  and  development.  They 
often  have  a  direct  impact  on  citizens'  daily  lives.  In  this  context,  space  policy  is  an 
instrument  serving  the  Union's  internal  and  external  policies  and  responds  to  three  types  of 
need: 

–  social: the citizens' well-being depends on space policy in areas such as the environment, 
combating  climate  change,  public  and  civil  security,  humanitarian  and  development  aid, 
transport and the information society; 

–  economic:  space  generates  knowledge,  new  products  and  new  forms  of  industrial 
to 

therefore  a  driving  force  for 

innovation  and  contributes 

it 

cooperation, 
competitiveness, growth and job creation; and  

is 

–  strategic: space serves to cement the EU’s position as a major player on the international 

stage and contributes to the Union's economic and political independence.  

In this regard, the space sector directly contributes to achieving the objectives of the Europe 
2020 Strategy,1 namely smart, sustainable and inclusive growth. Space policy thus forms an 
integral  part  of  the  "Industrial  Policy"  flagship  initiative  and  the  Strategy  calls  on  the 
Commission  to  strive  "to  develop  an  effective  space  policy  to  provide  the  tools  to  address 
some of the key global challenges and in particular to deliver Galileo and GMES". In October 
2010, the Commission thus adopted the "Communication on Industrial Policy"2, in which the 
Commission proposes "measures in 2011 to implement the priorities of the space policy based 
on  Article  189  of  the  TFEU  [and  will  pursue]  a  Space  Industrial  policy  developed  in  close 
collaboration  with  the  European  Space  Agency  and  Member  States".  In  its  conclusions  of 
December 2010, the Competitiveness Council concurred and underlined "in particular the role 
of  the  space  sector  in  EU  competitiveness  and  innovation."  It  noted  "the  Commission's 
intention  to  propose  the  necessary  space  policy  measures  and  to  pursue  a  space  industrial 
policy." 

1 
2 

"EUROPE 2020 A strategy for smart, sustainable and inclusive growth" COM(2010) 2020. 
"An Integrated Industrial Policy for the Globalisation Era – Putting Competitiveness and Sustainability 
at Centre Stage" COM(2010) 614 

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Europe boasts a rich heritage in space, with the achievements and expertise accumulated by 
the Member States and by the European Space Agency (ESA)3. The gradual emergence of EU 
competence with regard to space builds on that heritage. 

Cooperation  with  the  ESA  culminated  in  the  adoption,  in  2004,  of  a  framework  agreement, 
which, inter alia, provided for the creation of the Space Council, the concomitant meeting of 
the  Council  of  the  EU  (Competitiveness)  and  the  Ministerial  Council  of  the  ESA.  The 
European  Geostationary  Navigation  Overlay  Service  (EGNOS)  and  Galileo  satellite 
navigation  programmes  and  the  Global  Monitoring  for  Environment  and  Security  (GMES) 
system are results of the Union's interest in space. Since then, seven Space Council meetings 
have provided guidance for Europe's space initiatives. At its fourth meeting in May 2007, the 
Space Council welcomed the efforts made jointly by the European Commission and the ESA 
to  implement  initiatives  geared  towards  users  and  those  aimed  at  strengthening  the 
development and operation of integrated space applications4.  

For  its  part,  the  European  Parliament  has  always  pushed  for  an  ambitious  European  Space 
Policy5.  In  common  with  the  other  major  space  powers,  it  therefore  appears  that  in  Europe 
space is acknowledged at a high political level by all of the actors involved as an important 
factor in helping to meet the needs of citizens.  

Article  189  of  the  TFEU,  conferring  on  the  Union  a  shared  space  competence  which  it 
pursues alongside that of the Member States, needs to be seen in this context. The Union thus 
has a specific mandate to draw up a European space policy, and, "to this end, it may promote 
joint  initiatives,  support  research  and  technological  development  and  coordinate  the  efforts 
needed  for  the  exploration  and  exploitation  of  space".  To  this  end,  "…Parliament  and  the 
Council shall establish the necessary measures, which may take the form of a European space 
programme".  

In this new framework, Europe's space policy is aimed at achieving the following objectives: 
promoting  technological  and  scientific  progress,  stimulating  industrial  innovation  and 
competitiveness,  enabling  European  citizens  to  reap  the  benefits  of  space  applications  and 
raising  Europe's  profile  on  the  international  stage  in  the  area  of  space.  In  order  to  achieve 
those goals, Europe needs to keep independent access to space. The following section sets out 
the priority actions designed to put those objectives into practice. 

2. 

PRIORITY ACTIONS FOR A EUROPEAN UNION SPACE POLICY  

The first priorities for this policy set out at the fourth Space Council meeting are the flagship 
Galileo  and  GMES  projects.  The  fifth  Space  Council  meeting  approved  those  projects  and 
identified further priorities. Climate change, security, competitiveness and space exploration 
have  ever  since  been  reaffirmed  as  priority  areas  where  specific  action  continues  to  be 
required. 

3 

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5 

The text uses the English acronym ESA. The ESA comprises 18 countries, two of which – Norway and 
Switzerland  –  are  not  EU  Member  States.  Canada,  Hungary,  Poland  and  Romania  take  part  in  some 
cooperation projects with the ESA. 
Outcome  of  the  Competitiveness  Council  meeting  of  21  and  22 May  2007,  Resolution  on  European 
Space Policy, DS 417-07. 
European Parliament Resolution of November 2008, whereby Parliament approves the European Space 
Policy and urges that definite action be taken on the four proposed priorities – climate change, security, 
innovation and exploration. 

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2.1. 

Satellite navigation: the Galileo and EGNOS programmes 

Galileo is one of the Union's flagship programmes and the first satellite navigation system in 
the  world  designed  for  civilian  use.  It  will  enable  the  Union  to  remain  independent  in  a 
strategically important field, at a time when reliance on global navigation systems continues 
to  grow.  EGNOS  was  the  first  European  satellite  navigation  measure,  and  its  goal  is  to 
improve  the  quality  of  the  signals  transmitted  to  European  territory  by  global  satellite 
navigation  systems.  The  systems  that  emerged  from  the  Galileo  and  EGNOS  programmes 
represent the first major space facilities solely belonging to, and managed by, the EU. 

These two programmes form an integral part of the Europe 2020 strategy, as they are intended 
to  push  the  EU  to  the  forefront  by  developing  innovative  ways  of  exploiting  satellite 
navigation,  boosting  economic  activity  in  the  market  further  downstream,  creating  new 
business opportunities, facilitating the provision of humanitarian aid and enhancing the well-
being  of  Europe's  citizens  (by  making  transport  safer,  increasing  civil  protection  and 
developing social services for the elderly and the disabled, to give but a few examples). The 
benefits  of  these  programmes  for  the  EU  cut  across  all  sectors  of  the  economy,  such  as 
transport, telecommunications, the environment and security. 

In January 2011, the Commission adopted the Mid-term review of the European satellite radio 
navigation  programmes,  where  it  is  stated  that  the  GNSS  applications  markets  are  growing 
rapidly, and that their annual turnover worldwide is expected to reach around € 240 billion by 
2020. Moreover, as a result of the advantages of Galileo and EGNOS compared with the other 
competing systems, they are expected to generate economic and social benefits worth around 
€ 60-90 billion  over the next 20 years. 

Later in the year, the Commission will draft a proposal for legislation aimed at adapting the 
institutional  framework that  covers  the Galileo  and  EGNOS  programmes  to  take  account  of 
the  guidelines  put  forward  by  the  European  Parliament  and  the  Council.  It  is  important  to 
ensure  that  the  satellite  constellation  required  to  pursue  these  programmes  is  put  in  place 
within  a  reasonable  amount  of  time  and  that  all  of  the  provisions  required  for  the  gradual 
deployment of Galileo services are implemented.  

2.2. 

Using  Space  for  the  Benefit  of  the  Environment  and  to  Aid  the  Fight  against 
Climate Change: the GMES Programme 

2.2.1.  The Implementation of GMES 

The  purpose  of  the  GMES  programme  is  to  guarantee  continuous  access  to  information 
services  on  the  environment  and  security  issues  which  are  based  on  permanent  space-based 
observation and in-situ infrastructures. The GMES programme plays a vital role in monitoring 
the  sea,  land  and  atmospheric  environment,  aiming  to  facilitate  better  understanding  of  the 
European  and  global  environments  as  a  basis  for  policy.  It  will  help  underpin  a  sustainable 
use of resources as well as providing better information on climate change.  

It  may  thus  be  used  to  support  policies  on  climate  change  adaptation  and  security,  and  to 
contribute  to  crisis  prevention  and  management,  with  particular  emphasis  on  humanitarian 
aid, development assistance and civil protection.  

Beyond  improving  the  provision  of  services,  both  to  public  policy-makers  and  to  citizens, 
GMES  has  the  potential  to  create  opportunities  for  increased  private-sector  usage  of 
information sources. 

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A  Regulation  governing  the  initial  operations  of  the  GMES  programme  2011-2013  was 
adopted in 2010 by the European Parliament and the Council6. The GMES programme now 
has a legal basis that makes it more than a research activity. The current priority is to ensure 
that it is implemented quickly and effectively, in partnership with the Member States, and that 
it is fully operational by 2014.  

2.2.2.  Climate Change as a Challenge Facing Society 

The GMES programme is a powerful tool at the Union's disposal in the fight against climate 
change.  Space  observation,  along  with  observation  from  other  sources,  provides  us  with 
information  to  improve  our  understanding  of  how  the  climate  is  evolving  and  enables  us  to 
draw up policy to adapt to that development. 

The EU  and  its Member  States could  benefit  from the permanent, systematic availability of 
additional information that could prove useful when adapting numerous public policies, with a 
view, in particular, to improving the effectiveness of measures taken to prevent, or respond to, 
climate  change.  The  EU  would  also  be  in  a  stronger  position  if  it  had  reliable,  independent 
sources of information to ensure that  international commitments in the fight against climate 
change are being met. This monitoring capacity at EU level yields further benefits, as it can 
complement or replace resources that have until now been at national or regional level. 

To this end, it is necessary to build on existing space monitoring infrastructure and to ensure 
the  continuity  of  the  infrastructure  needed  in  order  to  implement  and  pursue  policies  to 
combat  and  adapt  to  climate  change;  the  overall  aim  is  to  strengthen  the  'climate  change' 
component of the GMES programme. As manager and user of the GMES programme, the EU 
must  define  and  facilitate  the  development  of  this  European  service  and  the  necessary 
infrastructure. 

2.3. 

Secure Space to Achieve Security and Defence Objectives  

As  regards  security,  space  infrastructure  acts  as  both  an  instrument  and  an  asset.  As  an 
instrument  it  can  serve  the  European  Union's  security  and  defence  interests;  as  an  asset  it 
requires protection. 

2.3.1.  The S (Security) component of the GMES programme 

The seventh meeting of the Space Council in November 2010 recommended that "within the 
GMES  programme,  additional  consideration  should  be  given  on  how  to  meet  the  specific 
needs of security policies and the services dedicated notably to maritime surveillance, border 
control and support for EU external actions". 

The  S  (Security)  component  of  the  GMES  programme  must  therefore  be  enhanced. 
Discussions are taking place to analyse how new developments affecting space technologies 
can  contribute  to  effective  solutions  for  areas  such  as  monitoring  borders,  support  for  the 
European Union's external action, maritime surveillance, complex emergencies, humanitarian 
aid and civil protection. 

6 

Council  Regulation  (EEC)  No  911/2010  of  the  European  Parliament  and  of  the  Council  of  22 
September 2010, OJ L 276, p.1, 20 October 2010 

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Although  GMES  is  a  programme  solely  for  civilian  use,  it  is  important  to  identify  how 
existing dual-use observation resources – i.e. both civilian and military – can contribute to the 
GMES programme, for example, for the systematic surveillance of large geographical areas or 
the  tactical  surveillance  of  smaller  areas.  Different  space  technologies  with  sufficient 
resolution  must  be  deployed  and  response  times  must  be  improved  if  the  requirements  of 
security missions are to be met. 

2.3.2.  The Security Dimension of Space Policy 

The seventh meeting of the Space Council acknowledged "the reinforced EU engagement in 
security  and  defence  matters  embedded  in  the  Lisbon  Treaty  and  the  setting-up  of  the 
European  External  Action  Service".  It  invited  the  European  Commission,  the  EU  Council, 
assisted by the European Defence Agency (EDA), together with Member States and the ESA 
"to explore ways to support current and future capability needs for crisis management through 
cost-effective access to robust, secure and reactive space assets and services […] taking full 
advantage  of  dual-use  synergies  as  appropriate."  It  also  invited  "the  European  Commission 
and the EU Council to propose policy solutions where necessary". 

The  Member  States  have  valuable  capabilities,  and  have  acknowledged  the  European 
dimension of space for security and defence by launching the MUSIS (Multinational Space-
Based  Imagining  System  for  Surveillance,  Reconnaissance  and  Observation)  project.  In  the 
spirit of the Common Security and Defence Policy, the EU's security needs may be met either 
by  deploying  national  resources  in  a  coordinated  manner  or  by  implementing  shared 
resources.  

In order to strengthen its security missions without depending on the facilities and services of 
non-Member States and to ensure the continuity of missions developed by the Member States, 
the EU must begin discussions with the Member States to look into the possible options. In 
the  framework  of  the  Common  Security  and  Defence  Policy,  the  EU  could,  for  example, 
coordinate national facilities under conditions to be agreed with the owner Member States and 
identify additional needs in order to fulfil more effectively operational needs in the areas of 
crisis  management  and  external  action.  To  meet  those  needs,  the  EU  could  take  part  in  the 
development  of  new  infrastructure.  The  appropriateness  of  using  commercial  facilities  for 
security missions must also form part of these discussions. 

This  approach  must  take  account  of  related  policies  –  such  as  maritime  security  and 
surveillance – pursued by the Union and the Member States. 

2.3.3.  Making Space Infrastructure Secure 

Space infrastructure is critical infrastructure on which services that are essential to the smooth 
running  of  our  societies  and  economies  and  to  our  citizens'  security  depend.  It  must  be 
protected and that protection is a major issue for the EU that goes far beyond the individual 
interests of the satellite owners. 

Such  infrastructure  is  at  risk  of  damage  or  destruction  by  natural  phenomena,  such  as  solar 
radiation and asteroids, and by other spacecraft and their debris. It is also under threat from 
electromagnetic interference, be it intentional or otherwise. 

Some  Member  States  have  the  resources  to  respond  in  part  to  these  risks.  However,  these 
resources are inadequate because of their technical shortcomings and the absence of sufficient 
coordination  mechanisms.  Consequently,  in  order  to  ensure  the  protection  of  its  space 

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infrastructure, the EU is largely dependent on the resources and the good will of non-Member 
States.  

In  2008,  the  fifth  Space  Council  meeting  confirmed  that  Europe  must  "develop  a  European 
capability for the monitoring and surveillance of its space infrastructure and of space debris". 
It  also  confirmed  that  the  Union  needs  to  play  an  active  role  in  the  implementation  of  the 
Space Situational Awareness (SSA) system and its governance mechanisms. 

Implementing this system involves gathering existing resources, making good any shortfalls 
and  maintaining  and  operating  the  system.  The  Industrial  Policy  Communication  states  that 
"the  Union  should  define  the  organisation  and  governance  of  such  a  system  taking  into 
account its dual nature and the need to ensure its sustainable exploitation." The SSA system 
should be organised according to a structure, yet to be defined, that would take account of the 
level  and  extent  of  participation  of  each  Member  State  and  of  the  other  bodies  involved, 
depending on the missions to be accomplished and constraints to be respected. 

2.4. 

Space Exploration 

In  2008,  the  Space  Council's  resolution  highlighted  "the  need  for  Europe  to  develop  a 
common  vision  and  long-term  strategic  planning  for  exploration,  ensuring  key  positions  for 
Europe, therefore based on its domains of excellence". Active involvement by the EU in this 
area  would  enable  it  to  establish  a  closer  link  between  space  exploration  and  social  and 
economic  challenges  by  merging  the  interests  of  the  different  Member  States  and  ensuring 
that internal resources are used effectively. There is a political dimension to space exploration 
that goes beyond the issues inherent in research and development. 

Europe is a partner that is known for its competence and reliability in this sector, but it is not 
making the most of its potential because its actions are too piecemeal and because of the lack 
of  linkage  between  space  exploration  and  the  political,  economic  and  social  challenges  that 
we face. 

Following  consultation  between  the  Union,  the  ESA,  the  Member  States  concerned  and  the 
international  partners,  four  priorities  have  been  identified:  critical  technologies,  the 
International  Space  Station  (ISS),  access  to  space  and  setting  up  a  high-level  international 
forum. 

Specifically,  the  Union  seeks  to  identify  and  support  the  development  of  essential 
technologies  for  exploration,  in  particular  in  the  fields  of  energy,  health  and  recycling 
(support for life in isolated environments). These matters are not necessarily dealt with in the 
space  sector  itself  and  cross-fertilisation  should  be  promoted  with  other  sectors  in  order  to 
benefit the citizens directly.  

The Union could also explore options to work with the ISS, ensuring that all Member States 
participate in it. 

The  EU's  independent  access  to  space  also  means  increased  European  capability  to  pursue 
independent missions from Europe's spaceport in Kourou. 

Lastly,  a  high-level  international  platform  should  be  set  up  in  order  to  identify  the  areas  of 
space exploration open to international cooperation,  to strengthen the political dimension of 
international discussions on space exploration and to enhance cooperation synergies with non-
Member States; in short, a platform enabling the EU to coordinate the European space effort. 

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3. 

COMPETITIVENESS: SPACE AS AN INTEGRAL PART OF THE EUROPE 2020 STRATEGY. 

3.1. 

Space Industry Policy for the Benefit of Competitiveness 

Under Article  189 of  the TFEU, the  Union "shall draw up a European space policy" with a 
view to promoting, inter alia, industrial competitiveness. The space industry – manufacture, 
launching  and  operating,  applications  and  services  –  is  a  driving  force  for  growth  and 
innovation, generating highly qualified jobs and market opportunities for innovative products 
and services far beyond the space sector. 

The  space  industry  is  a  key  sector  given  society's  increasing  dependence  on  space 
infrastructure and applications for both civilian and military use. In the space industry, there is 
a  high  degree  of  concentration  but  few  SMEs.  In  Europe,  in  common  with  other  space 
powers,  the  space  sector  is  highly  reliant  on  public  procurement,  and  has  to  contend  with 
increased competition on the world market.  

Satellite communications (SATCOM) form a significant part of this market: orders for such 
equipment provide regular work for the launch sector, thereby contributing to the objective of 
independent access to space for the European Union and its Member States, who depend on 
affordable launching capacities for their programmes. The Commission believes that it is vital 
to  quickly  draw  up,  in  close  cooperation  with  the  ESA  and  the  Member  States,  a  space 
industry policy that fully reflects the specific needs of each sub-sector. The main objectives of 
such a policy would be the steady, balanced development of the industrial  base as  a whole, 
including  SMEs,  greater  competitiveness  on  the  world  stage,  non-dependence  for  strategic 
sub-sectors  such  as  launching,  which  require  special  attention,  and  the  development  of  the 
market for space products and services. 

To this end, the European Union, the Member States and the ESA must use the mechanisms 
available to them in a coordinated manner.  

As regards the Union's space programmes it is necessary to make better use of the European 
regulatory  framework,  regarding  trade  in  particular,  and  of  the  financial  instruments  to 
support  research  and  innovation  and  to  define  the  most  appropriate  type  of  procurement 
procedures and the applicable award procedures when EU funding is concerned. The option 
of adopting specific provisions under particular legislative acts could be examined.  

3.2. 

Boosting Research and Innovation 

Europe  needs  a  solid  technological  base  if  it  is  to  have  an  independent,  competitive  space 
industry.  It  must  also  develop  the  necessary  resources  to  meet  long-term  needs  while 
maintaining basic space research. In this regard, it is vital to develop key generic technologies 
such as advanced materials and nanotechnology. 

The purpose of investment must be to increase the excellence of European research. In order 
to  rectify  current  shortcomings,  it  is  necessary to  support  research  into  critical  technologies 
(i.e.  those  that  are  essential  for  the  sector's  strategic  non-dependence)  and  breakthrough 
technologies  (i.e.  those  that  constitute  genuine  technological  advances),  including  research 
supporting  space  exploration.  The  Community  research  efforts  contributing  to  these 
challenges will be set out in the proposal for the Common Strategic Framework for Research 
and Innovation funding. 

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Most of the expected benefits of space investment, for the sector itself and beyond, relate to 
its  effect  on  innovation.  Space  policy  can  make  a  decisive  contribution  to  making  the 
'Innovation Union' a reality. The sixth Space Council meeting of May 2009 emphasised "the 
need to mobilise existing innovation support mechanisms at European, national and regional 
level,  and  consider  new  support  instruments".  Mobilising  these  mechanisms  will  make  it 
possible  to  improve  developing  infrastructure  by  boosting  the  market  for  applications  and 
services  derived  from  the  Galileo/EGNOS  and  GMES  programmes,  as  well  as  for  the 
telecommunications  sector.  In  turn,  the  setting  of  ambitious  space  objectives  will  stimulate 
innovation. 

3.3. 

Telecommunications Satellites Fostering Innovation 

Communications satellites constitute a key space sector, generating the largest revenues in the 
space industry, in both Europe and the rest of the world7. 

Communications  satellites  offer  greater  access  to  a  broad  range  of  economic  and  social 
services  such  as  high-speed  Internet,  television  and  radio  and  improved  transport  facilities. 
They  also  facilitate  the  development  of  services  for  the  citizens  such  as  public  safety  and 
emergency-response, health and home-based services. Accordingly, communications satellites 
have a clear role to play in delivering on the Digital Agenda for Europe objective of bringing 
basic broadband to all Europeans by 2013 and they also have the potential to contribute to the 
objective  for  all  Europeans  to  have  access  to  an  Internet  speed  of  30  Mbps  by  2020.  In 
particular  for  the  most  remote  and/or  rural  regions  of  Europe,  communication  satellites  can 
bring  broadband  connections.  These  developments  will  parallel  the  implementation  of  the 
GMES and Galileo programmes. 

Advanced  technologies  developed  for  communication  satellites  can  also  be  integrated  into 
navigation  and  earth  observation  applications.  In  particular,  the  re-use  of  public  sector 
information  (PSI)  has  proven  instrumental  in  fostering  a  number  of  new  services  to  the 
citizens  directly.  In  the  area  of  security,  for  instance,  the  Europe-wide  eCall  system  of 
automatic emergency calls in vehicles relies on precise location and will therefore help reduce 
the  number  of  deaths  and  the  damage  and  personal  injuries  suffered  by  citizens  in  road 
accidents.  In  order  to  maintain  Europe's  lead  in  satellite  communication  technologies, 
research  must  be  carried  out  at  European  level,  given  the  spin-offs  it  can  create  for  other 
application sectors. Lastly, the availability of the appropriate radio spectrum will be necessary 
to  ensure  that  satellite  communications  and  space  infrastructure  are  operational  and  help 
achieve the European Digital Agenda and EU space policy objectives. It is crucial to take this 
into account in pursuing existing programmes and in defining new European space initiatives. 

4. 

THE INTERNATIONAL DIMENSION OF THE EU'S SPACE POLICY 

International cooperation is vital when it comes to space. Increasingly, space endeavours are 
no  longer  a  matter  for  individual  nations  alone  and  in  many  cases  can  only  be  efficiently 
achieved  by  pooling  technological  and  financial  capacities. International  cooperation  should 
also serve as a market opener for the promotion of European technology and services in the 
space field and so help strengthen this strategic industrial sector. International cooperation in 
space  should  also  support  the  promotion  of  European  values  through  space-based  projects 
focused  on  environmental  protection,  climate  change,  sustainable  development  and 

7 

Telecommunications satellites account for over 60% of the space industry's turnover. 90% of satellites 
launched by Ariane 4 and 5 are communications satellites. 

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humanitarian action. The EU, in close collaboration with the ESA, will continue to maintain 
and  strengthen  its  "space  dialogues"  with  its  strategic  partners  –  i.e.  the  United  States  and 
Russia – with a view to increasing cooperation. These dialogues seek to identify areas where 
there is mutual benefit in cooperation; they cover a broad range of activities including Earth 
observation and Earth science, Global Navigation Satellite Systems, Space Science and space 
exploration. The EU will also propose that space dialogues, the scope and objectives of which 
will  be  set  out  in  appropriate  bilateral  arrangements,  be  established  with  other  existing  and 
emerging  space  powers,  in  particular  the  People's  Republic  of  China;  the  EU  will  seek 
constructive  solutions  to  issues  of  cooperation  and  sharing  open  frequencies  in  the  field  of 
satellite navigation.  

The EU must ensure that space-related matters are better integrated into the Union's external 
policy. The EU would, in particular, like to ensure that its expertise and infrastructure benefit 
Africa and to step up ongoing cooperation. Earth observation data or data obtained by satellite 
systems  are  essential  for  Africa,  in  particular  for  transport  safety,  cartography,  the 
management  of  water  and  rivers,  food  resources  and  raw  materials,  biodiversity,  soil  use, 
deforestation  and  combating  desertification.  There  is  already  active  cooperation  regarding 
space applications as part of the Africa-EU partnership on Science, Information Society and 
Space.  In  the  seventh  Space  Council  meeting,  the  Council  insisted  "that  the  decisions  to 
implement the related priorities of the GMES and Africa action plan be taken without delay". 
It  invited  "the  European  Commission  to  work  with  the  African  Union  Commission  towards 
capacity building in this area […] and to determine the way a similar infrastructure to EGNOS 
could  be  implemented  in  Africa".  As  regards  EGNOS,  the  November  2010  Europe-Africa 
summit approved an action plan aimed at, in particular, the secondment of staff to the entity 
managing the African GNSS programme, the training of African experts and the development 
of initial infrastructure and start-up operations.  

The  European  Union  will  continue  to  support  efforts  of  the  international  community  to 
strengthen  the  security,  safety  and  sustainability  of  activities  in  outer  space,  in  particular 
through the EU proposal for a Code of Conduct for Outer Space activities. 

The EU's competence in the area of space will help strengthen its role in multilateral forums. 
As  regards  earth  observation,  Europe  is  closely  involved  in  developing  the  Global  Earth 
Observation  System  of  Systems  (GEOSS)  international  initiative.  The  Commission  will 
therefore continue to make the necessary efforts to implement mechanisms for sharing earth 
observation  data  in  Europe,  subject  to  the  acceptance  of  such  mechanisms  by  GEOSS 
members. 

5. 

TOWARDS A WELL-STRUCTURED GOVERNANCE 

The EU's increasing involvement in Europe's space policy goes hand in hand with increased 
interaction  between  the  different  protagonists  in  this  area.  The  Union  should  therefore 
strengthen  its  cooperation  with  the  Member  States,  examine  its  relations  with  the  ESA  and 
ensure the best possible programme management. 

5.1. 

Strengthening the Cooperation with the Member States 

The shared space competence conferred upon the EU by the TFEU goes hand in hand with a 
reinforced partnership with Member States in the  form of  policy  dialogue and coordination. 
This is all the more necessary given that the EU competence does not prevent Member States 
from exercising their own. 

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Member  States  vary  in  the  extent  of  their  involvement,  their  budget  and  their  technical 
capacities.  In  most  of  them,  space  activities  are  considered  primarily  as  research  activities. 
Even  where  efforts  have  been  made  to  ensure  complementarity  and  synergy,  they  have  had 
limited effect.  

The EU needs to strengthen the political dimension of space. Under Article 189 of the Treaty, 
the Union has the mandate and the capacity to coordinate the Member States' actions and to 
make  this  complementarity  more  effective.  For  this  to  happen,  the  cooperation  between  the 
Union  and  its  Member  States  must  be  strengthened.  All  new  actions  must  also  based  on 
existing resources and on identifying jointly where new resources are needed.  

Recent  institutional  developments  are  the  first  tangible  expression  of  that  strengthened 
cooperation,  which  should  foster  consistency  of  political  objectives,  whilst  ensuring 
compliance  with  the  respective  competences  of  the  Union  and  its  Member  States.  This 
cooperation will reinforce the synergy of the Union's space policy with other policies that use 
the EU's or the Member States' space resources, such as transport, environment, research and 
innovation. 

5.2. 

Developing Relations between the EU and the ESA 

Under Article 189 of the TFEU "the Union shall establish any appropriate relations with the 
European Space  Agency".  The EU's  increasing involvement in  space  entails re-assessing  its 
relations with the ESA and gradually adapting the ESA's operations so that maximum benefit 
can be derived from the two organisations. 

The political dimension in space-related matters means that Europe's involvement must not be 
geared  solely  or  mainly  towards  technical  or  scientific  aspects.  For  its  part,  the  EU  should 
gather  and  identify  the  users'  needs  in  order  to  ensure  that  space  resources  meet  European 
citizens'  needs  in  full.  The  Commission  helps  to  achieve  that  aim  by  meeting  the  different 
actors on a regular basis. 

Operating bodies have been set up in different areas such as operational meteorology (namely 
EUMETSAT,  which  originally  stems  from  the  ESA)  with  a  view  to  serving  the  users  more 
effectively. The Commission must step up contact with these bodies and could, in part, make 
use of them to implement the Galileo and GMES programmes.  

For its part, the ESA, which implements programmes for its Member States and for the EU, 
has  strong  technical  and  management  infrastructure  and  could  support  the  development  of 
new space facilities as regards both intergovernmental and EU-funded programmes. 

Discussions  are  ongoing  in  the  ESA  regarding  its  future  as  an  organisation.  Without  pre-
judging  the  outcome  of  those  discussions,  the  European  Commission  takes  the  view  that 
developing  the  roles  of  the  various  actors  in  space  in  Europe  should  also  involve  the 
pragmatic development of the ESA, taking account of the respective roles of the ESA and the 
EU in terms of research, funding and operating capabilities.  

As  far  as  the  Commission  is  concerned,  the  ESA  should  continue  to  develop  into  an 
organisation  with  an  intergovernmental  and  an  EU  dimension  in  which  military  and  civil 
programmes  can  coexist.  As  regards  the  implementation  of  the  Galileo  and  GMES 
programmes, the ESA is already subject to the EU's rules. It will pursue closer ties with the 
EU  and,  according  to  need,  will  continue  to  have  management  structures  geared  solely 
towards EU programmes. 

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The  model  should  be  flexible  enough  to  adapt  to  the  level  of  funding  that  the  various 
protagonists  set  aside  for  the  different  programmes  in  the  future.  A  flexible  membership 
structure should also be established in order to enable Switzerland and Norway to take part in 
some programmes and to offer limited participation to some Member States. 

These developments mean that in due course the framework agreement between the EU and 
the ESA will need to be reviewed. In any case, account should be taken of their impact on the 
applicable legal framework, in view of the EU's international commitments. 

5.3. 

Better Coordination and Management of Space Programmes 

Space programme management remains fragmented and international investment segregated. 
The  proliferation  of  protagonists  –  the  Member  States  via  the  space  agencies,  the  ESA, 
EUMETSAT and the EU – is not conducive to effective decision-making or implementation. 

The Commission wishes to propose better space programming by enhancing the coordination 
of  the  programme  committees  (such  as  the  Galileo  and  GMES  programmes)  and,  more 
generally, better coordination of the different protagonists' actions in order to meet the users' 
and  citizens'  needs  more  consistently  and  ensure  sound  and  efficient  management  of  public 
resources.  

6. 

TOWARDS A EUROPEAN SPACE PROGRAMME 

Article 189 of the Lisbon Treaty gives the Union a broader legal framework that enables it to 
define a distinct and complementary European space programme of more sector-based actions 
based on other articles in the Treaty or other legal acts. 

The Commission is looking into the possibility of presenting a proposal for such a programme 
in 2011. Taking responses to this communication into account, it will decide on its approach 
as part of its June proposal on the next multi-annual financial framework. 

7. 

CONCLUSION 

Article 189 of the TFEU opened up new perspectives for developing an EU space strategy. To 
this  end,  the  Commission  has  set  out  practical  options  in  this  communication.  The 
Commission thus submits it for the opinion of the Council, the European Parliament and the 
Union's consultative bodies, which is a necessary stage in the formation of such a strategy and 
of the measures to be taken for that strategy to be implemented. 

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