Opinion of the European Economic and Social Committee on ‘Drone strategy 2.0’ (Own-initiative opinion)
Date: 2023-09-20
Institutions: European Economic and Social Committee
Subjects: EU strategy, air safety, drone, environmental impact, information security, innovation, provision of services, public safety, smart technology, sustainable mobility








C_202300858EN.000101.fmx.xml












Official Journal of the European Union


EN
Series C













C/2023/858


8.12.2023






Opinion of the European Economic and Social Committee on ‘Drone strategy 2.0’
         
(Own-initiative opinion)
(C/2023/858)







Rapporteur:



Maurizio MENSI











Plenary Assembly decision


23.3.2023




Legal basis


Rule 52(2) of the Rules of Procedure




 


Own-initiative opinion




Section responsible


Transport, Energy, Infrastructure and the Information Society




Adopted in section


6.9.2023




Adopted at plenary


20.9.2023




Plenary session No


581




Outcome of vote
(for/against/abstentions)


215/0/4




1.   Conclusions and recommendations









1.1.


The European Economic and Social Committee (EESC) welcomes the Drone Strategy 2.0 for unmanned aircraft systems (UAS) adopted by the Commission, and shares its objectives of unlocking the full potential of UAS and ensuring their safe and responsible use.












1.2.


The EESC highlights that the development of the drone market requires regional and local planning that takes into account mobility as a service with a multi-domain approach. Coordination will be necessary with relevant national and local authorities.












1.3.


The EESC believes that adequate both private and public investment will be required for the introduction of basic services.












1.4.


The EESC believes that integrated land, air and maritime dimensions could become an important factor in territorial development. The cost related to managing U-space should not be charged to the current airspace users (airlines, commercial aircraft operators).












1.5.


The EESC highlights that it is essential that a high level of physical and cyber security of drones be guaranteed, not least to ensure national security. Cyber security should also prevent the hacking of UAS communication and therefore prevent the malicious use or control of UAS. Protecting UAS communication systems helps maintain the integrity and safety of urban airspace.












1.6.


The EESC underlines the opportunity to provide for European cooperative management of information security through promotion and financing, such as a European platform for managing the security data of the various actors involved in the new air mobility, in order to manage cybersecurity risks in line with Commission Implementing Regulation (EU) 2023/203 (1).












1.7.


The EESC considers it essential for proper coordination between the responsible authorities to be established quickly. To this end, the already existing systems of rules and regulations will need to interact in order for drone activity to be treated as an integral part of different business sectors. Taking into account multilevel governance, the Commission should adopt guidelines to guide industrial development.












1.8.


The EESC believes that, as the introduction of new air mobility will most likely affect and change many aspects of our society, to ensure that maximum benefits are drawn and it gains public and political acceptance, the EU should engage in a wide competence and acceptance-building process involving all stakeholders, industrial sectors and the public. The aim is to foster understanding, gather diverse perspectives, and build broad-based support for the integration of new air mobility technologies, ensuring that they are aligned with societal needs and aspirations.




2.   Background









2.1.


In November 2022 the Commission published a Drone Strategy 2.0, with the aim of making UAS vectors of the smart and sustainable advanced mobility of the future by exploiting the possibilities offered by digitalisation, electrification of new electric airborne vehicles (eVTOLs), automation and the opportunities in general offered by innovative air mobility.












2.2.


By 2030 drones will become part of everyday life, providing emergency, imaging, inspection and surveillance services, as well as passenger and goods transport services, including unmanned ones, with fully automated operations. However, the current landscape of drone regulations and operations across EU Member States varies, which means there is a need for harmonisation. Establishing a harmonised approach will make it easier to achieve cross-border operations, facilitate innovation, and create a level playing field for the industry throughout the EU.












2.3.


The strategy aims to provide a coherent framework to foster the development of the drone and eVTOL (Vertical Take-Off and Landing) market, with two objectives: building the EU drone services market and strengthening the capabilities and synergies of the European civil, security and defence industry. Nineteen flagship measures have been identified.












2.4.


The strategy sets out a vision for the further development of the European drone market. It builds on the EU’s safety framework for operating and setting the technical requirements of drones and sets out how Europe can pursue large-scale commercial drone operations while offering new opportunities in the sector (2).
The Commission has been building the foundations of a comprehensive EU policy on drones since 2014. Relevant legislation includes Commission Implementing Regulation (EU) 2019/947 (3), Commission Delegated Regulation (EU) 2019/945 (4) and Commission Implementing Regulations (EU) 2021/664 (5), (EU) 2021/665 (6) and (EU) No 2021/666 (7).












2.5.


Since 2003, the EU has invested almost EUR 980 million in the development or use of drones for innovative applications. It has funded 320 drone projects.




3.   General comments

A.   Services provided by drones









3.1.


Drones will be used to provide numerous services for the benefit of a variety of civilian and defence end-users. Drone aerial operations will include emergency services, inspections and surveillance operations and will involve data gathering and goods delivery. Innovative Air Mobility services, such as air taxis, will start providing regular transport services for passengers, initially with a pilot on board, but with the ultimate aim of fully automating operations. Drone services will effectively incorporate or complement existing transportation systems and will contribute to the decarbonisation of the transport system.
The Action plan on synergies between civil, defence and space industries adopted in February 2020 already highlighted the importance of synergies between the civil and defence drone industries.












3.2.


As drone technology advances, these aircraft are becoming more common and affordable, giving rise to debates that weigh their benefits against new ethical and legal concerns. Previously reserved for military use only, drones are now relatively commonplace (8).




B.   Challenges associated with UAS









3.3.


The challenge of the next 10 years will be to introduce new products with a low environmental impact while at the same time ensuring adequate levels of protection for the public.












3.4.


It is difficult to regulate the flight of small drones, several thousand of which are sold every year and are easily available. However, even if they are small, such drones present considerable safety risks for ground installations such as fuel depots. So far, no serious accidents have occurred, but there have been reports of criminals using drones to take illegal items into prisons. The Commission should monitor, over time, the current appropriateness of both privacy rules and insurance systems.












3.5.


Government authorities have been trying to overcome these challenges with proper regulation (9), although there are very few national regulatory frameworks in place. There are many rules and regulations on UAS ownership, however, and operations and law enforcement agencies are already using different technologies to stop rogue UAS. The options include signal jamming as well as capturing and bringing down rogue UAS.
The global market for civil and military drones was worth USD 4 billion in 2015 and is now booming. A US Senate report estimated in 2017 that it would reach USD 14 billion by 2025, and a specialised institute (10) has put forward a figure of USD 72 billion by 2028, with an average annual growth rate of 14,4 %.












3.6.


The costs of managing U-space should not be charged to current airspace users (airlines, commercial aircraft operators). These activities should be kept completely separate, making sure that the ‘users pay principle’ is applied: airlines pay for the services they get from air navigation providers, and drone operators should also be paying for the services they get. This could be addressed by the pricing requirements for data exchanges as proposed by the Commission in the SES2+ (Single European Sky) reform, to ensure a level playing field in access to and pricing of necessary data.




C.   The environmental issue









3.7.


Congested streets and pollution are already a reality in several European cities (11). Local authorities are looking at smarter, greener, more integrated and sustainable mobility solutions. Urban Air Mobility (UAM) has the potential to respond to these needs. Urban Air Mobility is expected to bring environmental benefits as well as advantages for the public and businesses, notably for commercial or emergency/medical purposes.












3.8.


The estimated market size of UAM in Europe, including R & D, vehicle manufacturing, operations and infrastructure construction, will be approximately EUR 4,2 billion in 2030, which represents almost one third of the global market. The estimated market size could create or sustain approximately 90 000 jobs in 2030.












3.9.


The Commission acknowledges that drones will need to be socially accepted in order to play their full role for the benefit of businesses and local communities. This will require the full upfront involvement of all parties concerned at local, regional and national levels to make sure that safe and secure drone operations can be deployed, both in urban and rural areas, in a fair and sustainable manner.












3.10.


To encourage private investment and the development of new innovative services for various sectors, legal and technical certainty should be ensured. To this end, the Commission should issue guidelines based on a harmonised EU approach to promote investment.




D.   The drivers of drone strategy









3.11.


Key to the strategy are two related drivers: building the EU’s drone services market and strengthening European civil, security and defence industry capabilities and synergies.












3.12.


The EASA (12) study on the societal acceptance of Urban Air Mobility in Europe (13) highlighted that, in addition to safety concerns, security and privacy issues and wildlife protection are Europeans’ main concerns. EASA will liaise with the Commission and support it in developing appropriate measures, either systemic or technical, for ensuring environmental and wildlife protection.












3.13.


To support implementation of the regulatory framework under development, EASA has also established the following additional initiatives: establishment of a Task Force with Member State’s representatives and Eurocontrol to harmonise the approach to certifying U-space service providers and single common information service providers; publication of guidelines for managing incidents involving drones at airports (14); and support for Member States for the development of exemptions and regulatory sandbox tools for obtaining operational authorisations.












3.14.


The strategy appears to pay less attention to issues such as responsibility, in both B2B and consumer relations including with respect to cross-border operations and in situations where several modes are involved. The EESC considers it important to agree on common EU principles in this regard, including for relations with third countries, before the market for drone mobility and freight services develops.




4.   Specific comments









4.1.


Enabling services related to Innovative Air Mobility will allow drones also to be included in the transport modes available in urban and local areas (15). The development thereof will require regional and local planning that takes into account criteria based on considerations of mobility as a service with a multi-domain approach. Hence the EESC highlights that proper links and coordination will be necessary with national and local authorities.












4.2.


The new air mobility intends to enhance the intermodal dimension by being integrated with other mobility systems, so as to create a flexible, intelligent and capillary network throughout the country (16). Although integration with the terrestrial domain seems obvious, the connection with the internal waterway and maritime domain is equally important.
Integrated land, air and maritime dimensions will be an important factor in territorial development. The challenge will be the safe integration of UAS into airspace and the definition of appropriate tariffs for services to be sustainable and affordable for businesses and users. In particular, the drones market is growing, but, despite expectations of a speedy introduction of such services, the parties concerned are still working out which drone operators will supply which services in U-space and how high the costs are going to be.












4.3.


It is essential that a high level of physical and cyber security of drones be guaranteed, not least to ensure national security. This applies first and foremost to technological and construction components, with a need for procurement procedures capable of verifying the suitability of suppliers, as the European Commission indicated, moreover, for the 5G network and equipment, in its recommendation of 26 March 2019 (17). In addition, there is the necessary protection of the software involved, in order to prevent hostile parties from taking control of drones, as well as the improper collection of data. Therefore, it is necessary to assess whether measures on cyber security, passenger security checks and counter-UAS systems are adequate and to carefully evaluate drones that use AI, under the prospective EU AI Regulation.












4.4.


The EESC notes that Regulation (EU) 2023/203 on requirements for the management of information security risks with a potential impact on aviation safety for organisations and competent authorities applies to various players, including U-space service providers and CISP, as well as innovative air mobility operators. It is therefore necessary to provide for European cooperative management of information security, in order to manage cybersecurity risks.












4.5.


The EESC considers it essential for proper coordinating action between the responsible authorities to be taken quickly. Companies from various industries are using drones without regarding themselves as ‘aeronautical companies’, but they have to interact and coordinate with the traditional aeronautical industry. The authorities in charge of the various business segments will have to discuss and coordinate strategies, policies and operational practices so that they do not become an obstacle to the development of the market. This is an important challenge at EU and national level, and related measures should be an integral part of the EU’s drone strategy 2.0 as well as national ones.












4.6.


As the EU Drone Strategy 2.0 points out, drones can be utilised in almost every industrial and societal sector and have an almost unlimited number of potential applications. At the same time, awareness of this potential may be low in some sectors. Similarly, planning of necessary infrastructure on land and in the air must now embrace a new element, the usage and characteristics of which is to some extent not well known. In order to draw maximum benefits from this new technology while at the same time minimising risks and ensuring it gains public and political acceptance, the EU should engage in a wide competence and acceptance-building process involving all stakeholders, industrial sectors and the public.






Brussels, 20 September 2023.


The President of the European Economic and Social Committee

Oliver RÖPKE
            





(1)  Commission Implementing Regulation (EU) 2023/203 of 27 October 2022, laying down rules for the application of Regulation (EU) 2018/1139 of the European Parliament and of the Council, as regards requirements for the management of information security risks with a potential impact on aviation safety for organisations covered by Commission Regulations (EU) No 1321/2014, (EU) No 965/2012, (EU) No 1178/2011, (EU) 2015/340, Commission Implementing Regulations (EU) 2017/373 and (EU) 2021/664, and for competent authorities covered by Commission Regulations (EU) No 748/2012, (EU) No 1321/2014, (EU) No 965/2012, (EU) No 1178/2011, (EU) 2015/340 and (EU) No 139/2014, Commission Implementing Regulations (EU) 2017/373 and (EU) 2021/664 and amending Commission Regulations (EU) No 1178/2011, (EU) No 748/2012, (EU) No 965/2012, (EU) No 139/2014, (EU) No 1321/2014, (EU) 2015/340, and Commission Implementing Regulations (EU) 2017/373 and (EU) 2021/664 (OJ L 31, 2.2.2023, p. 1
).

(2)  In the United States, for example, the Federal Aviation Administration (FAA) has been actively working on integrating drones into the National Airspace System. Similarly, countries such as Canada, Australia, Japan, and China have made significant progress in developing their own drone industries and regulatory frameworks.

(3)  Commission Implementing Regulation (EU) 2019/947 of 24 May 2019 on the rules and procedures for the operation of unmanned aircraft (OJ L 152, 11.6.2019, p. 45).

(4)  Commission Delegated Regulation (EU) 2019/945 of 12 March 2019 on unmanned aircraft systems and on third-country operators of unmanned aircraft systems (OJ L 152, 11.6.2019, p. 1).

(5)  Commission Implementing Regulation (EU) 2021/664 of 22 April 2021 on a regulatory framework for the U-space (OJ L 139, 23.4.2021, p. 161).

(6)  Commission Implementing Regulation (EU) 2021/665 of 22 April 2021 amending Implementing Regulation (EU) 2017/373 as regards requirements for providers of air traffic management/air navigation services and other air traffic management network functions in the U-space airspace designated in controlled airspace (OJ L 139, 23.4.2021, p. 184).

(7)  Commission Implementing Regulation (EU) 2021/666 of 22 April 2021 amending Regulation (EU) No 923/2012 as regards requirements for manned aviation operating in U-space airspace (OJ L 139, 23.4.2021, p. 187).

(8)  For instance, drones are increasingly used in precision agriculture to monitor crop health, optimize irrigation, detect diseases and pests, and analyse soil conditions. They can help farmers make data-driven decisions and improve crop yields.

(9)  Different EU countries have implemented their own sets of regulations regarding drone ownership, pilot certification, operational restrictions, and privacy concerns. These regulations aim to ensure the safe and responsible use of drones while minimizing potential risks to public safety, security, and privacy.

(10)  Global Unmanned Aerial Vehicle Market Insights; Forecast to 2028, Valuates Report, 2022

(11)  Study on the societal acceptance of Urban Air Mobility in Europe, EASA, May 19 2021.

(12)  The European Union Aviation Safety Agency.

(13)  https://www.easa.europa.eu/sites/default/files/dfu/uam-full-report.pdf.

(14)  https://www.easa.europa.eu/sites/default/files/dfu/drone_incident_management_at_aerodromes_part1_website_suitable.pdf.

(15)  For example, Helsinki has been a pioneer in embracing MaaS. In 2019, it conducted a pilot project in which drones were used to transport blood and medical samples between hospitals.

(16)  Opinion of the European Economic and Social Committee on ‘Intermodal transport and multimodal logistics — making modes complementary in greening transport’ (Own-initiative opinion) (OJ C 374, 16.9.2021, p. 1).

(17)  Commission Recommendation (EU) 2019/534 of 26 March 2019 Cybersecurity of 5G networks (OJ L 88, 29.3.2019, p. 42).


ELI: http://data.europa.eu/eli/C/2023/858/oj
ISSN 1977-091X (electronic edition)