COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Space Strategy for Europe
Date: 2016-10-26
Institutions: Directorate-General for Internal Market, Industry, Entrepreneurship and SMEs, European Commission
Subjects: EU industrial policy, European Space Agency, innovation, international cooperation, research and development, satellite communications, space policy, space technology, use of outer space

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   EN 

   EUROPEAN COMMISSION  Brussels, 26.10.2016  COM(2016) 705 final   COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Space Strategy for Europe  
 
 
Space matters for Europe.  

Europe — the Member States, the European Space Agency (ESA), the European Organisation 
for the Exploitation of Meteorological Satellites (EUMETSAT) and the EU — has achieved 
many  successes  in  space  with  breakthrough  technologies  and  exploration  missions,  such  as 
ESA's  Rosetta  mission,  unique  Earth  observation  and  meteorology  capabilities,  such  as 
Meteosat,  and  world-leading  commercial  telecommunications  and  launch  systems  with  the 
Ariane  family  and  Vega.  Europe  represents  today  the  second  largest  public  space budget  in 
the  world1  with  programmes  and  facilities  spanning  different  European  countries.  Between 
2014-2020, the EU alone will invest over EUR 12 billion in space activities. It owns world-
class  space  systems  with  Copernicus2  for  Earth  observation,  EGNOS3  and  Galileo4  for 
satellite  navigation  and  geo-positioning.  With  18  satellites  currently  in  orbit  and  over  30 
planned  in  the  next  10-15  years,  the  EU  is  the  largest  institutional  customer  for  launch 
services in Europe. 

Space  technologies,  data  and  services  have  become  indispensable  in  the  daily  lives  of 
European citizens: when using mobile phones and car navigation systems, watching satellite 
TV  or  withdrawing  cash.  Satellites  provide  immediate  information  when  disasters,  such  as 
earthquakes,  forest  fires  or  floods  strike,  allowing  emergency  and  rescue  teams  to  better 
coordinate  their  efforts.  Agriculture  benefits  from  improved  land  use.  Transportation  and 
energy  infrastructure  is  safer  and  can  be  more  efficiently  managed  thanks  to  satellite 
technologies. Global challenges due to growing populations, increased demand for resources 
and  climate  change  require  information  about  our  planet  which  space  based  solution  can 
provide more easily. 

Space  technologies,  data  and  services  can  support  numerous  EU  policies  and  key  political 
priorities,  including  the  competitiveness  of  our  economy,  migration,  climate  change,  the 
Digital  Single  Market  and  sustainable  management  of  natural  resources.  Space  is  also  of 
strategic importance for Europe. It reinforces Europe’s role as a stronger global player and is 
an  asset  for  its  security  and  defence.  Space  policy  can  help  boost  jobs,  growth  and 
investments  in  Europe.  Investing  in  space  pushes  the  boundaries  of  science  and  research. 
Europe has a world-class space sector, with a strong satellite manufacturing industry, which 
captures around 33 % of the open world markets, and a dynamic downstream services sector 
with  a  large  number  of  SMEs.  The  European  space  economy,  including  manufacturing  and 
services,  employs  over  230 000  professionals  and  its  value  was  estimated  at  EUR 46-54 
billion in 2014, representing around 21% of the value of the global space sector5.  

The  overall  international  space  context  is  changing  fast:  competition  is  increasing;  new 
entrants  are  bringing  challenges  and  new  ambitions  in  space;  space  activities  are  becoming 
increasingly  commercial  with  greater  private  sector  involvement;  and  major  technological 
shifts are disrupting traditional industrial and business models in the sector, reducing the cost 
of  accessing  and  using  space.  The  combination  of  space  data  with  digital  technologies  and 
other sources of data open up many business opportunities for all Member States. 

1 Consolidated space budget (Member States, EU, ESA and EUMETSAT) estimated at EUR 7 billion in 2015. 
2 European Earth Observation Programme. 
3 European Geostationary Navigation Overlay Service, which augments the GPS signals over Europe. 
4 European Global Navigation Satellite System, similar to the GPS. 
5 Socioeconomic impacts from space activities in the EU in 2015 and beyond, PwC study, June 2016. 

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Europe must work together to promote its position as a leader in space, increase its share on 
the world space markets, and seize the benefits and opportunities offered by space. Building 
on  Article 189  of  the  Treaty  (TFEU),  the  Commission  is  therefore  proposing  a  new  Space 
strategy for Europe focused on four strategic goals. 

1.  MAXIMISING THE BENEFITS OF SPACE FOR SOCIETY AND THE EU ECONOMY 

The  potential  of  space  solutions  has  not  yet  been  fully  exploited,  and  nor  have  the  wider 
possibilities  offered  by  space  data.  The  space  sector  needs  to  be  better  connected  to  other 
policies and economic areas  at EU level and in all  Member States.  The potential  of the EU 
space  programmes  Copernicus,  EGNOS  and  Galileo  must  be  better  exploited.  The 
Commission’s aim is to optimise the benefits that space brings to society and the wider EU 
economy. Achieving this means boosting demand among public and private users, facilitating 
access  to  and  use  of  space  data,  and  stimulating  the  development  and  use  of  innovative 
downstream applications. It also means ensuring the continuity and user-driven development 
of EU space programmes. 

1.1.  Encouraging the uptake of space services and data 

Data  and  services  derived  from  space  systems,  including  satellite  images,  geo-positioning 
information  and  satellite  communications,  already  contribute  to  a  number  of  public  policies 
and  economic  sectors:  from  environmental  protection  to  transport  safety,  precision  farming, 
control  of  fishery  stocks,  monitoring  of  shipping  routes  and  detection  of  oil  spills,  to  urban 
and regional planning. The potential areas of application are huge and they are not yet fully 
exploited.  The  Commission  will  thus  encourage  the  use  of  space  services,  data  and 
applications in EU policies whenever they provide effective solutions. It will make sure that 
EU  legislation  is  supportive  of  their  uptake  and  will  undertake  regular  reviews  to  identify 
barriers and new opportunities, including administrative simplifications. 

The Commission will take concrete measures, including regulatory ones where justified and 
beneficial6,  to  introduce  Galileo  in  specific  markets  or  areas,  such  as  mobile  phones, 
European critical infrastructure and aviation. New chipsets and receivers put on the European 
market  should  be  Galileo  and  EGNOS  compatible.  To  support  the  effort  of  industry  the 
Commission will put in place a voluntary labelling and certification scheme. 

In  the  longer  term,  the  Commission  will  encourage  the  uptake  of  space  solutions  through 
standardisation  measures  and  roadmaps,  and  by  integrating  space  into  future  strategies 
addressing,  for  example,  autonomous  and  connected  cars,  railways,  aviation  and  unmanned 
aerial  vehicles  (drones).  The  Commission  will  release  a  European  radio  navigation  plan  to 
facilitate  the  introduction  of  global  navigation  satellite  system  applications  in  sectoral 
policies. 

This effort should be supported by accompanying measures at national and regional level. The 
Commission, together with the GSA7 and others, will organise awareness-raising campaigns, 
set up support networks (for example, Copernicus Relays and the Copernicus Academy) and 

6  Possible  legislative  proposals  will  be  subject  to  Commission  better  regulation  requirements,  in  line  with 

Commission’s Better Regulation Guidelines, SWD(2015) 111. 

7 The European Global Navigation Satellite System (GNSS) Agency (GSA) is an EU agency responsible for the 

exploitation of EGNOS and Galileo. 

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provide  technical  support  in  using  innovative  and  cross-border  procurement  for  space 
solutions. 

Copernicus  is  one  of  the  leading  providers  of  Earth  observation  data.  However,  technical 
barriers  currently  prevent  users  from  fully  exploiting  the  data  and  information  Copernicus 
delivers.  Therefore,  the  Commission  will  improve  access  to  and  exploitation  of  space  data 
enabling  their  cross-fertilisation  with  other  sources  of  data,  facilitating  the  integration  with 
digital research infrastructures, in complementarity with the European cloud initiative. More 
specifically,  the  Commission  will  strengthen  the  dissemination  of  Earth  observation  data 
generated by Copernicus. It will launch several enabling platform services offering access to 
additional datasets and online processing capabilities in which European industry will take a 
leading role. These measures will open up new business opportunities for European industry, 
including  SMEs  and  start-ups,  and  will  allow  research  institutions,  public  authorities  and 
companies  to  develop  and  benefit  from  space  solutions.  As  space  data  often  need  to  be 
exploited  jointly  with  non-space  data  to  deliver  its  full  potential  for  end  users,  the 
Commission  will  pay  particular  attention  to  the  interoperability  of  datasets,  building  on  the 
INSPIRE Directive8 and the European Interoperability Framework. 

Stronger  links  with  the  commercial  downstream  sector  are  essential  to  develop  tailor-made 
applications, reach out to new users and connect  space with other sectors. The Commission 
will  therefore  put  in  place  framework  conditions  to  foster  these  links.  It  will  define  clear 
limits  between  the  free  Copernicus  core  information  services  and  commercial  downstream 
applications.  It  will  also  introduce  an  ‘industry  test’  to  check  the  ability  of  downstream 
suppliers to provide a reliable and affordable service. 

Space and satellite communications can also improve connectivity for Europe’s digital society 
and economy. Satellites can provide cost-effective solutions in particular to connect assets and 
people in  remote  and  offshore  areas,  or  as  part of  the  future  5G  networks,  where  numerous 
applications  and  services  using  space  data  will  also  require  uninterrupted  connectivity.  The 
Commission  will  work  with  Member  States  to  promote  long-term  cooperative  frameworks 
that encourage the interworking of satellite and terrestrial technologies and bring together the 
respective business communities. 

Main actions: The Commission will: 

-  promote the uptake of Copernicus, EGNOS and Galileo solutions in EU policies where 
justified and beneficial, including in the short term, with measures introducing the use of 
Galileo for mobile phones, and critical infrastructure using time synchronisation. 

- 

- 

- 

the  use  of  Copernicus  data  and 

facilitate 
information  by  strengthening  data 
dissemination  and  setting  up  platform  services,  promoting  interfaces  with  non-space 
data and services. 

stimulate the development of space applications with a greater involvement of new actors 
from different domains. 

together with Member States and industry, promote the efficient and demand-driven use 
of satellite communications, so as to foster ubiquitous connectivity in all Member States.  

8  Directive  2007/2/EC  establishing  an  Infrastructure  for  Spatial  Information  in  the  European  Community,  OJ 

L 108, 25.4.2007, p.1. 

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1.2.  Advancing the EU space programmes and meeting new user needs 

The  private  sector  will  only  use  and  invest  in  space  solutions  if  users  and  businesses  are 
confident that services and data provided by Copernicus, EGNOS and Galileo will continue in 
the  future.  The  Commission  therefore  confirms  its  commitment  to  the  stability  of  the  EU 
space programmes and to strengthening the systems’ competitive advantages, through features 
such  as  authentication  and  high  accuracy  for  Galileo.  In  a  changing  environment  and  fast-
evolving market, these systems must continue to develop to ensure that they deliver state-of-
the-art services with greater efficiency and robustness. 

The Commission will implement the third generation of EGNOS to bring improvements and 
cover additional sectors such as maritime. This will make EGNOS more attractive and help it 
become a key part of radio navigation in Europe.  The Commission’s aim is to reinforce  the 
second  generation  of  Galileo  and  Copernicus  as  a  major  reference  at  global  level.  This  will 
require the continuous improvement of current services and infrastructure. 

Additional  services  will  be  considered  to  meet  emerging  needs  in  specific  priority  areas, 
including  (i)  climate  change  and  sustainable  development,  to  monitor  CO2  and  other 
greenhouse gas emissions, land use and forestry, and changes in the Arctic9 with Copernicus; 
and (ii) security and defence to improve the EU's capacity to respond to evolving challenges 
related  to  border  controls  and  maritime  surveillance  with  Copernicus  and  Galileo/EGNOS. 
This expansion will take account of new technological developments in the sector, the need to 
ensure adequate level of security of the infrastructure and services, the availability of different 
data sources and the long-term capacity of the private sector to deliver appropriate solutions. 

The Commission will upgrade user consultation processes and set up dedicated user platforms 
to  ensure  that  developments  are  driven  by  user  needs,  including  for  security-related 
requirements.  Where  this  may  be  more  efficient  and  would  leverage  available  funding,  and 
taking  due  account  of  past  experiences,  the  Commission  will  explore  alternative  business 
models (public-public, public-private partnerships or buying services). 

Main actions: The Commission will: 

- 

remain  committed  to  the  stability  of  the  EU  space  programmes  and  prepare  the  new 
generations,  on  a  user-driven  basis,  to  continue  delivering  state-of-the-art  services.  To 
this  end,  the  Commission  will  explore  alternative  business  models  and  take  account  of 
technological progress. 

-  address  emerging  needs  related, 

in  particular, 

to  climate  change/sustainable 

development and security and defence. 

2.  FOSTERING A GLOBALLY COMPETITIVE AND INNOVATIVE EUROPEAN SPACE SECTOR 

The  European  space  industry  is  facing  tougher  global  competition.  Security  of  supply  and 
industry’s  ability  to  export  its  products  are  impacted  by  high  dependence  on  non-European 
critical components and technologies. Innovative industrial processes are revolutionising the 
sector.  Space  activities  are  increasingly  open  to  private  investment  in  the  areas  of  satellite 
communications, Earth observation and even launchers.  Space is now part of a global value 
chain  that  increasingly  attracts  new  companies  and  entrepreneurs,  so-called  'New  Space', 

9 In line with the integrated European Union policy for the Arctic (JOIN(2016) 21 final). 

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which  are  pushing  the  traditional  boundaries  in  the  space  sector.  This  opens  up  new 
opportunities  to  develop  innovative  products,  services  and  processes  which  can  benefit 
industry  in  all  Member  States,  creating  new  capacities  and  adding  value  in  and  outside  the 
space sector. 

Europe needs to maintain and further strengthen its world-class capacity to conceive, develop, 
launch,  operate  and  exploit  space  systems.  To  ensure  this,  the  Commission  will support  the 
competitiveness of the whole supply chain and actors from industry to research organisations. 
It will also foster the emergence of an entrepreneurial ecosystem, opening up new sources of 
financing, creating new business opportunities, and making sure this will benefit businesses in 
all Member States. 

2.1.  Supporting research and innovation and development of skills 

Space research activities at EU level should address all segments of the space industrial value 
chain in a balanced way and promote technology-transfer/cross-fertilisation with other, non-
space  sectors.  They  should  facilitate  access  to  space  data  for  research  and  innovation 
programmes in order to create conditions for major research breakthroughs and reach out to 
numerous market segments. 

In  the  context  of  EU  research  programmes,  the  Commission  will  give  priority  to  action 
addressing  the  vulnerability  of  European  supply  chains  by  supporting  the  development  of 
critical  space  components,  systems  and  technologies  associated  with  technological  non-
dependence.  It  will  support  long-term  R&D  needs,  including  breakthrough  disruptive 
technologies,  low-cost  and  alternative  access  to  space,  and  in-orbit  servicing.  It  will  also 
support  the  development  of  new  industrial  processes  and  production  tools,  and  improve 
support  to  technological  maturity,  including  in-orbit  demonstration  and  validation  activities, 
to reduce time to market. 

The Commission will also seek to ensure that future research activities better integrate space 
research with other policy areas addressing global and societal challenges. It will encourage 
horizontal  synergies  and  multidisciplinary  approaches  that  allow  the  cross-fertilisation  of 
ideas  and  spinning-in/off  of  space  and  non-space  technologies.  This  will  be  done  in 
collaboration  with  existing  initiatives,  such  as  the  European  technology  platforms  and  joint 
technology initiatives.  Linking space research more closely with  basic research will support 
the  exploitation  of  scientific  space  data  from  European  space  science  and  exploration 
missions  and  the  development  of  scientific  instrumentation.  It  will  also  foster  cooperation 
between scientific, engineering and industrial teams. 

In  addition,  the  Commission  will  organise  regular  dialogues  with  industry  and  other 
innovation actors, including the research community and users of applications and services, to 
better  address  their  competitiveness  needs.  The  Commission  will  facilitate  the  use  of 
intellectual  property  rights  owned  by  the  EU,  including  patents  and copyrights,  to  stimulate 
innovation and economic growth. 

With  the  European  Structural  Investment  Funds  the  Commission  will  support  research  and 
innovation  in  Member  States  and  regions  which  have  identified  space  as  a  priority  in  their 
smart  specialisation  strategies  and  will  facilitate  cross-border  cooperation  among  their 
research and innovation actors. 

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As part of the New Skills Agenda for Europe, the Commission will launch a dedicated sector 
skills alliance for space/Earth observation gathering key stakeholders from industry, research, 
universities  and  public  authorities  to  tackle  new  skills  requirements  in  the  sector.  The 
Commission  will  foster  closer  cooperation  with  the  European  Institute  of  Innovation  and 
Technology and its knowledge and innovation communities and will strengthen activities and 
projects to promote space in education and sciences. 

Main actions: The Commission will: 

- 

- 

- 

- 

step  up its efforts  to  support  space R&D  activities,  in  cooperation  with  Member  States 
and  ESA,  and  review  its  strategic  approach  to  boosting  the  competitiveness  of  the 
European space sector. 

strengthen the use of innovative procurement schemes to stimulate the demand-side of 
innovation10 and explore new approaches to leverage private sector investments and 
partnerships with industry11 

together with Member States and ESA, promote the use of common technology 
roadmaps12 to ensure greater complementarity of R&D projects. 

include space/Earth observation in the blueprint for sectoral cooperation on skills 
addressing new skills requirements in the sector.  

2.2.  Fostering entrepreneurship and new business opportunities 

Enabling  measures  and  capacity  building  in  all  Member  States  and  at  European  level  are 
needed  to  create  the  right  ecosystem  and  a  favourable  regulatory  and  business  environment 
that  incentivises  the  private  sector  to  be  more  risk-prone  and  encourages  businesses  to 
develop innovative products and services. 

The Commission will support European space entrepreneurs in starting and scaling up across 
the  single  market,  for  example  by  exploring  a  'first-client'  approach.  It  will  also  promote 
access  to  finance  for  space  in  the  context  of  the  Investment  Plan  for  Europe  and  Union 
funding  programmes13.  The  Investment  Plan  and  the  European  Fund  for  Strategic 
Investments, in particular, can play an important role in supporting innovative projects and the 
Commission will engage in a dialogue with the EIB/EIF14 on this matter. It will also explore 
synergies with the upcoming Fund of Funds when it comes to start-ups. The Commission will 
also  encourage  awareness-raising  and  outreach  activities  to  inform  the  space  industry  and 
local  financial  intermediaries  about  the  opportunities  offered  by  EU  initiatives  and 
programmes.  

The  emergence  of  a  business-  and  innovation-friendly  ecosystem  will  also  be  supported  at 
European,  regional  and  national  levels  by  establishing  space  hubs  that  bring  together  the 
space,  digital  and  user  sectors.  The  objective  is  to  open  up  space  to  non-space  entrants  and 
non-space industries, including innovative European ICT entrepreneurs and user sectors such 
as  energy,  transport  and  others.  This  can  build  on  existing  instruments  within  the 

10  For example, pre-commercial procurement and public procurement of innovative solutions. 
11  For  example,  public  private  partnerships  based  on  contractual  arrangements  or  stemming  from  a  joint 

technology initiative. 

12  Such as those from the ESA space technology harmonisation process. 
13  Notably Horizon 2020, COSME, the European Structural Investment Funds. 
14  European Investment Bank / European Investment Fund. 

7 

 
 
                                                 
Commission,  ESA's  business  incubation  centres  and  initiatives  in  the  Member  States  (for 
example,  innovation  clusters  and  boosters).  The  Commission  will  support  exchange  of  best 
practices  and  common  specifications,  and  build  capacity  allowing  all  Member  States  to 
benefit from the space sector. 

The Commission will also enhance its support for SMEs, start-ups and young entrepreneurs 
through  business  incubators  and the  use  of  prizes  and  competitions,  such  as  the  Copernicus 
and  Galileo  Masters.  Initiatives  will  cover  the  various  cycles  of  business  development  (for 
example, space technology accelerators providing support at an early stage (pre-seed money), 
and supporting new ideas and their development). 

Main actions: The Commission will: 

- 

- 

- 

step  up  support  to  space  entrepreneurs  through  EU  funding  programmes  to  facilitate 
further financing of investments in the space sector. 

engage  in  a  dialogue  with  the  EIB  and  EIF  on  the  support  of  investment  in  the  space 
sector as part of the overall Investment Plan for Europe . 

support  space  start-ups,  including  by  exploring  synergies  with  the  upcoming  Fund  of 
Funds, and facilitate the emergence of space hubs and clusters across Europe. 

3.  REINFORCING EUROPE’S AUTONOMY IN ACCESSING AND USING SPACE IN A SECURE AND 

SAFE ENVIRONMENT 

Space capacities are strategically important to civil, commercial, security and defence-related 
policy  objectives.  Europe  needs  to  ensure  its  freedom  of  action  and  autonomy.  It  needs  to 
have access to space and be able to use it safely. Access to the radio frequency spectrum must 
be  guaranteed  and  protected  from  interference  in  full  complementarity  with  the  Radio 
Spectrum Policy's aim of maximum spectrum usage efficiency. 

Space is becoming a more contested and challenged environment. New competitors — both 
public and private — are emerging around the world, partly spurred by the reduced costs of 
developing and launching satellites. Growing threats are also emerging in space: from space 
debris to cyber threats or the impact of space weather. These changes make greater synergies 
between civil and defence aspects increasingly relevant. Europe must draw on its assets and 
use space capacities to meet the security and safety needs of the Member States and the EU. 

3.1.  Maintaining Europe’s autonomous access to space 

The Commission will work with the ESA, Member States and industry to ensure that Europe 
maintains autonomous, reliable and cost-effective access to space. 

In  the  next  10-15  years  the  EU  plans  to  launch  more  than  30  satellites  for  its  Galileo  and 
Copernicus programmes, notably in the class of the future European-built launchers such as 
Ariane  6  and  Vega  C,  making  the  EU  the  largest  European  institutional  customer.  The 
Commission will therefore aggregate the launch service needs of EU programmes and act as a 
smart customer of European reliable and cost-effective launch solutions. 

It is crucial that Europe continues to have modern, efficient and flexible launch infrastructure 
facilities.  In  addition  to  measures  taken  by  Member  States  and  ESA,  the  Commission  will 
consider ways to support such facilities within its areas of competence, for example through 

8 

 
 
its contracts for launch services or other instruments where this is needed to meet EU policy 
objectives or needs. 

The Commission will further complement the efforts of Member States, ESA and industry in 
addressing  long-term  research  and  innovation  needs,  including  low-cost  access  to  space  for 
small  satellites;  advanced  manufacturing;  breakthrough  concepts  (such  as  re-usability); 
mitigating environmental impacts; and providing regular opportunities for European in-orbit 
validation services for new technologies and products to be used in space. 

The  Commission  will  also  encourage  the  development  of  commercial  markets  for  low-cost 
small  launch  systems  or  for  commercial  space  activities  such  as  spaceflight  or  suborbital 
space tourism, promoting the appropriate regulatory frameworks as needs arise. 

Main  actions:  The  Commission  will  consolidate  EU  support  for  autonomous  access  to 
space by: 

-  aggregating  demand  for  launch  services  to  provide  visibility  to  industry  and  reduce 

implementation costs; 

- 

- 

- 

supporting  research  and  innovation  efforts,  in  particular  to  ensure  Europe’s  ability  to 
react to and anticipate disruptive changes (re-usability, small launchers); 

considering  ways  to  support  European  launch  infrastructure  facilities  where  this  is 
needed to meet EU policy objectives or needs; 

encouraging the development of commercial markets for new space activities. 

3.2.  Ensuring access to radio frequency spectrum 

Frequencies  are  necessary  to  operate  space  systems,  be  they  commercial  or  institutional, 
throughout  their  lifetime  and  for  the  delivery  and  uptake  of  space-based  services.  European 
satellite  systems  and  operators  must  be  ensured  access  to  spectrum  that  is  protected  from 
interference from other systems. 

The  Commission  will  take  into  account  the  specific  requirements  of  space  systems  when 
coordinating  frequency  allocation  at  European  and  international  level,  while  aiming  to 
maximise the efficiency of scarce resource usage. 

3.3.  Ensuring 

the  protection  and  resilience  of  critical  European  space 

infrastructure 

The proliferation of space debris remains the most serious risk to the sustainability of space 
activities and will continue to be addressed at European and international level. The EU has 
dealt  with  this  issue  through  the  implementation  of  the  EU  space  surveillance  and  tracking 
(SST)  support  framework  which  has  now  started  delivering  operational  services  based  on  a 
pool of Member States’ capacities. 

The Commission will reinforce the SST support framework to improve the performance and 
geographical coverage of sensors. It will consider extending its scope to address other threats 
and vulnerabilities, for example cyber threats or the impact of space weather on satellites and 
on ground infrastructure such as transport, energy grids and telecommunication networks.  

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In the long term, this SST model could evolve into a more comprehensive space situational 
awareness service, building on existing activities in the Member States and ESA, and taking 
into account international cooperation frameworks, particularly with the US. 

The Commission will engage with the user sectors concerned to develop responses to space 
weather  risks  and  alerts.  It  will  work  with  ESA  and  EUMETSAT  to  support  research  and 
promote international efforts in this domain. 

Main actions: The Commission will: 

- 

enhance  the  current  EU  SST  services  and  consider  comprehensive  space  situational 
awareness  services  (such  as  space  weather,  cyber  alerts).  In  doing  so,  it  will  work  to 
establish partnerships, particularly with the US. 

-  help raise awareness of space weather risks at European and international level, and of 

the emerging cybersecurity risks to critical European space infrastructure. 

3.4.  Reinforcing synergies between civil and security space activities 

Space  services  can  strengthen  the  EU’s  and  Member  States’  capacity  to  tackle  growing 
security  challenges  and  improve  the  monitoring  and  control  of  flows  which  have  security 
implications15.  Most  space  technologies,  infrastructure  and  services  can  serve  both  civilian 
and  defence  objectives.  Although  some  space  capabilities  have  to  remain  under  exclusive 
national and/or military control, in a number of areas synergies between civilian and defence 
can reduce costs, increase resilience and improve efficiency. The EU needs to better exploit 
these synergies. 

This will be a key theme of the European defence action plan, which is expected to highlight 
space’s  crucial  enabling  role  for  civilian  and  defence  capabilities.  The  EU  and  Member 
States’ institutional actors, including those providing security services to citizens, increasingly 
rely on satellite communication services for their missions and infrastructure, but the critical 
security  and  defence  needs  are  not  fully  met  today.  The  Commission  is  therefore  working 
with the European Defence Agency and ESA to assess the demand for and feasibility of a new 
initiative  providing  resilient  satellite  communication  services  for  governmental  and 
institutional security users. 

It  will  also  assess  further  the  potential  of  Copernicus  and  Galileo/EGNOS  to  meet  EU 
autonomy and security needs and improve the EU’s capacity to respond to challenges related 
to  migration,  border  control  and  maritime  surveillance.  To  this  end,  the  Commission  will 
strengthen security requirements when developing these systems and will reinforce synergies 
with non-space observation capacities (e.g.  unmanned aerial vehicles). 

Main actions: The Commission will: 

-  propose  a  Govsatcom  initiative  to  ensure  reliable,  secured  and  cost-effective  satellite 

communication services for EU and national public authorities and infrastructure. 

- 

strengthen security requirements when developing EU space systems. 

15  As  emphasised  in  'A  Global  Strategy  for  the  EU’s  Foreign  and  Security  Policy'  issued  in  June  2016  by  the 
High  Representative  of  the  Union  for  Foreign  Affairs  and  Security  Policy  and  Vice-President  of  the 
European Commission. 

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4.  STRENGTHENING  EUROPE’S  ROLE  AS  A  GLOBAL  ACTOR  AND  PROMOTING 

INTERNATIONAL COOPERATION 

Europe’s  efforts  to  meet  the  three  strategic  goals  above  will  be  undermined  unless  the  EU 
achieves a fourth goal: taking a much stronger role on the world stage. 

Access to and use of space is shaped by international rules or standards and by a governance 
system  aimed  at  guaranteeing  the  long-term,  sustainable  use  of  space  for  all  nations.  Most 
space  science  and  exploration  projects  are  also  global  in  character.  Cutting-edge  space 
technology is increasingly developed within international partnerships, making access to such 
projects  an  important  success  factor  for  researchers  and  industry.  Access  to  global  markets 
and ensuring a global level playing field is also vital for European industry and businesses. 

Increased  human  activity  in  space  and  the  rapid  growth  of  new  entrants  is  testing  the  UN 
conventions on outer space to the limit, including on issues of space traffic management and 
mining. Europe should be among the leaders in navigating global challenges such as climate 
change or disaster risk reduction, while promoting international cooperation and building the 
global governance or appropriate legal frameworks for space. 

The Commission will therefore work alongside the High Representative and Member States 
in promoting international principles of responsible behaviour in outer space in the framework 
of the United Nations and other appropriate multilateral fora. The EU should lead the way in 
addressing the challenges posed by the multiplication of space actors, space objects and debris 
in line with the UN conventions related to space. 

In addition, the Commission will use EU space programmes to contribute to and benefit from 
international  efforts  through  initiatives  such  as  the  Global  Earth  Observation  System  of 
Systems  (GEOSS)  and  the  Committee  on  Earth  Observation  Satellites  (CEOS)  with 
Copernicus or the Search and Rescue initiative (COSPAS-SARSAT) with Galileo. It will also 
support the EU’s neighbourhood and development policies, as it already does in Africa with 
Copernicus  and  EGNOS,  and  the  monitoring  of  sustainable  development  goals.  It  will 
contribute  to  international  dialogue  on  space  exploration  together  with  Member  States  and 
ESA, promoting common European positions. 

Through its trade policy instruments and economic diplomacy, the Commission will seek to 
establish a level playing field for European industry by addressing market access barriers and 
promoting  convergence  of  dual  use  export  controls,  and  actively  promote  European  space 
technologies,  solutions  and  know-how  in  non-EU  countries.  This  should  open  up  new 
business opportunities for European industry and promote the EU as an attractive place and 
partner  for  research  and  investment.  The  Commission  will  further  support  space  business 
internationalisation  by  mobilising  existing  instruments16  to  help  European  companies, 
particularly clusters and networks of SMEs, access external markets. 

The Commission will strengthen its bilateral and multilateral space policy dialogues pursued 
closely with Member States. In cooperation with ESA, EUMETSAT and GSA it will review 
the  strategic  objectives  of  existing  dialogues  and  set  up  new  ones  reflecting  changing  EU 
priorities.  Further,  it  will  actively  promote  EU  space  programmes  and  seek  mutually 

16 For example, the COSME cluster internationalisation instrument, EIB loans or export credits. 

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beneficial  partnerships  for  data  exchanges  under  Copernicus  and  reciprocal  participation  in 
research programmes. 

Main actions: The Commission will: 

-  pursue space dialogues with strategic international partners, ensure that space policy  is 
duly taken into account in EU export control dialogues with third countries, use economic 
diplomacy  and,  trade  policy  instruments  to  assist  European  companies  active  in  global 
markets and to address societal challenges. 

- 

- 

foster  the  EU's  contribution  to  international  initiatives  such  as  the  Group  on  Earth 
Observation and CEOS. 

together  with  the  other  EU  institutions  and  Member  States,  engage  with  international 
partners  to  promote  responsible  behaviour  in  outer  space  and  preserve  and  protect  the 
space environment for peaceful use by all nations. 

5.  ENSURING EFFECTIVE DELIVERY 

The  measures  listed  above  are  designed  with  one  key  criterion  in  mind:  practical  delivery. 
They  are  designed  to  promote  partnerships  between  the  Commission,  Member  States,  ESA 
and  GSA,  together  with  all  other  relevant  agencies  such  as  EUMETSAT,  stakeholders, 
industry, research and user communities. 

Relations between the EU and ESA will be one of the cornerstones of success. ESA, with its 
technical excellence, expertise, capacity and know-how, is an important partner on which the 
Commission  will  continue  to  rely.  In  the  light  of  the  mid-term  evaluation  of  the  EU  space 
programmes  in  2017,  the  Commission  will  examine  potential  improvements  in  governance 
and simplification measures, for example  through a single Financial Framework Partnership 
Agreement with ESA, which would streamline the applicable rules and reinforce transparency 
and accountability requirements. 

The Commission will continue its successful collaboration with EUMETSAT given its crucial 
role in the delivery of Copernicus. The role of the GSA will also be strengthened regarding 
the exploitation of Galileo and EGNOS and to increase their market uptake. The Commission 
will consider extending the GSA’s responsibilities in certain security-related tasks to other EU 
space activities. 

The Commission will pursue its role in ensuring that the needs of various EU agencies, such 
as  the  EEA17,  EFCA18,  EMSA19,  the  European  Border  and  Coast  Guard  Agency  and  others 
representing the sectoral policies in need of space solutions are met. It will work closely with 
the  EEAS,  the  EDA  and  the  EU  SatCen,  together  with  Member  States  and  ESA  to  explore 
possible dual-use synergies in the space programmes. 

Starting  in  2017  the  Commission  will  roll  out  this  strategy  and  initiate  a  regular  structured 
dialogue with stakeholders to ensure effective delivery and monitor progress. 

17 European Environment Agency. 
18 European Fisheries Control Agency. 
19 European Maritime Safety Agency. 

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6.  CONCLUSION 

The  potential  of  space  for  Europe  and  the  world  is  enormous.  Europe  faces  huge  global 
challenges which require global responses. 

Europe must contribute to this collective responsibility. No single Member State can do this 
alone.  The  EU,  alongside  its  Member  States  and  ESA,  must  act  as  a  global  stakeholder  to 
promote and preserve the use of space for future generations. 

The EU cannot afford to fall behind in this domain. It must remain in the first rank, building 
on  Europe’s  talents  and  expertise,  capitalising  on  its  investments  and  anticipating  the 
opportunities of tomorrow. 

The Commission invites the European Parliament and the Council to discuss and support this 
strategy,  and  to  steer  its  effective  implementation,  in  close  cooperation  with  all  relevant 
stakeholders. 

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