COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS An Aviation Strategy for Europe
Date: 2015-12-07
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: air safety, air space, air transport, carriage of passengers, competitiveness, innovation, investment, job creation, reduction of gas emissions

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 7.12.2015  COM(2015) 598 final   COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS An Aviation Strategy for Europe {SWD(2015) 261 final}  
 
 
AN AVIATION STRATEGY FOR EUROPE 

I. INTRODUCTION – TAKING AVIATION TO NEW HEIGHTS 

1.1 Why aviation matters for the EU 

Aviation  is a strong  driver of economic growth, jobs, trade and  mobility for the European  Union. It 
plays  a  crucial  role  in  the  EU  economy  and  reinforces  its  global  leadership  position.  An  Aviation 
Strategy  is  needed  to  ensure  that  the  European  aviation  sector  remains  competitive  and  reaps  the 
benefits  of  a  fast-changing  and  developing  global  economy.  This  Aviation  Strategy  will  therefore 
provide a strong contribution towards delivering on the core priorities of European Commission. 

The  EU  aviation  sector  directly  employs  between  1.41  million  and  22  million  people  and  overall 
supports between 4.83 million and to 5.54 million jobs. The direct contribution of aviation to EU GDP 
is €110 billion5, while the overall impact, including tourism,  is as large as €510 billion6 through the 
multiplier effect. The availability of direct intercontinental flights is effectively a major determinant in 
the  location  choices  of  large  firms’  headquarters  in  Europe:  a  10%  increase  in  the  supply  of 
intercontinental flights results in a 4% increase in the number of headquarters of large firms.7 A 10% 
increase of departing passengers in a metropolitan region increases local employment in the services 
sector by 1%.8  

Over the last 20 years, the EU's liberalisation of the internal market for air services and the substantial 
growth  of  demand  in  air  transport  within  the  EU  and  worldwide,  have  resulted  in  the  significant 
development of the European aviation sector. Air transport users enjoy an unprecedented choice of air 
travel  opportunities  at  competitive  prices.  The  number  and  frequency  of  intra-EU  as  well  as 
international routes flown, and the number of passengers have increased substantially9. Low-fare EU 
carriers  are  now  amongst  the  top  carriers  both  in  terms  of  passengers  and  in  terms  of  market 
capitalisation. European aeronautical manufacturing has been equally strong.  

The  international  aviation  sector  outside  Europe  has  also  been  witnessing  some  significant 
developments,  characterised  by  very  strong  growth  in  certain  world  regions.  This  is  associated  with 
the shift of the world's economic centre of gravity towards the East, notably Asia10. As a result, several 
new airlines and airports have emerged and are posing a new and considerable challenge for European 
hub airports and carriers. 

At  the  same  time,  growth  in  air  traffic  in  Europe  and  worldwide    needs  to  be  reconciled  with 
maintaining  high  standards  of  aviation  safety  and  security,  as  well  as  reducing  aviation's 
environmental  footprint  and  contributing  to  the  fight  against  climate  change.  In  short,  aviation  must 
grow in a sustainable manner. 

1.2 A comprehensive strategy for a more competitive EU aviation sector 

As aviation's contribution to the overall performance of the EU economy and its global presence is so 
significant,  it  is  critical  that  the  EU  aviation  sector  remains  competitive,  maintains  its  leadership 
position  and is  able  to  grow.  Europe  must  be  a  leading  player  in  international  aviation  and  a  global 
model for sustainable aviation, with a high level of service and ambitious EU standards. The goal of 

1-3-5-6 Steer Davies Gleave – Study on employment and working conditions in air transport and airports, Final report 2015. 
2-4 Aviation: Benefits Beyond Borders, Report prepared by Oxford Economics for ATAG, April 2014. 

7 Germa Bèl, Xavier Fageda Getting there fast: globalization, intercontinental flights and location of headquarters - Journal of Economic 
Geography 8 (2008) . 
8 Jan K. Brueckner, Airline Traffic and Urban Economic Development, Urban Studies, 2003. 
9 There are today more than 3500 routes between EU Member States and more than 2500 extra-EU routes, Commission Staff Working 
Document, chapter 1 section 2. 
10 The Asia Pacific region is expected to grow the fastest and will account for 40% of global air traffic by 2034, Commission Staff Working 
Document, chapter 1 section 4. 

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this  Aviation  Strategy  is  to  strengthen  the  competitiveness  and  sustainability  of  the  entire  EU  air 
transport value network.  

The Commission has therefore identified three key priorities: 

  Tapping  into  growth  markets,  by  improving  services,  market  access  and  investment 

opportunities with third countries, whilst guaranteeing a level playing field; 

  Tackling limits to growth in the air and on the ground, by reducing capacity constraints and 

improving efficiency and connectivity; 

  Maintaining high EU safety and security standards, by shifting to a risk and performance based 

mind-set; 

In this context, EU actions in the following areas are also needed: 

  Reinforcing the social agenda and creating high quality jobs in aviation;  

  Protecting passenger rights;  

  Embracing a new era of innovation and digital technologies;  

  Contributing to a resilient Energy Union and a forward-looking Climate Change Policy. 

This Aviation Strategy has been guided by a public consultation11 and has benefitted from input from, 
and  extensive  dialogue  with  EU  Member  States,  the  European  Parliament,  the  European  Economic 
and  Social  Committee,  and  stakeholders.  It  will  be  taken  forward  in  line  with  principles  on  "Better 
Regulation"12.  All  actions  with  significant  impacts  will  be  subject  to  consultation  and  impact 
assessment.  

II. GETTING EU AVIATION BACK AHEAD OF THE CURVE  

2.1 Tapping into growth by improving services and access to growing markets 

New competitors and emerging markets 

European  aviation  is  facing  new  competitive  challenges  in  a  rapidly  evolving  global  market,  in 
particular as a result of a shift of economic growth to the East.  These new competitors are benefitting 
from  the  rapid  economic  growth  of  the  entire  region,  notably  Asia,  and  from  aviation  becoming  a 
strategic element in their home-country's economic development policies. 

With an annual growth forecast of 6%, scheduled passenger traffic in the Asia Pacific region is likely 
to grow faster than in other regions until 2034 when it will account for 40% of world air traffic. China 
is  expected  to  become  the  world’s  largest  air  transport  market,  overtaking  the  United  States  of 
America in 2023 in terms of number of passengers carried.13 

Unlike other industries, air transport suffers from a number of restrictions in relation to investment and 
market  access  which  hinder  the  sustainable  and  dynamic  growth  of  the  sector.  These  barriers  have 
largely  been  removed  within  the  European  Union  through  the  creation  of  the  EU's  Single  Aviation 
Market. For example, there is no limitation on traffic rights within Europe for EU airlines, as long as 
they have been granted an EU operating licence. Airlines can fly to any European destination to serve 

11 http://ec.europa.eu/transport/modes/air/consultations/doc/2015-aviation-package/synopsis-report.pdf. 
12 European Commission, Communication "Better regulation for better results", COM(2015)215 of 19.05.2015. 
13 Commission Staff Working Document, chapter 1 section 4. 

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the  needs  of  passengers  in  Europe.  There  is  no  limit  on  investment  by  EU  investors  in  EU  airlines. 
However,  restrictions  and  obstacles  are  still  very  common  outside  Europe  and  in  the  context  of 
international services and third country markets.  For example, European airlines are still restricted in 
their ability to access third-country markets, to access different sources of investment (notably foreign 
investments), and to merge and create large fully-integrated airline groups without their traffic rights 
being called into question. 

An ambitious EU external aviation policy targeting growth markets 

The  EU  aviation  sector  must  be  allowed  to  tap  into  the  new  growth  markets  where  significant 
economic opportunities will be generated in the decades to come. Geography is not the only factor that 
determines  the  location  of  successful  international  hub  airports  and  airlines.  The  availability  of 
suitable infrastructure, the nature of economic, fiscal and regulatory regimes, and historic, cultural and 
trading links all play a part.14 These parameters can be managed and Europe has all the instruments at 
its disposal to do so. 

Experience  has  shown  that  negotiating  EU  level  comprehensive  aviation  agreements  with  third 
countries  is  an  effective  tool.   For  example,  since  the  signature  of  the  EU  Air  Transport  agreement 
with the Western Balkan States, the number of passengers has almost tripled. In the case of Morocco, 
it has doubled. Since the conclusion of the agreements with US and Canada the combined growth in 
passengers between EU and these markets has been more than 3 million. 

By adopting an ambitious external aviation policy through the negotiation of comprehensive aviation 
agreements, with a clear focus on growth markets, the EU can contribute to improving market access 
and investment opportunities for European aviation in important overseas markets, increasing Europe's 
international connectivity and ensuring fair and transparent market conditions for EU airlines. As the 
experience in the EU's aviation market has shown, market opening achieved through such agreements 
will  also  generate  opportunities  for  new  entrants  and  new  business  models  to  emerge.  The 
Commission will seek to ensure swift progress in any forthcoming negotiations in a way that ensures 
continuing growth of the European airline industry. 

Furthermore, in order to support worldwide trade in aircraft and related products, the EU should also 
expand  the  range  of  bilateral  aviation  safety  agreements  aimed  at  achieving  mutual  recognition  of 
safety certification standards. These agreements significantly reduce the transaction cost of exporting 
aircraft,  while  ensuring  high  levels  of  safety  in  partner  countries  and  helping  to  harmonise  product 
standards worldwide. Having successfully concluded such agreements with the United States, Brazil, 
and  Canada,  the  EU  should  pursue  negotiations  with  other  key  aeronautical  partners,  notably  China 
and Japan. 

Market access based on a level playing field 

For  the  EU  aviation  industry  to  remain  competitive,  it  is  essential  that  market  access  is  based  on  a 
regulatory framework which promotes EU values and standards, enables reciprocal opportunities and 
prevents distortion of competition.  

As  there  is  currently  no  international  legal  framework  to  deal  with  possible  unfair  commercial 
practices in international aviation, it is important and legitimate for the EU to address such practices to 
ensure fair and sustainable competition.  Regulation 868/200415 on the protection against subsidisation 
and  unfair  pricing  practices  covers  this  issue  but,  as  it  currently  stands,  is  not  considered  effective 
among  stakeholders.  This  issue  should  be  addressed  in  the  context  of  the  negotiation  of  EU 
comprehensive  air  transport  agreements  and  by  intensifying  corresponding  policy  action  at  the 

14 (UK) Airports Commission, Final Report, July 2015. 
15 Regulation (EC) No 868/2004 of 21 April 2004, OJ L 162, 30.4.2004, p. 1–7. 

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International Civil Aviation Organization level. In addition, the Commission is considering proposing 
new EU measures to address unfair practices as soon as possible in 2016.16 

Ownership  and  control  provisions  form  an  essential  element  of  the  current  international  regulatory 
framework. Indeed, airlines are becoming increasingly interesting for investors and global investment 
funds.  However,  ownership  and  control  provisions  under  the  international  framework  contain 
nationality and control elements which may discourage investments from non-nationals.  
Foreign investors are able to invest in EU airlines but cannot exceed 49% of ownership17, while the 
control of the company must remain in EU hands. Several  major foreign investments in EU airlines 
have  taken  place  over  recent  years  triggering  reviews  of  the  investment  rules  by  civil  aviation 
authorities and the European Commission to ensure that the control of EU airlines remains in line with 
EU law. Several investigations are still on-going. These investigations show the need for cooperation 
between authorities and the need for a common understanding of how to carry out the assessment of 
the 'control' criteria and their proper application.  

Bearing in mind the commercial and financial importance of many airlines and the significant upfront 
financial needs of airlines to operate efficiently in a highly competitive environment, the relevance and 
importance of ownership and control requirements, as included in Regulation 1008/200818 should be 
carefully examined in this light. The Commission will continue to pursue the relaxation of ownership 
and  control  rules  on  the  basis  of  effective  reciprocity  through  bilateral  air  services  and  trade 
agreements with the longer term objective to do so at multilateral level.  

The Commission: 

  Recommends  to  the  Council  the  issuance  of  authorisations  to  negotiate  comprehensive  EU-
level  air  transport  agreements  with  the  following  countries  and  regions:  China,  ASEAN 
(Association  of  Southeast  Asian  Nations),  Turkey,  Saudi  Arabia,  Bahrain,  UAE  (United  Arab 
Emirates), Kuwait, Qatar, Oman, Mexico and Armenia; 

  Recommends that the EU negotiates further bilateral aviation safety agreements with important 

aeronautical manufacturing nations such as China and Japan;  

  Proposes to launch new aviation dialogues with important aviation partners such as India; 

  Will  negotiate  effective  fair  competition  provisions  in  the  context  of  the  negotiation  of  EU 
comprehensive air transport agreements and consider measures to address unfair practices from 
third countries and third country operators; 

  Proposes to publish interpretative guidelines on the application of Regulation 1008/2008 with 
respect  to  the  provisions  on  the  ownership  and  control  of  EU  airlines  to  bring  more  legal 
certainty for investors and airlines alike. 

2.2 Tackling limits to growth both in the air and on the ground 

The  main  challenge  for  the  growth  of  European  aviation  is  to  reduce  the  capacity  and  efficiency 
constraints,  which  are  seriously  impeding  the  European  aviation  sector's  ability  to grow  sustainably, 
compete internationally, and which are causing congestion and delays and raising costs. 

Airports  together  with  air  traffic  management  services  providers  constitute  the  key  elements  of  the 
infrastructure  of  civil  aviation.  The  quality,  efficiency  and  cost  of  these  services  have  become 
increasingly  important  to  the  competitiveness  of  the  industry.  In  Europe,  airports  and  air  traffic 

16 Legislative proposals will be subject to Commission better regulation requirements. 
17 EU Member States or EU nationals must own more than 50% of the undertaking. 
18 Regulation (EC) No 1008/2008 of 24 September 2008, OJ L293, 31.10.2008, p.3-20. 

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management  can  safely  handle  up  to  33,000  flights  per  day.  Yet,  European  airspace  as  a  whole  is 
inefficiently  managed  and  unnecessarily  fragmented,  and  a  slow  implementation  of  the  Single 
European  Sky  framework  means  higher  costs  for  the  airlines,  which  directly  affects  their 
competitiveness.  The  estimated  costs  of  the  EU's  fragmented  airspace  represent  at  least  €5  billion  a 
year. Such an inefficient use of the airspace causes higher prices and delays for passengers, increasing 
fuel  burn  and  CO2  emissions  for  operators,  and  impedes  our  efforts  to  improve  environmental 
performance.19 In addition, major European airports are predicted to face a capacity crunch in the near 
future. 

Completing the Single European Sky  

The  Single  European  Sky  is  a  concrete  example  of  where  the  EU  can  make  a  difference  by  raising 
capacity, improving safety and cutting costs while minimising aviation's environmental footprint. This 
was the initial ambition more than a decade ago, but, the project is  still not delivering. Despite some 
achievements towards a better performing network, the level of cooperation between Member States 
air navigation service providers is still far from optimal, and the technology used is not harmonised or 
state-of-the-art. EU Member States must overcome these challenges in order to achieve a true Single 
European  Sky,  which  is  one  of  the  most  fundamental  challenges  affecting  the  performance  and 
competitiveness  of  the  EU's  aviation  system  today.  For  example,  a  fully  optimised  air  traffic 
management system would reduce the costs stemming from inefficiencies (delays, and longer routes 
etc.). 

As an important step in unleashing this potential for the EU aviation sector, the Commission urges the 
Council and European Parliament to adopt the Single European Sky (SES2+) proposals20, in order to 
ensure  the  effectiveness  of  functional  airspace  blocks  and  network  functions  and  the  swift 
implementation  of  the  EU-wide  targets  for  the  performance  scheme  based  on  a  fully  independent 
performance review body.  

The  efficient  governance  of  the  Single  European  Sky  remains  a  priority  for  the  Commission.  The 
respective  tasks  of  the  European  Aviation  Safety  Agency  and  Eurocontrol  should  be  defined  in  a 
manner  that  ensures  that  both  organisations  complement  each  other’s  tasks,  so  that  overlaps  can  be 
avoided and costs reduced.  

The tasks of the Network Manager in co-ordinating air traffic flow management at European level will 
gradually  be  expanded  to  include  common  services  that  will  further  reduce  the  costs;  these  tasks 
should  evolve  towards  an  industrial  partnership.  In  light  of  this,  the  nomination  for  the  Network 
Manager to act beyond 2020 will take place in 2017.  

The  ultimate  goals  of  the  technological  modernisation  of  air  traffic  management  through  the 
deployment  of  the  Single  European  Sky  Air  traffic  management  Research  project  (SESAR)  are  to 
enable a reduction of air traffic management costs, increased operational efficiency for airspace users 
by  reducing  delays,  fuel  burn  and  flight  time,  an  increase  in  capacity  and  a  reduction  of  CO2 
emissions.  All  these  elements  will  increase  the  environmental  benefits  of  SESAR  solutions,  and  are 
fully linked to the overall air traffic management performance scheme. 

In this context, it is important to deploy technological solutions in a timely and coordinated manner. A 
number  of  instruments  have  been  developed  to  this  end,  such  as  the  air  traffic  management  Master 
Plan,  Common  Projects  and  the  Deployment  Programme.  They  are  implemented  by  public-private 
partnerships, notably the SESAR Joint Undertaking for the definition and development activities and 
the  SESAR  deployment  framework  partnership  for  deployment.  Both  development  and  deployment 
activities  require  appropriate  financial  support.  So  far,  the  EU  is  contributing  through  programmes 
such as Horizon 2020 and the Connecting Europe Facility.   

19 Staff Working Document, chapter 2 section 5.1 
20 COM(2013)409final and COM(2013)410final of 11.06.2013. 

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As  regards  external  relations,  the  Commission  will  continue  to  promote  cooperative  arrangements 
between the Network Manager and key partners of the EU with a view to improving the management 
of  air  traffic.  It  will  also  support  action  from  the  SESAR  Joint  Undertaking  and  the  SESAR 
Deployment  Manager.  Thanks  to  SESAR,  the  EU  is  also  able  to  play  an  influential  role  at  a  global 
level  in  particular  in  the  context  of  the  International  Civil  Aviation  Organization’s  harmonisation 
activities.  

In  order  to  allow  for  continuity  of  air  traffic  management,  a  minimum  level  of  service  in  managing 
European  airspace  should  be  ensured,  allowing  at  least  for  the  movement  of  overflights  (flights 
crossing  the  airspace  of  an  affected  state  or  area)  causing  the  least  amount  of  disruption  to  the 
network.  In  this  respect,  the  Commission  will  promote  the  exchange  of  best  practices  between 
Member States. 

Tackling capacity constraints  

In 2035, according to Eurocontrol, European airports will be unable to accommodate some 2 million 
flights  due  to  capacity  shortages21.  There  will  be  more  than  20  airports  operating  at  or  near  full 
capacity for 6 or more hours per day, against just 3 in 2012, leading to an additional average airport–
related delay of 5-6 minutes per flight. The estimated economic cost of being unable to accommodate 
demand has been estimated at 434,000-818,000 jobs foregone by 2035 and an annual loss in GDP of 
between €28 billion and 52 billion22 at EU level. 

These projections on the airport 'capacity crunch' show that in spite of a well-developed and extensive 
airport network, many of Europe's major airports are severely congested, placing the future sustainable 
growth  of  the  EU  aviation  system  under  threat.  At  the  same  time,  other  airports  in  Europe  are 
underused and there is overcapacity. It is therefore essential to make best use of existing capacity and 
plan well in advance to absorb the forecasted future needs. It is also necessary to ensure better airport 
strategic  planning  at  EU  level.  In  this  context,  the  Commission  welcomes  the  work  of  the  Airport 
Observatory23  which  has  in  particular  recommended  that  airport  strategic  planning  frameworks  be 
developed in each Member State, including master plans for key airports, in accordance with common 
best practices. Building on this, the Commission will ask the Airport Observatory to continue working 
on airport congestion, in particular on mitigating measures but also on the management of minimising 
population exposure to aircraft noise.  

Furthermore, the Commission urges the Council and European Parliament to swiftly adopt the revised 
Slot Regulation24 in order to enable the optimal use of our busiest airports and provide clear benefits to 
the EU economy 25. 

Boosting the efficiency of airport services  

The  availability  of  highly  performing,  competitive  airport  services,  including  runways,  passenger 
terminals  and  ground  handling,  is  critical  for  the  competitiveness  of  the  EU  aviation  sector  and  the 
service quality experience of passengers. 

Stakeholders have questioned the suitability of the current legal framework and this was reflected in 
the Commission's report26 published in 2014 on the application of the Airport Charges Directive27.   

21 In the most likely scenario of Eurocontrol, this equates to 12% of total demand in 2035, 240 million passenger movements or nine airport 
runways' worth of capacity. In all, capacity shortages are predicted at 24 airports around 21 cities. 
22 Observatory on Airport capacity and quality – 2015. 
23 Staff Working Document chapter 2, section 5.3. 
24 Regulation (EC) No 545/2009 of 18 June 2009 , OJ L 167, 29.6.2009, p. 24–25. 
25 For example, the introduction of secondary trading alone could allow the EU aviation system to service an additional 14 million passengers 
per year, yielding €300 million in annual economic benefits. 
26 COM/2014/0278 final. 
27 Directive 2009/12/EC of 11 March 2009, OJ L 70, 14.3.2009, p. 11–16. 

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The  Thessaloniki  Forum  of  Airport  Charges  Regulators  will  continue  its  work  on  the  better 
implementation  of  the  current  Directive,  and  will  provide  the  Commission  with  findings  and 
recommendations  on  the  use  of  market  power  assessment  as  a  means  of  determining  the  optimal 
regulatory  approach.  Indeed  when  airports  are  subject  to  effective  competition,  the  market  should 
determine the level of airport charges and there is no need for regulation. However, when airports are 
not  subject  to  effective  competition,  a  specific  regulatory  framework  may  still  be  necessary.  The 
Thessaloniki  Forum  should  also  work  on  the  transparency  of  airport  charges  and  effective  airline-
airport  consultation.  The  Commission  will  then  assess  the  extent  to  which  the  Airport  Charges 
Directive may need to be reviewed. 

Ground  handling  includes  the  services  provided  at  airports  which  are  essential  for  the  safe  and 
efficient turnaround of aircraft, for example fuelling, passenger handling and de-icing of aircraft. The 
Commission  will  continue  to  pursue  the  effective  implementation  of  the  existing  Directive28,  with  a 
focus on market access for ground handling at EU airports and ensuring a level playing field between 
ground  handlers.  The  Commission  will  undertake  an  evaluation  of  the  ground  handling  services 
Directive and then decide if it needs to be reviewed. 

Finally,  European  airports  should  also  improve  their  multimodal  connections,  leading  to  a  more 
efficient transport network and improved passenger mobility. 

Better connectivity within the EU and worldwide 

The public consultation clearly shows that connectivity (broadly defined as the number, frequency and 
quality  of  air  transport  services  between  two  points)  is  relevant  for  the  travelling  public  and  for 
businesses  and  the  economy  at  large.  Studies29  show  that  the  better  a  city,  region  or  country  is 
connected by air to other destinations in Europe and other parts of the world, the more growth can be 
generated. 

While the increase in connectivity for the vast majority of EU airports has been impressive  over the 
past ten years, with EU airports still delivering the bulk of Europe's connectivity, this cannot be taken 
for granted. In particular, the analysis of the different components of airport connectivity30 shows that 
a  number  of  non-European  airports  have  been  able  to  increase  their  connectivity  outreach  and 
passenger flow to a much greater extent. Airport connectivity in Europe varies significantly between 
major hubs on the one hand offering hundreds of destinations and small regional airports on the other 
with only a few. While this can largely be attributed to differing demand and supply-side conditions 
(e.g.  population  of  the  catchment  area,  level  of  supply-side  competition,  GDP  per  capita),  it  may 
nonetheless  result  in  a  significant  competitive  disadvantage  for  less-connected  cities,  regions  or 
countries.  

Studies undertaken notably by the World Bank31 have shown the importance of monitoring the level of 
air transport services available to citizens in a given city, region or country. The ability to determine 
on a neutral and transparent basis the degree to which connectivity is available and/or socially desired 
is  key  for  informed  policy  making  and  could  allow  benchmarking  of  available  service  levels  of  EU 
airports facing similar demand and supply-side conditions. 

If  it  is  evident  that  the  market  itself  will  not  deliver  an  acceptable  level  of  air  transport  services  to 
given  regions  within  Europe,  Member  States  may  consider  Public  Service  Obligations  to  ensure 
service to and from under-served regions. Regulation 1008/200832 sets the applicable conditions which 
are  aimed  at,  inter  alia,  preventing  possible  misapplication  of  these  obligations.  A  comprehensive 
evaluation of Regulation 1008/2008 was conducted in 2011-2013 and the Public Service Obligations 

28 Council Directive 96/67/EC of 15 October 1996, OJ L 272, 25.10.1996, p. 36–45. 
29 Staff Working Document chapter 2, section 3. 
30 direct, indirect, onward and hub connectivity – See Staff Working Document chapter 2, section 3.1. 
31 http://elibrary.worldbank.org/doi/abs/10.1596/1813-9450-5722. 
32 See footnote 18 

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rules were deemed fit for purpose, but guidance as to their proper interpretation was considered to add 
value33.  

Current aviation taxes and levies applied by Member States over and above the normal profit tax may 
negatively  impact  connectivity  and  competitiveness.  The  Commission  will  publish  an  inventory  of 
those taxes and levies and examine their impact. 

The Commission: 

  Urges  the  European  Parliament  and  the  Council  to  swiftly  adopt the  Single  European  Sky  (SES 
2+) proposals and will continue to work with the  Member States and other stakeholders towards 
the full implementation of the Single European Sky; 

  Will assess the necessity to review the Airport Charges Directive; 
  Will  work  with  the  Airport  Observatory  to  monitor  trends  of  both  intra-EU  and  extra-EU 
connectivity in Europe, identify any shortcomings and the appropriate measures to  be taken; 
  Will  publish  interpretative  guidelines  explaining  the  current  rules  governing  Public  Service 

Obligations. 

2.3 Maintaining high EU safety and security standards  

Over the last 20 years the economic and regulatory landscape of air transport in Europe has changed 
significantly  and  technical  regulation  has  successfully  adapted  to  these  changes.  The  European 
Aviation  Safety Agency  has  also  developed  over  the  last  10  years  into  one  of  the  leading  aviation 
safety authorities in the world. The EU's aviation safety system not only contributes to high standards 
for safety, but also to a level playing field for the industry. However, in view of the new challenges 
ahead, the performance and efficiency of the Single European Aviation Market must now be enhanced 
to ensure its future competitiveness. Adapting the regulatory framework is central to these efforts. 

Safety  and  security  are  pre-requisites  for  a  competitive  aviation  sector.  With  the  aviation  traffic  in 
Europe predicted to reach 14.4 million flights in 2035, 50% more than in 2012, the first objective is to 
maintain  the  current  high  safety  standards  alongside  growing  air  traffic.  This  will  allow  the  EU 
aviation sector to continue to develop safely in the future. To this end, the regulatory system has to be 
better equipped to identify and mitigate safety risks, in a quicker and more effective manner. This can 
be achieved by introducing a risk and performance based approach to safety regulation and oversight, 
by  closing  existing  safety  gaps  and  by  integrating  other  technical  areas  of  regulation  connected  to 
safety more deeply, such as aviation security. 

While safety is crucial, it cannot be looked at in isolation. The regulatory framework must also set the 
conditions under which the aviation industry can thrive and remain competitive on the global market. 
This  includes  the  integration  of  new  business  models  and  emerging  technologies,  such  as  electric 
engines  or  drones.  It  also  requires  a  more  proportionate  approach  to  regulation  and  recognising 
differences in risks involved in various sectors of civil aviation. Finally, it means abolishing rules and 
procedures that add time, burden and cost  but do not contribute to  safety as well as those that  stifle 
innovation  and  entrepreneurship.  There  is  also  room  for  a  greater  reliance  on  recognised  industry 
standards. Ultimately this will provide more regulatory flexibility, while achieving the same or higher 
level of safety overall.  

Furthermore, efficiency and safety gains can be achieved through a better use of available resources at 
EU  and  Member  States  level.  To  this  end,  a  framework  for  the  pooling  and  sharing  of  technical 
resources between the national authorities and the European Aviation Safety Agency should be put in 
place.  It  should  allow  Member  States  to  transfer  on  a  voluntary  basis,  responsibilities  for  the 
implementation of European Union legislation, to the European Aviation Safety Agency or to another 

33 Commission Staff Working Document SWD (2013) 208 final of 6.6.2013. 

9 

 
 
 
 
                                                            
Member State. Regulatory responsibility would become clearer and duplication would be avoided. A 
single European aviation authority should be the longer term ambition. 

Many aviation accidents involving European citizens happen outside the EU. Pursuing high worldwide 
safety standards, based on common standards issued by the International Civil Aviation Organization, 
must therefore remain a key objective of EU action. The EU takes a legitimate interest in the safety of 
foreign airlines operating to the EU or airlines being used by EU citizens when travelling outside of 
the EU. In this respect, the Commission will launch an in-depth evaluation of the existing legislation 
on the imposition of operating bans34 and on rules on aviation accident investigation35, to make sure 
they  deliver  on  the  EU  objectives  in  the  best  possible  way.  Close  cooperation  between  national 
military authorities, the European Defence Agency and the European Aviation Safety Agency will be 
promoted with a view to achieving efficiency and safety gains. 

The  threat  of  terrorism  to  civil  aviation  is  likely  to  remain  high  in  the  foreseeable  future.    High 
aviation security standards are imperative for the functioning and competitiveness of the air transport 
system.  At  the  same  time,  it  is  important  to  combine  effective  security  measures  with  methods  and 
technologies that facilitate passenger flows at airports and minimise the inconvenience and delays for 
passengers. In this respect the Commission will also seek new ways to alleviate the burden of security 
checks  on  passengers,  notably  through  the  use  of  new  technology  and  by  applying  a  risk-based 
approach  in  full  respect  of  fundamental  rights.  Another  important  tool  to  optimise  security  costs  is 
through the one-stop security concept, which allows the passenger to undergo the security controls at 
the  point  of origin  and  then  no  further  security  controls  are  required  at  transfer  points.  The  EU  will 
pursue the mutual recognition and One Stop Security approach with key trading partners to reduce the 
cost of security resulting from duplication and incompatibility of security regimes.  

Like many other sectors, aviation is digitalising at a fast pace. While this brings many benefits it also 
makes  aviation  more  vulnerable  to  cybersecurity  or  cybersafety  risks.  Just  as  it  does  for  other  risks 
affecting flight safety, the Commission will ask the European Aviation Safety Agency to address also 
cyber risks36, in order to foster security by design and to establish the necessary emergency response 
capability. The European Aviation Safety Agency will cooperate with other competent bodies to this 
effect.  

The Commission: 

  Proposes  a  revised  Basic  Regulation  for  common  rules  in  the  field  of  civil  aviation  safety, 

replacing the current Regulation (EC) No 216/2008;  

  Presents  a  revised  European  Aviation  Safety  Programme  document,  describing  the  way  in 

which safety is managed in Europe today. 

2.4 Reinforcing the social agenda and creating high quality jobs in aviation 

Jobs  in  the  EU  aviation  sector  depend  on  the  capacity  of  the  sector  to  generate  significant  growth 
through  structural  reforms.  It  is  also  crucial  to  maintain  leadership  in  aviation  through  a  highly 
educated,  qualified  and  experienced  workforce.  Partnerships  between  research,  universities  and 
industry on education will facilitate the movement of experts between these sectors, which at the end 
would be very beneficial for the development of the European aviation sector.  

New  skills  and  competences,  some  of  which  are  not  yet  broadly  available,  such  as  those  of  drone 
specialists and flight data analysts will have to be developed. Training should be given priority. In this 
respect, the European Aviation Safety Agency Virtual Academy will further develop a true European 

34 Regulation (EC) No 2111/2005 of 14 December 2005, OJ L 344, 27.12.2005, p. 15–22. 
35 Regulation (EU) No 996/2010 of 20 October 2010 OJ L295 of 12.11.2010, p.35-50. 
36 taking into account the requirements in the draft Directive on network and information security, COM (2013) 48, with regard to risk 
management and incident notification, including in the transport sector. 

10 

 
 
 
 
                                                            
network  of  aviation  training  institutes.  Common  standards  regarding  competences  of  aviation  safety 
inspectors should also be established.  

In  the  context  of  the  internationalisation  of  the  industry  and  rising  global  competition,  pressure  on 
airlines  to  reduce  operational  costs  has  been  significant.  Many  EU  air  carriers,  some  of  which  are 
struggling  to  restructure  their  activities,  have  outsourced  non-core  activities  and  gradually  also  core 
activities  to  improve  productivity  and  profitability.  New  business  and  employment  models  have 
emerged,  such  as  the  multiplication  of  operational  bases,  the  recruitment  of  air  crews  through 
agencies,  new  atypical  forms  of  employment  or  pay-to-fly  schemes  for  flight  crew.  Continuous 
monitoring  and  regular  exchange  of  information  between  the  Commission,  Member  States  and 
interested parties could also contribute to a better understanding of these new trends and ensure fair 
working conditions in the sector. 

The situation of highly mobile workers who have their operational basis ('home base') located outside 
the territory where the airline is licensed deserves specific attention. It is important to bring clarity on 
the applicable labour law and on the competent court in charge of disputes. In this context a practice 
guide  on  applicable  labour  law  and  the  competent  court  in  the  framework  of  the  European  Judicial 
Network  in  civil  and  commercial  matters  will  be  issued.  The  Commission  will  consider,  after 
evaluation,  if  interpretative  guidelines  or  regulatory  changes  for  the  aviation  sector  are  necessary, 
based on objective criteria.  

Under  these  circumstances  an  active  and  comprehensive  social  dialogue  in  industrial  relations  is 
essential.  Furthermore,  where  rules  could  have  important  social  implications,  it  is  of  particular 
relevance that stakeholders, including the Union social partners are appropriately consulted. This also 
applies to the European Aviation Safety Agency when safety implementing rules are developed.  

Furthermore, when negotiating comprehensive EU-level air transport agreements with third countries, 
the Commission will seek to ensure that the parties' respective policies and laws support high levels of 
protection in the labour and social domain and that the opportunities created by the agreement do not 
weaken domestic labour legislation and standards and their enforcement.  

The Commission will: 

  Support  social  dialogue,  in  particular  through  the  sectorial  social  dialogue  committee  on  civil 

aviation; 

  Strengthen  its  analysis  on  jobs  and  employment  in  aviation  with  Member  States  and  open  it  to 

interested parties; 

  Publish  a  practice  guide  on  applicable  labour  law  and  the  competent  court,  to  be  issued  by  the 

European Judicial Network in civil and commercial matters;  

  Consider  the  need  for  further  clarification  of  applicable  law  and  competent  courts  vis-à-vis 

employment contracts of mobile workers in aviation.    

2.5 Protecting passengers' rights 

The legislative process to adopt the revision of Regulation 261/2004 on air passengers' rights in case 
of denied boarding, long delays and cancellations37 is still on going in 2015. The Commission urges 
European  Parliament  and  the  Council  of  the  EU  to  adopt  swiftly  the  revisions  proposed.  In  the 
meantime, the Commission ensures a strict application by the National Enforcement Bodies of the EU 
air passenger rights established by Regulation 261/2004 as interpreted by the Court of Justice of the 
European  Union.  In  this  context,  the  Commission  will  adopt  interpretative  guidelines  in  order  to 
provide  guidance  to  the  citizens  and  the  airlines  on  the  current  state  of  the  law,  relevant  until 

37 Regulation (EC) No 261/2004 11 February 2004, OJ L.46 of 17.02.2004, p.1-7. 

11 

 
 
 
 
                                                            
amendments  become  applicable.  The  Commission  will  also  evaluate  how  to  further  promote 
cooperation  between  the  National  Enforcement  Bodies  and  the  authorities  in  charge  of  horizontal 
consumer rules. 

2.6 Embracing a new era through innovation and digital technologies 

Innovation plays a central role in the air transport sector. It improves competitiveness, spurring new 
ideas, market opportunities and technologies to strengthen safety and performance in aviation, aiming 
to ensure a seamless travel experience for all. European leadership is required in the development of 
next-generation technologies and the promotion of the use of state-of-the-art technologies. This can be 
achieved by effectively channelling Europe's creativity and financial resources. 

Aircraft  are  of  course  at  the  core  of  aviation  and  therefore  a  competitive  aeronautical  industry  is 
crucial for a high-performing aviation sector. The aeronautical industry is recognised as one of the top 
five  advanced  technology  sectors  in  Europe.  Today,  research  and  innovation  efforts  remain  a  key 
factor  of  the  success  of  the  aeronautical  industry.  Aircraft  manufacturers  and  their  supply  chain 
undertake  huge  efforts  to  improve  the  environmental  footprint  of  aviation,  increase  the  safety  of  air 
traffic, reduce operational costs and cope with the increasing demand for new aircraft. The Clean Sky 
2 public-private-partnership is a good example of this. The development of advanced manufacturing 
processes, the use of new materials and actions in line with the circular economy are other examples of 
these efforts.38  

Certification is the gate from research and development to market, as a compulsory guarantee of safety 
and  environmental  compliance.  The  European  Aviation  Safety  Agency  must  be  in  a  position  to 
prepare and conduct certification in a timely and efficient manner, while maintaining its independence 
and impartiality. 

The  deployment  and  optimisation  of  information  and  communications  technologies  are  also 
particularly relevant for airport capacity, performance and quality of service. The EU rules governing 
airline  ticket  distribution  in  the  Code  of  Conduct  for  Computerised  Reservation  System39  may  no 
longer be suited for today's market. Consequently, the Commission will assess whether there is a need 
to revise the existing rules in light of the changes observed. Furthermore, the Commission welcomes 
the  launch  of  an  aviation  Big  Data40  project  by  the  European  Aviation  Safety  Agency,  to  enable  a 
significant  enhancement  of  analysis  capabilities  and  sharing  of  large  volumes  of  data,  helping  to 
improve safety in aviation through the use of information and communication technologies.  

Drones: unleashing their full potential 

Drones are a technology that is already bringing about radical changes, by creating opportunities for 
new  services  and  applications,  as  well  as  new  challenges.  They  represent  a  tremendous  opportunity 
both for our aeronautical manufacturing industry, especially for small and medium sized enterprises, 
and for the many aviation and non-aviation businesses that will be able to integrate drones into their 
activities,  and  increase  their  efficiency  and  competitiveness.  Today’s  aviation  safety  rules  are  not 
adapted  to  drones.  Given  the  broad  variety  of  types  of  drones  being  used  under  very  differing 
operation  conditions,  a  risk-based  framework  needs  to  be  put  in  place  rapidly.  This  framework  will 
ensure  their  safe  use  in  civil  airspace  and  create  legal  certainty  for  the  industry.  In  this  context, 
concerns related  to privacy and  data protection, security, liability and  insurance or environment will 
also be taken into account.  

In order to ensure the safe interaction with existing airspace users coming under EU rules and to create 
a large single home market, of particular relevance to small and medium sized enterprises and start-
ups, this framework must be set up at EU level. For safety reasons, all drones must be covered, even 

38 Circular economy package  
39 Regulation (EC) No 80/2009 14 January 2009, OJ L 35 of 4.2.2009, p.47. 
40 See Staff Working Document , chapter 5. 

12 

 
 
 
                                                            
small ones. However, the rules must be proportionate to the risk to ensure that new developments are 
not hampered by unnecessarily heavy and costly rules and procedures, in line with the Commission's 
Better  Regulation  approach.  The  Commission  will  also  seek  to  rely  on  industry  standards  as  far  as 
possible.  

The Commission: 

  Proposes a basic legal framework for the safe development of drone operations in the EU, as part 

of the new basic aviation safety Regulation replacing Regulation 216/2008;  

  Will  task  the  European  Aviation  Safety  Agency  with  preparing  more  detailed  rules  which  will 

allow the drone operations and the development of industry standards. 

2.7 Contributing to a resilient Energy Union and a forward-looking Climate Change Policy 

The future competitiveness of the European air transport sector and its environmental sustainability go 
hand-in-hand. Regular and more holistic monitoring and reporting on the environmental impacts and 
progress  on  the  implementation  of  the  different  policies  and  initiatives  across  the  EU  air  transport 
system  will  help  inform  about  the  sector's  impacts  on  the  environment  and  provide  a  valuable 
contribution  to  further  decision-making.  High  environmental  standards  have  to  be  preserved  and 
enhanced  over  time  in  order  to  ensure  that  aviation  develops  in  a  sustainable  manner,  avoiding  or 
minimising harmful effects on ecosystems and citizens.  

As  regards  emissions  from  aviation,  the  EU  has  put  in  place  powerful  regulatory  tools  such  as  the 
Emission Trading Scheme (EU ETS) addressing greenhouse gas emissions41, including from aviation.  

The  International  Civil  Aviation  Organization  (ICAO)  plays  a  critical  role  in  the  development  of  a 
global solution to address greenhouse gas emissions from international aviation. The EU, through its 
Member  States  acting  within  the  framework  of  ICAO,  pursues  a  robust  Global  Market  Based 
Mechanism to achieve carbon neutral growth from 2020 to be reviewed over time as appropriate, and 
to be made operational from 2020, as well as the adoption of a first CO2 standard for aircraft. At the 
ICAO  Assembly  in  2016,  Europe  should  reach  out  to  other  regions  of  the  world  to  achieve  a  truly 
global mechanism.  

In  line  with  the  Energy  Union  agenda,  an  important  contribution  to  the  reduction  of  aviation's 
environmental  impacts  will  come  from  current  research  and  development  actions  for  innovative 
“green”  technologies,  including  the  development  and  market  deployment  of  advanced  biofuels.  EU 
programmes have mainly covered the modernisation of air traffic management and the reduction of the 
impact  on  the  environment  (Clean  Sky).  The  Single  European  Sky  ATM  Research  project  will 
contribute to fuel savings and a potential reduction of 50 million tons of CO2 emissions. Industry has 
also taken initiatives already and the identification of best practices should be properly considered. A 
reduction in aircraft NOx emissions should be further pursued, in order to reduce impacts on human 
health. 

Environmental  performance  of  air  navigation  service  provision  has  become  part  of  the  performance 
scheme under the Single European Sky. The performance of the air traffic management system "gate-
to-gate" should be improved in terms of environmental objectives, including the reduction of noise and 
emissions resulting from aircraft movements at airports.  

Air  traffic  noise  around  airports  directly  affects  some  4  million  citizens  in  Europe42.  A  new  EU 
Regulation  on  managing  noise-related  operating  restrictions  will  ensure  that  best  practices  and 
evidence-based decision making on operating restrictions will be applied throughout Europe from June 
2016. The EU is also adopting a new international noise standard to be applied to new types of large 
aircraft from 2017. Around airports, and in addition to noise, citizens face poor air quality, with the 

41 Directive 2003/87/EC of 13 October 2003, OJ L 275, 25.10.2003, p.32. 
42 http://www.eea.europa.eu/data-and-maps/indicators/exposure-to-and-annoyance-by-1/assessment. 

13 

 
 
 
                                                            
main public health impact coming  from ultrafine particles. To address this, the Commission and the 
Member States will continue to work with industry and international partners within ICAO to mitigate 
the effects of air pollution caused by airplanes.  

The Commission welcomes the publication of a "European Air Transport Environment Report" drawn 
up  by  the  European  Aviation  Safety  Agency,  Eurocontrol  and  the  European  Environment  Agency 
which will allow the EU, Member States and industry to better track the environmental performance of 
the air transport sector and monitor the effectiveness of different measures and policies. 

III. DELIVERING THE AVIATION STRATEGY AND LOOKING AHEAD 

3.1 A collective effort is needed 

European aviation can only remain competitive if all stakeholders from the public and private sector 
take a holistic approach in addressing the key challenges faced by European aviation today and act in a 
complementary  and  a  coordinated  manner.  This  approach  is  what  is  needed  to  turn  the  measures 
proposed in this Strategy into tangible results.  

Member  States  and  all  stakeholders,  including  airlines,  airports,  air  navigation  service  providers, 
manufacturers, and the social partners have a role to play: only effective cooperation will ensure that 
European  aviation  succeeds  globally  in  the  future.  Interests  might  sometimes  be  conflicting.  We 
should  however  find  a  way  to  act  as  a  team  whenever  possible.  Social  dialogue,  in  particular  the 
sectorial social dialogue committee on civil aviation, should play an important role. 

There is a need for unity at international level. The European Union needs to speak with one voice in 
international organisations and with third countries. In addition to negotiating EU comprehensive air 
transport agreements as the cornerstone of EU external aviation action, the Commission will continue 
to insist on the swift conclusion of the ratification process of the Eurocontrol revised Convention and 
the  EU  Accession  Protocol.  It  will  also  fully  support  the  International  Civil  Aviation  Organization's 
activities on safety and security standards, air traffic management and the environment. 

3.2 Investing in aviation research 

A catalyst for the development of aviation, and its function as an enabler of growth, will be innovation 
and digitalisation. The Commission is convinced that appropriate private and public investments into 
technology  and innovation  will secure Europe’s leading  role in international  aviation. The European 
Union has planned to invest € 430 million43 each year, until 2020, in the Single European Sky ATM 
Research (SESAR) project. It has been estimated that the timely deployment of SESAR solutions can 
potentially result in the creation of over 300 000 new jobs.  

The  Commission  supports  research  and  innovation  in  the  aviation  sector  through  public-private-
partnerships,  the  Horizon  2020  Framework  Programme,  European  Structural  and  Investment  Funds 
and the European Fund for Strategic Investments, while ensuring that actions are in line with the EU's 
safety policy. Research and innovation efforts in aeronautics and advanced fuels are also essential, as 
highlighted  in  "Flightpath  2050",  a  report  prepared  by  the  High  Level  group  on  Aviation  Research. 
These  efforts  need  to  be  supported  by  an  efficient  mix  of  public  and  private  funding,  including  for 
instance,  at  EU  level,  major  contributions  from  public-private  partnerships  such  as  Clean  Sky  and 
SESAR  complemented  by  research  and  innovation  actions  directly  funded  under  the  Horizon  2020 
research  programme,  the  European  Structural  and  Investment  Funds  and  the  European  Fund  for 
Strategic Investments.  

The Commission will continue to actively promote efficient coordination between these instruments as 
well as examine how the Investment Plan for Europe44 could support the aviation sector, notably the 

43 Foreseen average annual contribution over 2014-2020. 
44 Communication from the Commission – An investment Plan for Europe- COM/2014/0903final. 

14 

 
 
 
                                                            
development  and  industrialisation  of  advanced  European  aeronautical  products  and  services. 
Furthermore, the development of strategic infrastructures and sustainable transport are key objectives 
of the European Investment Bank Transport Lending Policy45. 

3.3 Conclusions and looking ahead 

Aviation has become a catalyst for economic growth: a high-performing aviation sector contributes to 
a healthy EU economy.  

The European Union has already assumed the role of a “game-changer” with the creation of a single 
aviation  market.  When  developing  this  market,  the  objective  was  to  promote  consumer  interests, 
reduce  barriers  to  trade,  maintain  a  level  playing  field  for  operators,  foster  innovation,  maintain  the 
highest levels of safety and involve all stakeholders in the process.  

These principles must also be pursued globally. The EU aviation sector must keep up with the pace of 
growth  and  change,  by  ensuring  access  to key  growth  markets  for  EU  industry  and its  citizens.  The 
success  of  the  EU's  internal  aviation  market  and  the  principles  and  rules  it  is  based  on  should  be 
promoted at international level through an ambitious EU external aviation policy and negotiations with 
key partners.  

Action  at  EU  level  is  needed  to  overcome  capacity  and  efficiency  constraints,  stemming  from  the 
inefficient use of current resources (airspace, airports) and market restrictions. Aviation must become 
an integral element of inter-modal transport, for the best possible connectivity which in turn will help 
drive growth for Europe’s economy.  

The EU should pursue policies aimed at optimising the investment and market conditions affecting the 
aviation  industry  and  improving  the  regulatory  framework  whilst  maintaining  the  highest  EU 
standards for safety, security, the environment and its citizens. The Commission is also convinced that 
intelligent  investments  in  technology  and  innovation  will  help  secure  Europe’s  leading  role  in 
international aviation.  

The successful implementation of this Aviation Strategy will depend on the willingness of all players 
to collaborate in a coherent and consistent manner. Aviation is a global industry and all parts of the 
EU aviation network create value. Only a  competitive and sustainable air transport sector will allow 
Europe to maintain its leadership position, in the interest of its citizens and its industry. 

45 EIB Transport Lending Policy revised in 2011: http://www.eib.org/infocentre/publications/all/eib-transport-lending-policy.htm 

15 

 
 
 
 
 
                                                            
AVIATION STRATEGY INDICATIVE ACTION PLAN 

COMPLETION OF INTERINSTITUTIONAL PROCESS 
Revision of slot Regulation N°545/2009 

Revision of Regulation N°261/2004 on passenger rights 

SES2+: Revision of Single European Sky framework  

2016 

2016 

2016 

2016-7 

Conclusion of the ratification process of EU accession protocol to Eurocontrol 

2015 

2016 

2017 

2019 

2015 
2016 
2016-7 

2016 
2016 
2016 
2016-7 

2018 

2017-8 
2016-7 
2016-7 
2016-7 
2017 

COMMISSION LEGISLATIVE PROPOSALS* 

Revision of basic aviation safety regulation N° 216/2008  including introduction of provisions 
on drones. 
Measures to address unfair practices (revision Regulation 868/2004) 

COMMISSION IMPLEMENTING ACTS 

Revision  of the air traffic management network functions, including the selection of the 
Network Manager 
Revision  of performance scheme (gate-to-gate) 

INTERNATIONAL DIMENSION 
Authorisations to negotiate comprehensive EU level air transport agreements 
Authorisations to negotiate bilateral Air Safety Agreements with China and Japan 
Launch of new aviation dialogues with key partners 

GUIDANCE DOCUMENTS 

Guidelines on air passenger rights 
Guidelines on ownership and control 
Guidelines on Public Service Obligations 
Best practices in minimum service levels in airspace management 

FITNESS CHECK (REFIT) 

Computerised Reservation System (CRS) code of conduct on the distribution of airline 
product 

STUDIES AND EVALUATIONS** 

Regulation (EC) N°1008/2008 on common rules for the operation of air services 
Regulation (EC) N° 996/2010 on aviation accident investigation  
Regulation (EC) N° 2111/2005 on the EU airlines safety list  
Airport charges Directive 2009/12/EC 
Groundhandling services Directive 96/67/EC 

* Legislative proposals will be subject to Commission better regulation requirements 

** Evaluations may suggest to initiate legislative proposals  

16