COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT on countering potential threats posed by drones
Date: 2023-10-18
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU financing, EU policy, air safety, crime, drone, exchange of information, innovation, public safety, research and development, technological change

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 18.10.2023  COM(2023) 659 final  COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT on countering potential threats posed by drones  
 
 
I.  INTRODUCTION 

This  Communication sets out  the  EU’s  policy  on  countering  the  potential threats  from  non-cooperative 
unmanned  aircraft  systems  (UAS),  commonly  known  as  ‘drones’.  It  is  part  of  a  wider  counter-drone 
package that also comprises two handbooks, which provide practical guidance on key technical aspects of 
this policy. This package was announced as a flagship action under the Commission Communication  A 
Drone  Strategy  2.0  for  a  Smart  and  Sustainable  Unmanned  Aircraft  Eco-System  in  Europe1.  This 
Communication responds to the need to: (i) provide a comprehensive and harmonised policy framework; 
(ii)  build  a  common  understanding  of  applicable  procedures  to  face  the  continuously  evolving  threats 
possibly posed by drones; and (iii) take into account the rapid developments in technology. 

A.  Complementing the EU framework on drones 

The legitimate use of drones is a key part of the path towards the twin green and digital transitions, as laid 
out in  the  EU’s ‘Drone  Strategy  2.0’.  They  play an important  role  notably in the  domains  of  transport, 
defence, commerce, and services. The number of drones in use in the EU is set to grow significantly in the 
coming  years,  and  they  will  improve  greatly  in  terms  of  speed,  agility,  maximum  range,  payload 
capabilities, precision of sensors, and use of artificial intelligence. These developments will lead to a wider 
range of legitimate and lawful uses for drones. However, in order for this potential to be achieved, it is 
necessary to address the potential threat that can be posed by non-cooperative drones. A non-cooperative 
drone  is  to  be  defined  according  to  the  nature  of  non-cooperation  that  could  include  criminal,  illegal 
(intended regulatory breach) or amateur (ignorant, careless). 

This Communication addresses threats posed by drones that are designed for civil use, and it seeks to tackle 
threats from these drones in a civil environment. Although drones designed for defence purposes are not 
the  focus  of  this  Communication,  there  remain  several  interlinkages  with  the  defence  domain.  These 
connections  include  the  potential  use  of  smaller  drones  designed  for  defence  purposes  by  criminals  or 
terrorists, as well as the synergies between technologies to counter drones. Drones designed for defence 
purposes could occupy the same airspace as civil drones, and in these cases they need to be identifiable by 
competent authorities for situational awareness. 

The scope of this Communication is specifically on countering the potential threats posed by drones. It 
therefore does not aim to cover the wider dimension of the role of drones in the internal security domain, 
namely their use for law enforcement, public security, or public safety.  

Member  State  authorities  are  primarily responsible  for  countering the threats  posed  by  non-cooperative 
drones. However, Member States also benefit from action at EU-level, making possible closer cooperation 
and coordination in the different means and tools used for that purpose. Therefore, this Communication 
promotes  various  actions  related  to  community  building  and  information  sharing.  It  is  also  supporting 
Member States with guidance, training, funding and operational procedures. 

Potentially dangerous incidents involving drones have become more frequent  – both within the EU and 
beyond  its  borders.  It  is therefore important to facilitate  the  uptake of  physical or  digital  counter-drone 
solutions  by  law  enforcement  and  other  public  authorities  in  the  EU  and  by  operators  of  critical 
infrastructure. Drawing up an EU counter-drone policy will help to strengthen procedures for testing the 

1 A Drone Strategy 2.0 for a Smart and Sustainable Unmanned Aircraft Eco-System in Europe, COM(2022) 652 final 

of 29 November 2022. 

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efficiency of available new solutions, and to facilitate the targeted use of research and innovation in that 
domain. By drawing up this counter-drone policy, the Commission is helping to strengthen an EU market 
for counter-drone  solutions.  This  will  pave  the  way for  increased  strategic  autonomy and technological 
sovereignty for the  EU,  including in  areas  of critical  technologies.  It  will foster  European capacities to 
develop cutting-edge solutions in the defence, aerospace, and civil-security domains and reduce dependence 
on  non-European  suppliers.  This  will  build  on  the  outcomes  of  the  assessment  of  critical  technology 
dependencies2  and  will  provide  further  data  and  analysis.  It  will  also:  (i)  inform  the  Commission’s 
understanding  of  the  use  of  critical  technologies  and  dependencies  on  non-European  suppliers;  and  (ii) 
provide a sound overview of the level of dependency. 

Moreover, with a view of countering threats  posed by non-cooperative drones from a public authority’s 
perspective, it is also important to: (i) have clear and harmonised frameworks and procedures in place; (ii) 
provide clear authority for responsible public and private stakeholders to intervene against non-cooperative 
drones ; and (iii) facilitate collaboration between stakeholders that are not always accustomed to working 
together (law enforcement, civil aviation authorities, operators, manufacturers, mobile-network operators). 
This Communication puts forward actions to: (i) build a common understanding of applicable procedures 
when dealing with threats posed by drones; and (ii) identify possible needs in terms of harmonisation of 
regulatory measures   

B. Addressing a current – and rapidly evolving – threat 

Both the EU’s ‘Security Union’ strategy3 and the Counter-Terrorism Agenda4 stress that the threat of non-
cooperative drones is a serious concern in Europe.  

The rapidly advancing capabilities of drones pose a growing security risk. In recent years, plans have been 
uncovered to try and make use of drones for terrorist attacks5. There have also been sightings of suspicious 
drones around critical infrastructure, such as energy facilities, airports, and ports, indicating the potential 
misuse of drones for hostile information gathering. Drones are used by criminals engaged in smuggling 
across borders, or to facilitate other illicit operations, including drug trafficking. Drones can furthermore 
be a source of cyber risks, for example if being used for digital reconnaissance. Threats posed by drones 
are not simply a technical problem. Today, most drones designed for civil purposes may be detected and 
identified, but it is still very challenging to engage or neutralise them (i.e. to take control of them, land them 
safely, or shoot them down), often due to the lack of legal authorisation to do so. This is especially true for 
private operators of critical infrastructure. Countering the threats posed by drones should therefore be taken 
into consideration in future risk assessments under the Directive on the resilience of critical entities6. 

The threat picture becomes even clearer when looking at incidents in countries near the EU and in other 
parts  of the  world.  Drones  proved  a cost-efficient  and  effective  dual  use  platform  that  boosted  defence 
innovation in the Russian war against Ukraine. The use of drones designed for civil purposes for destructive 

2 A Commission-internal deep-dive assessment on autonomous systems conducted in 2022. 

3 EU Security Union Strategy, COM (2020) 605 final of 24 July 2020. 
4  A  Counter-Terrorism  Agenda  for  the  EU:  Anticipate,  Prevent,  Protect,  Respond,  COM  (2020)  795  final  of  9 

December 2020. 

5 Examples include: (i) the plan of an inspired jihadist who was sentenced by a Spanish court in October 2022 for 
planning to attack a stadium during a major football match using a drone packed with explosives; and (ii) a Belgian 
citizen, sentenced for attempting a bomb attack using drones against a prison. 

6 Directive on the resilience of critical entities (EU) 2022/2557 of 14 December 2022 (OJ 2022 L 333, p. 164). 

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attacks  even  in  other  armed  conflicts  (such  as  in  Yemen  or  Syria)  is  a  phenomenon  likely  to  have 
implications for the EU’s internal security. The modus operandi of terrorist groups and the enhanced skills 
in the use of "off the shelf drones" could reach our borders and represent a threat. The same is true for the 
use of drones for attempted targeted assassinations7. 

However,  counter-drone  solutions  are  not  only  necessary  against  targeted  malicious  use.  They  are  also 
needed to prevent incidents caused by negligence or recklessness. Most drone users in the EU (notably 
licensed professional remote pilots or organised leisure pilots) comply with existing rules, regulations, and 
technical limitations. Nevertheless, ignorant, careless, and criminal drone users are responsible for the many 
dangerous incidents involving drones across the EU. Large-scale public events are particularly vulnerable 
to such disturbances, as are some critical sectors like air transport. In addition, the unlawful use of drones 
can also affect the personal safety and right to privacy of individual members of the public, notably when 
drones are operated in residential areas.  

C. Keeping pace with technological developments 

Protecting our societies against malicious and non-cooperative drones requires access to affordable and 
reliable  counter-measures  that  enable  flexible  solutions.  Solutions  usually  address  the  three  aspects  of 
detection, tracking and identification, while public authorities are also interested in two additional aspects: 
neutralisation and forensics. 

In  both  the  defence  and  civil-security  domain,  innovative  counter-drone  solutions  are  already  being 
developed and tested. Their entry into the market and their uptake by end-users can be facilitated by an 
overarching EU framework on countering drones, as it is promoted in this Communication. However, it is 
not possible to have a standardised ‘one-fits-all’ approach to the implementation of counter-drone measures 
due to the large variety of possible operational scenarios and environments. 

Counter-drone measures must therefore be adapted to different needs and different operating environments. 
From the perspective of authorities in charge of internal security, there may be situations where the full 
physical destruction of a drone is the preferred and only option, for example to prevent an imminent attack 
on people or infrastructure. In other cases, such as criminal use or the hostile gathering of information, there 
is a strong interest in securing control of the drone to land it while leaving it as intact as possible, so as to 
allow for optimal forensic investigation. This includes the need for sophisticated cyber solutions to  take 
control over a drones operating system.  

One of the technological trends that should be monitored and actively used is the development of sensors 
for the more accurate detection of drones. Existing sensor capabilities can be further developed not only to 
detect  a  drone,  but  also  to  assess  the  threat  it  poses  by  flight-pattern  analysis,  payload  detection,  and 
equipment detection. Sensors and detection systems need to be able to cope with the changing shapes and 
capabilities of drones (speed, agility, ability to deploy decoys, etc.). The capacity of public authorities and 
private operators of critical infrastructure to analyse data from those sensors will be increasingly important. 
Artificial intelligence will also play a role, for example by automatically generating alerts, calculating risks, 
predicting routes, or predicting landing sites. Thus, new trends in drone markets need to be continuously 
monitored  and  incorporated  into  counter-drone  solutions.  The  monitoring  of  these  technological 
developments should enable the authorities in the EU to identify priorities for investment and to support 

7 Examples include an unsuccessful attempt to assassinate the President of Venezuela, and Mexican drug cartels using 

drones against representatives of other criminal organisations. 

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the developments that are best suited to meeting the operational needs expressed by Member State law 
enforcement authorities and private operators. 

On engagement and neutralisation, further testing is needed on technologies that are suitable in different 
environments and scenarios. In the defence domain, solutions have been identified to physically destroy or 
entirely capture a drone while it is in the air, thus reducing the generation of debris which could lead to 
injuries to people or damage to objects. This includes directed energy in the form of high-energy lasers, as 
well as the use of high-powered radio-frequency and net-capture systems as well as digital tools to gain 
control over non-cooperative drones.  

For law enforcement and investigation, it would be particularly helpful to be able to neutralise a drone 
threat by taking control over its control system and safely landing it, giving authorities and investigators 
the  best possible  access  to  potential  physical  and digital  evidence.  Therefore,  a wide  range  of  different 
solutions should be available and validated for different purposes to serve the internal security domain. It 
is therefore necessary to foster a genuine market and innovation environment for counter-drone solutions 
that serve the needs of the civil-security domain. Otherwise, developments in counter-drone solutions are 
unlikely  to  keep  pace  with  the  increasing  numbers  and  capabilities  of  the  drones  themselves.  It  is  also 
essential to structure and segment this market to help relevant authorities to identify the solutions that best 
meet their needs. 

In addition, it is important to monitor so-called counter-counter-drone systems used by criminals. Counter-
counter-drone systems are devices that are either carried by the drone or deployed from the ground and are 
designed to obstruct specific counter-drone measures. 

Finally,  many  counter-drone  systems  are  also  developed  for  defence  purposes.  Although  different  in 
requirements, they often share common characteristics and technologies with systems intended for civil 
purpose, leading to a need for close cooperation with the defence domain. 

This  evolving  technological  landscape  also  requires  a  consistent  and  continuously  updated  regulatory 
framework for the use of counter-drone systems. 

II.  FORMULATING AN EU COUNTER-DRONE POLICY  

The Commission has worked with Member States and other stakeholders on the potential threat posed by 
drones  since  2016,  when  the  first  EU  counter-drone  workshop  took  place.  Since  then,  a  wide  array  of 
initiatives has been introduced to facilitate community building, information sharing, the development of 
best practices, and the dedicated funding of projects. As a result of discussions with Member State experts, 
the Commission will continue to support these ongoing initiatives while further developing and integrating 
new strands of work to draw up a fully-fledged EU counter-drone policy. This work will consist of the 
following six key activities:  

Community-
building & 
information 
sharing

Testing of 
counter-
drone 
systems

Practical 
guidance & 
operational 
support

Research & 
innovation

Funding 
support 

Regulatory 
measures

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A.  Community building and information sharing 

A  wide range  of  different networks  and  actors is now  working  at  EU-level  on  counter-drone solutions. 
There is therefore a need to streamline and steer their future activities in policy, technical, and operational 
terms to: (i) build functioning stakeholder communities; (ii) ensure the effective sharing of information and 
best practices; and (iii) avoid the duplication of work.  

The Commission will foster existing initiatives at technical level while setting up a Commission counter-
drone expert group to provide advice at policy level. This expert group will be able to provide strategic 
input to various EU-level policies with relevance for counter-drone activities, such as in the domains of 
internal security, border management, or critical-infrastructure resilience. To this end, the expert group will 
cooperate with other expert groups and, where appropriate, with relevant Council working parties. 

Workshops and expert meetings on counter-drone solutions and policies take place regularly. These bring 
together policy makers, technical experts, and researchers from the Commission, Member States, other EU 
institutions,  EU  agencies,  EU-funded  projects,  international  organisations,  and  partner  countries.  These 
activities  have  led  to  the  continuous  engagement  of  all  stakeholders,  significantly  facilitating  their 
operational  and  practical  cooperation.  To  this  end,  the  Commission  has  set  up  the  Counter-UAS 
Information Hub8 which currently has more than 300 members. This online platform is regularly updated 
and  hosts  different  sources  of  information,  such  as  outcomes  from  relevant  EU-funded  projects, 
presentations, reports, and a semi-annual newsletter. 

Another important part of community building and information sharing, notably for the operational needs 
of law enforcement, takes place as part of the EU-funded European Law Enforcement Networks. For 
example the following networks have all started their own activities on countering the threats posed by 
drones: the European Network of Law Enforcement Technology Services (ENLETS); the EU Network for 
Police  and  Border  Guard  Units  at  airports  (AIRPOL);  the  EU  Network  of  Special  Intervention  Units 
(ATLAS);  and  the  EU  High-Risk  Security  Network.  The  newly  created  Law  Enforcement  Network 
Working Group, a DG HOME initiative aiming to foster cooperation among police networks and funded 
by the Commission9, will streamline the ongoing strands of work in the counter-drone domain in a dedicated 
sub-working group. 

The European Aviation Safety Agency (EASA) has drawn up non-binding guidelines helping authorities 
and airports to prepare for, respond to, and recover from drone incidents10. In order to promote informed 
support activities and policy-making at EU-level, it is essential to have reliable and detailed exchanges of 
information on incidents involving drones in the EU beyond the exchanges already taking place in specific 
critical areas such as airports. While fully respecting the confidentiality of investigations, there is significant 
potential  to  improve  the  sharing  of  information  on:  (i)  methods  used  by  operators  of  non-cooperative 
drones;  (ii)  specific  threat  patterns;  and  (iii)  potential  risks  identified.  To  facilitate  and  harmonise  the 
sharing  of  such  information  on  incidents,  the  Commission  shared  with  Member  States  a  template  for 
reporting  on  drone  incidents.  To  further  increase  the  quality  and  frequency  of  information  sharing,  the 
Commission will explore the possibility of setting up a digital platform containing information on drone 
incidents, for the use by relevant public authorities. It could serve to properly identify and collate major 

8   Using  the  EU  CIRCABC  platform  that  is  supported  by  the  European  Commission’s  ISA²  programme,  which 

promotes interoperability solutions for European public administrations. 

9   The (informal) Law Enforcement Network Working Group (LENWG) is chaired by the Commission, and met for 
the first time on 20 March 2023 to foster better cooperation between the networks funded by DG HOME. After a 
twelve-month evaluation period, the LENWG could be turned into a proper Commission Expert Group. 

10 The European Union Aviation Safety Agency (EASA) published in March 2021 a set of guidelines for managing 

drone incidents at airports: Drone Incident Management at Aerodromes. 

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security incidents involving drones in the EU. This may include also the cyber dimension as drones are 
used not only to visual reconnaissance, but also digital reconnaissance. This platform would be consistent 
with existing reporting obligations under Regulation (EU) No 376/201411 and would not duplicate existing 
efforts.  

The Commission will also organise regular classified meetings to promote the exchange of lessons learnt 
from incidents in an appropriate format. 

Key actions for community building and information sharing 

-  The Commission will set up an expert group, consisting of Member State experts 

and other stakeholders on counter-drone activities.  

-  The  Commission  will  explore  the  possibility  of  developing  a  digital  platform 

containing information on drone incidents.  

-  The  Commission  will  organise  regular  meetings  to  facilitate  the  exchange  of 
classified information between Member States on major security incidents involving 
the use of drones. 

B.  Testing counter-drone systems: identifying and testing solutions 

Member States and local authorities can choose from a wide array of commercial- cyber and non-cyber- 
counter-drone solutions that are available on the market. Making this choice is challenging, especially for 
local entities that do not have sufficient technical capabilities. The Commission will help Member State 
authorities to make the right choice for their operational needs by providing advice and guidance via the 
dedicated counter-drone expert group and the work of the Commission’s Joint Research Centre (JRC).  

EU-level activities to test counter-drone systems were launched in 2019. They aim to develop a common 
methodology for evaluating systems that can be used by law enforcement and other public authorities to 
detect,  track,  and  identify  potentially  malicious  drones.  A  central  pillar  of  these  activities  is  the 
‘Courageous’12  project  (2021-2024),  which  is  funded  by  the  EU  Internal  Security  Fund  -  Police  (ISF-
Police). Courageous is led by the Belgium Royal Military Academy and has been tasked with: (i) identifying 
relevant standard scenarios for testing counter-drone systems; (ii) developing functional and performance 
requirements; and (iii) developing a testing methodology. The project is also testing the performance of 
sensors and integrated systems. Outcomes from the project are continuously shared with Member States as 
well  as  selected  partner  countries  and  international  organisations.  After  completion  of  the  project,  the 
Commission  and  the  Courageous  consortium  will  present  options  to  Member  States  to  ensure  the 
sustainability  of  the  project  and  recommend  a  methodology  for  counter-drone  testing  facilities  in 
Member States.  

Technological developments of relevance to counter-drone systems are evolving rapidly. Therefore, testing 
activities  must  be  complemented  by  constantly  monitoring  trends  to  identify  both  the  most  promising 
solutions and any potential new challenges to the development of counter-drone systems. The JRC has built 
up capacity to conduct this monitoring and to identify these new challenges. This benefits Member States 
and  provides  valuable  input  to  EU-level  testing  initiatives.  The  information  will  be  shared  through 
appropriate channels notably the expert group. 

11 Regulation (EU) 376/2014 of the European Parliament and of the Council of 3 April 2014 on the reporting, analysis 

and follow-up of occurrences in civil aviation, amending Regulation (EU).  

12  https://courageous-isf.eu/. 

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Standardisation is one instrument to harmonise technological solutions. The Courageous project drew up 
specific  advice  on  pre-standardisation,  based  on  which  the  feasibility  of  –  and  need  for  –  launching 
standardisation  processes  can  be  further  assessed.  At  EU  level,  good  progress  has  been  made  with  the 
development of voluntary performance requirements for detection equipment outside aviation (e.g. for x-
ray  machines  and  metal  detectors13).  Together  with  experts  from  Member  States  and  industry,  the 
Commission  will  now  also  develop  voluntary  performance  requirements  for  counter-drone  systems, 
where relevant in coherence with provisions of Cybersecurity Act14. Setting up a certification process for 
counter-drone  systems  should  remain  a  mid-term  objective.  Where  appropriate,  hybrid  civil-defence 
standards will also be considered. 

Standardising and certifying the cybersecurity of counter-drone systems, especially if they are provided by 
suppliers from non-EU countries, is another key element. At this stage, there remains uncertainty over how 
well protected the data are that are gathered by certain detection systems. In addition, it is important to 
prevent  as  much  as  possible  the  hacking  and  misuse  of  counter-drone  systems  by  ensuring  the  cyber 
resilience of their components. 

In September 2022, the Commission adopted a proposal for a regulation on cyber resilience15, aiming to 
draw up general cybersecurity rules for products with digital components – both hardware and software – 
that  access  the  single  market.  The  proposed  new  regulation  aims  to  introduce  mandatory  cybersecurity 
requirements for these products. These requirements will include cybersecurity by design and by default, 
as well as requirements to address vulnerability. As proposed by the Commission, drone systems that are 
not developed exclusively for national security or military purposes and that are not already certified in 
accordance with Regulation (EU) 2018/1139 would be covered as products with digital elements by these 
new rules, with the exception of those developed exclusively for national security or defence purposes. 

Key actions for testing counter-drone systems 

-  The Commission will work on implementing a harmonised testing methodology for 

counter-drone systems based on the outcomes of the Courageous project.  

-  The JRC will compile an annual report on technical developments in counter-drone 

technology. 

-  The  Commission,  in  cooperation  with  relevant  expert  groups,  such  as  the  Law 
Enforcement Networks ENLETS, HRSN, AIRPOL, will develop a set of voluntary 
performance requirements for counter-drone systems. 

C.  Practical guidance and operational support  

Tackling threats posed by non-cooperative drones has already been identified as a priority in a number of 
publications  by  the  JRC,  such  as  in  guidelines  focusing  on  building  perimeter  protection16  and  in  the 

13 Commission Recommendation on voluntary performance requirements for X-ray equipment used in public spaces, 

C(2022) 4179 final  

14  Regulation  (EU)  2019/881  of  the  European  Parliament  and  of  the  Council of 17  April 2019  on  ENISA  and on 

information and communications technology cybersecurity certification 

15 Proposal for a Regulation of the European Parliament and of the Council on horizontal cybersecurity requirements 

for products with digital elements and amending Regulation (EU) 2019/1020, COM(2022) 454 final. 

16 Karlos, V. and Larcher, M., Guideline - Building Perimeter Protection, EUR 30346 EN, Publications Office of the 

European Union, Luxembourg, 2020,. 

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dedicated study on drone-transported explosive charges17. Moreover, the recent publication18 on the concept 
of  security-by-design  highlights 
integrating  proportionate,  appropriate,  and 
multifunctional protective measures in a thought-through approach from the very beginning of the planning 
and design phase of a project, including measures to counter any attacks that make use of drones.  

importance  of 

the 

Furthermore, EASA’s manual on Drone Incident Management at Aerodromes provides guidance on how 
to develop appropriate arrangements and procedures which support an incident-response system at airports 
that is quick, effective, and proportionate. In this way, air-traffic suspensions, or the closing of air space or 
runways, may be avoided or kept to a minimum and airport closures would remain a last resort. EASA’s 
work takes account of the International Civil Aviation Organization’s guidance on aviation security19. 

Two new handbooks have been developed by the JRC: 

-  Protection  against  Unmanned  Aircraft  Systems:  Handbook  on  UAS  protection  of  Critical 

Infrastructure and Public Space - A five Phase approach for C-UAS stakeholders 

-  Protection  against  Unmanned  Aircraft  Systems:  Handbook  on  UAS  Risk  Assessment  and 

Principles for Physical Hardening of Buildings and Sites. 

In the area of training, the EU-funded project DroneWISE20 created a package of counter-drone command, 
control, and coordination strategies for first responders. The project also produced 10 training modules, a 
handbook, and an online training portal. These training modules have been integrated into the curriculum 
of  CEPOL,  the  European  Union  Agency  for  Law  Enforcement  Training.  Another  ISF  project  that  was 
dedicated to counter-drone training was the Skyfall project. There is a need to further extend the available 
training to private security providers, specifically those responsible for protecting critical infrastructure. 

The Commission’s  EU protective security advisers (EU PSA) programme21 has a section devoted to 
counter-drone  activities,  which  offers: (i)  a  specific  vulnerability assessment for  high-risk facilities  and 
infrastructure; (ii) practical advice on how to cope with the drone threat; and (iii) practical advice on how 
to cope with the deployment of drone-detection equipment during high-risk events. The Commission will 
explore the need to create an EU pool of counter-drone equipment available for Member States to support 
them at large-scale events. 

Exercises such as those organised with the Law Enforcement Network at EU-level contribute to operational 
preparedness in different domains of internal security. Where relevant, the Commission will work with the 
relevant networks to include counter-drone elements in future exercises. This will help to further increase 
knowledge and the exchange of best practices, making use of different solutions. One requirement for an 
effective  response  to  threats  posed  by  drones  is  that  there  needs  to  be  reliable  secure  communication 
between  different  authorities.  Therefore,  countering  threats  posed  by  drones  will  be  part  of  the  future 
exercise planning to be conducted as part of the EU-funded BroadEU.Net preparation project, testing the 

17 The threat of UAS using explosives was investigated by the JRC in: Larcher M, Karlos V, Valsamos G, Solomos 

G: Scenario study: drones carrying explosives, JRC107683, 2018 

18 European Commission, Security by Design: Protection of public spaces from terrorist attacks, JRC131172, 2022. 

19 The ICAO Aviation Security Manual (Doc 8973 – Restricted) assists Member States in implementing Annex 17 to 
the Chicago Convention by providing guidance on how to apply its standards and recommended practices (SARPs) 
Aviation Security Manual. 
20 https://dronewise-project.eu/ 
21https://home-affairs.ec.europa.eu/policies/internal-security/counter-terrorism-and-radicalisation/protection/eu-

protective-security-advisors-eu-psa_en. 

8 

 
 
 
 
 
 
basis of the future EU critical communication system22. Furthermore, joint exercises could be conducted 
including cybersecurity and drone security experts address cyber risks posed by drones, as well as digital 
solutions to neutralise drones. 

Key actions for practical guidance and operational support  

-  The JRC will publish two handbooks as part of the counter-drone package. 
-  The Commission, in cooperation with relevant agencies, will support extending 

existing counter-drone training to the private security sector.  

-  The Commission will integrate the counter-drone components in the planning of 

exercises, in cooperation with the Law Enforcement Networks. 

D.  Research and innovation  

The EU is continuing to finance its security-research programme as part of Horizon Europe (2021-2027)23. 
This security-research programme represents roughly 50% of overall public funding invested in the EU and 
its Member States in the area of security. As a strategic contributor to various EU security-policy priorities, 
this  security research  has also  already  begun  to  address  the  threats  posed  by  drones.  Notable  examples 
include ALADDIN, which provides solutions for detecting and neutralising drones in restricted areas24 or 
7SHIELD, which researched the development of counter-drone solutions for ground segments of critical 
space infrastructure.  The ALFA  project  was  also successful  in  developing  a  system  to  detect  and track 
drones used for smuggling25. These research and innovation initiatives may be continued under Horizon 
Europe, validated, or supplemented by actions undertaken within the ISF-Police.  

In the future, the Commission will facilitate the more systematic exchange of relevant project outcomes 
with  relevant  stakeholders,  including  via  the  Community  for  European  Research  and  Innovation  for 
Security26. This would further strengthen specific data exchange. It would also make it possible to more 
efficiently  gather  user  requirements  and  communicate  these  requirements  to  industry  in  order  to  steer 
innovation.  Furthermore,  the  systematic  exchange  of  project  outcomes  will  help  to  make  possible  a 
structured dialogue with Member States and stakeholders to identify promising technologies, tools, and 
solutions that could be taken up by a group of Member State authorities. In that context, the Commission 
will assess with Member States27 the possibility of: (i) creating an independent research topic on counter-
drone solutions in the future work programmes of Horizon Europe; and (ii) supporting specific innovative 

22 The EU critical communication system will provide a secure, broadband-based infrastructure to ensure cross-border 
interoperability of communication systems used by law enforcement and emergency responders in the Schengen 
area.  

23  Previously,  until  end  2020,  security  research  and  innovation  were  financed  under  Horizon  2020  and  the  7th 

framework programme. 

24 https://cordis.europa.eu/project/id/740859. 
25 ALFA is also the basis for the ISF-project Courageous and its testing activities.  
26  The  Community  for  European  Research  and  Innovation  for  Security  (CERIS)  brings  together  security  research 
stakeholders,  ranging  from  policy  makers,  end-users,  academia  and  industry  to  civil  security:  https://home-
affairs.ec.europa.eu/networks/ceris-community-european-research-and-innovation-security_en 

27 In the Horizon Europe programme committee configuration ‘Civil Security for Society’. 

9 

 
 
 
 
 
 
 
 
systems via pre-commercial procurement28. This is fully in line with the capability-driven approach detailed 
in the Commission’s staff working document ‘Enhancing security through research and innovation’29. 

Strengthening  synergies  in  counter-drone  solutions  between  Europe’s  civil-security,  defence,  and  space 
industries is crucial. The aim of this should be to foster synergies in drone and counter-drone technologies 
among the three sectors30. In practice, strengthening these synergies means that defence projects can benefit 
from innovative developments in the civil domain, while civil aeronautics can benefit from developments 
in defence.  

The European Defence Fund (EDF) and its precursor programmes incentivise and support collaborative, 
cross-border research and development in the area of defence. Complementing and amplifying Member 
States’ efforts, the EDF promotes cooperation among companies and researcher of all sizes and from all 
Member States in the EU. The EDF precursor programmes have already funded counter-drone projects as 
part of defence research and development.  

The  EDF  work  programme  for  2023  contains  a  counter-drone  development  action31,  with  an  indicative 
budget  of  EUR  43  million.  The  action  aims  at  developing  hardware  or  software  modules  for  a 
comprehensive mobile solution to counter a wide range of drones, including swarms.  

The main expected outcome of the EDF’s support in the counter-drone area in 2021-2027 is a developed 
prototype  of  counter-drone  solution  leading  up  to  possible  future  joint  procurement  at  the  EU-level. 
Technological  challenges  in  the  area  of  counter-drone  systems  are  addressed  through  the  EU  Defence 
Innovation Scheme (EUDIS). Furthermore, the EUDIS includes a strand for dual-use incubators to promote 
better  collaboration  between  the  civil  and  defence  domains  and  to  spur  technological  maturation  and 
adaptation. 

Another key pillar for innovation – and specifically for applied research on how to counter threats posed 
by drones – is the work of the JRC. As part of the JRC’s Drone C-UAS project, the JRC will review active 
and passive counter-measure technologies, and how these technologies can be used to ensure the security 
of public spaces and critical infrastructure.  

To this end, and as a first step, the JRC will create a living lab to study counter-drone technologies and 
how  these  technologies  can  be  applied  in  real-world  settings.  The  lab  setup  will  cover  the  planning, 
preparation,  and  implementation  of  a  solution.  It  will  also  cover  detection,  tracking,  identification, 
neutralisation and the integration of stakeholders and processes. The scope of implementation for the living 
lab  will  include  integration  with  manned  and  unmanned  traffic-management  systems,  most  notably  U-
space32. The living lab will also study how machine learning and artificial intelligence can be integrated in 
order to improve the overall performance of a counter-drone solution.  

28 Pre-commercial procurement (PCP) is an approach to the public procurement of research and development (R&D) 
services that was outlined in the PCP Communication (C(2007) 799 final) of 14.12.2007. It is an important tool to 
stimulate innovation, as it enables the public sector to steer the development of new solutions towards its needs. 
29 Commission Staff Working Document  ‘Enhancing security through research and innovation’, SWD  (2021) 422 

final of 15.12.2021. 

30 SWD (2022) 362 of 10.11.2022. As described in the progress report on the implementation of the action plan on 

synergies between civil defence and space industries under Action 9. 

31  C(2023)  2296  Commission  Implementing  Decision  of  29.3.2023  on  the  financing  of  the  Europe  Defence  Fund 
established by Regulation (EU) No 2021/697 of the European Parliament and the Council and the adoption of the 
work programme for 2023 - Part II. 

32 Commission Implementing Regulation (EU) 2021/664 on a regulatory framework for the U-space. The term ‘U-
space’ has been adopted to describe the management of unmanned aircraft traffic to ensure the safe interaction 
with other entities using the same space in urban areas and any other location. 

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In the medium term, this JRC living lab will be developed into a counter-drone centre of excellence. 

Priority actions for making the most of research and innovation 

-  The  Commission  and  Member  States  will  decide  on  future  needs  for  new  counter-
drone  solutions  to  be  addressed  by  relevant  European  research  and  innovation 
programmes, notably Horizon Europe. 

-  The Commission and Member States will identify a list of promising counter-drone 
solutions and assess the feasibility for pre-commercial procurement of some of these 
solutions. 

-  The Commission will identify ideas, technologies, and solutions to be integrated into 

the development of defence capabilities, and will support projects that seek to 
disseminate these ideas, technologies, and solutions to civil sectors. 

-  The JRC will establish a counter-drone Centre of Excellence as further evolution of 

a living lab. 

E.  Funding support 

The Commission will continue to provide financial support to relevant counter-drone activities, primarily 
through  the  ISF  but  also  under  the  Instrument  for  Financial  Support  for  Border  Management  and  Visa 
Policy (BMVI) and the Horizon Europe programme (for research- and innovation- related actions). 

The ISF thematic facility will support: (i) the European Law Enforcement Networks; (ii) the related work 
of  the  JRC;  (iii) the  new  counter-drone  expert  group;  and  (iv)  the  creation  of  an  information  exchange 
platform. The Commission is already funding projects to pilot and validate systems to detect and locate 
drones that illegally cross the EU’s external borders. Those projects are based on results from previous EU-
funded research projects33. 

Under the ISF’s thematic facility, the Commission will open in the first half of 2024 a call for proposals 
aiming specifically at supporting the deployment of counter-drone solutions with high potential for uptake. 

Member States will be encouraged to implement this Communication and take up the results of EU- funded 
research into counter-drone solutions through their ISF programmes. 

Key actions for funding support 

-  The Commission will launch a call for proposals on counter-drone solutions under 

the ISF's thematic facility work programmes for 2026-2027. 

-  Member States will be encouraged to make full use of their ISF programmes for 
2021-2027, in order to identify and implement efficient counter drone solutions. 

33 Examples include projects funded under the BMVI  specific actions on: (i) innovation for sea/shore, and/or land 
borders; and (ii) Frontex. Some projects funded under the specific action on innovation for sea/shore, and/or land 
borders focus on piloting innovative surveillance technologies. There is also a specific action for purchasing and 
making available equipment for deployment by European border authorities to detect and locate drones that cross 
borders in connection with illegal or criminal activities. This specific action will enable Member States to procure 
two counter drone systems. As an EU added value, upon a request made by Frontex as part of the annual bilateral 
negotiations, the technical equipment purchased under the specific actions must be put at the disposal of Frontex 
for a period of up to 4 months per year, for use in its joint operations. 

11 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
F.  Exploring regulatory measures 

Although the EU has regulated the legitimate use of drones, at the EU-level there are currently no specific 
counter-drone  regulations  that  set  a  common  harmonised  framework  for  Member  State  authorities, 
operators, and manufacturers. Although the non-binding EASA guidelines addressing drone incidents at 
airports (referred to earlier in this Communication) were favourably received by the sector, their advisory 
nature and limited scope makes them insufficient to mitigate the threat posed by non-cooperative drones. 
As the need to effectively prevent the unauthorised use of drones is constantly growing, the Commission, 
in close collaboration with experts from the Member States, will further analyse the need for legislative or 
non-legislative measures in the future. To that end, the Commission will initiate a dedicated mapping study 
to establish the current regulatory landscape. This mapping study should also take into account the ICAO 
framework and developments, as well as consider that rules to counter the potential threats posed by drones 
should not unduly impede legitimate operations, including the activities of organised leisure pilots. 

Airports in the EU benefit from detailed and comprehensive security rules that also cover the threat from 
drones. To ensure that aviation authorities and airports are more resilient when faced with the risks posed 
by drones, and in line with an evidence-based approach, the Commission will in cooperation with Member 
States identify potential additional vulnerabilities in protection against non-cooperative drones in a 
security-risk assessment that may mandate regulatory changes. 

A structured dialogue with industry and drone manufacturers on security-by-design measures is needed in 
this  context  (e.g.  robust  systems  against  spoofing,  capability  limitations,  sharing  of  communication 
protocols, and updates for counter-drone databases). 

Key actions for exploring regulatory measures 

-  The Commission will initiate a mapping study to identify regulatory needs and the 

- 

potential for harmonising Member States’ laws and procedures. 
In line with an evidence-based approach, the Commission will undertake an aviation 
security-risk assessment on drones to identify potential additional vulnerabilities of 
airports, which could mandate regulatory changes.  

-  The Commission will engage in a structured dialogue with industry on the necessity 
for – and nature of – potential additional specific measures relating to the security of 
drones. 

III.  WAY FORWARD 

To  ensure  that  rapid  technological  developments  and  the  growing  number  of  drones  do  not  lead  to  an 
uncontrolled increase in threats posed by non-cooperative drones, it is necessary to step up cooperation at 
EU-level, based on the comprehensive EU counter-drone policy set out in this Communication. To this end, 
current  EU-level  activities  will  be  continued  and  supplemented  by  the  set  of  key  actions  listed  in  this 
Communication which will be implemented in the coming years.  

The  activities  outlined  in  this  Communication  will  cover  the  period  until  2030.  By  2027,  a  mid-term 
stocktaking  through  the  expert  group  will  take  place,  while  a  full  revision  of  the  EU’s  counter-drone 
programme is planned by 2030 at the latest.  

12