Annexes to COM(2000)597 - Europe and Space: Turning to a new chapter - Main contents
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This page contains a limited version of this dossier in the EU Monitor.
| dossier | COM(2000)597 - Europe and Space: Turning to a new chapter. |
|---|---|
| document | COM(2000)597  |
| date | September 27, 2000 |
At the Community level, the Satellite Action Plan [10] implemented in close co-operation with satellite communication operators provides a framework for these and other questions.
[10] EU Action Plan:Satellite communications in the Information Society, COM(97)91 final, 5 March 1997
4.3.2. GALILEO
Building on experience gained within EGNOS [11] for the development of an augmentation system for GPS and GLONASS, Europe has recognised the importance of having a global navigation satellite system conceived as a civil system, and has launched the definition phase of GALILEO.
[11] EGNOS: the European Geostationary Navigation Overlay Service
GALILEO plays a crucial role in the creation of an integrated European system, securing adequate performance and economic value in various areas, including transport, timing, energy and telecommunications. It will be used in all modes of transportation for navigation, traffic- and fleet-management, tracking, surveillance, emergency and infomobility applications. The enhanced performance of GALILEO compared with current systems, in terms of its superior technical and operational parameters, is a major asset. It will provide Europe with sovereignty in safety-critical applications and telematic infrastructure.
GALILEO brings together the European political determination and financial commitment. It offers an opportunity to mobilise the private sector through Public Private Partnerships, combining the policy and regulatory roles of the Commission and the technical and programmatic skills of ESA with the commitment of the space industry and service providers. The challenge now is to substantiate the economic and strategic case in an international context.
A crucial element in the successful completion of the definition phase shall require the agreement on the setting up of a single public-sector entity that can assume organisational responsabilities. In addition, organisational and institutional framework of GALILEO Public Private Partnerships will be set up so as to allow the roles of the public sector and the private sector to evolve over time to protect their respective interests. This framework is expected to associate the public sector, private investors and users, in order to guarantee an economically viable infrastructure and at the same time deliver a protected service to the consumer.
Special attention is paid to international co-operation, in particular to the potential of collaboration with the Russian Federation, which can contribute frequency sharing and extensive expertise in this domain. Similarly, the USA has much to offer in terms of co-operation on frequency sharing, experience, standardisation, but also stimulating competition. Various other countries have expressed an interest in participating in GALILEO, an open system in a European framework.
GALILEO, as a civil infrastructure, does raise security questions associated with making a global navigation satellite system available to the world. These concerns will be addressed during the definition and validation phase.
4.3.3. Monitoring for Environment and Security
In the past decade Europe has shown leadership in the fields of environment and sustainable development. With the approach of the 10th anniversary of the Rio Conference, the Community is now committed [12] to establishing a strategy integrating the concept of sustainable development across all areas of EU policy. At the same time, the growing importance of an EU Common Foreign and Security Policy has led to a focus on the interplay between the human dimension of environmental policy and the broad issues of European security, both in a geopolitical context and in terms of the wellbeing of individual citizens.
[12] European Council conclusion environment and sustainable development. Helsinki European Council, 10-11 December 1999.
"Environment and Security" embraces a broad framework of policy concerns and a wide spectrum of environmental effects, both at European and global level, calling for co-operation within an integrated and coherent response framework. The additional responsibilities of a larger Europe in the global context will create a need to develop an independent capacity supporting regional environmental and security policies. For this purpose, Europe can build on the experience gained in various settings, in order to devise a structured approach to the collection, analysis and dissemination of data. Another question is the establishment of a policy for coherent information pooling and management.
Space-based information provides a powerful platform to develop monitoring of both environment and security concerns and to support analysis of individual issues and their inter- relationships. A number of competing and complementary space-systems initiatives, which could be configured to provide monitoring and information services, are in the definition phase.
A Global Monitoring for Environment and Security (GMES) initiative should provide the common link between Europe's political requirements on the one hand, and the advanced technical and operational capabilities provided by observation satellites on the other. The definition of European environmental and security information requirements within the broad scope of GMES could create a strong enough political momentum to streamline various- ESA, national, bi-lateral - satellite initiatives and projects in Europe. At the same time it will be necessary to identify gaps and to mobilise resources for new initiatives related to the exploitation of space-based information and establish a move towards effective co-ordination and an overall coherent plan of action.
Preparatory activities within GMES have brought together representatives of the Commission, ESA, national space agencies, Eumetsat and industry with the aim to establish a rationale for acquiring independent access to space-based information. This can only come about through co-operation between all European actors, addressing:
* political aspects driven by environment, security and research policies, but also including input from EU policies for enlargement, external relations, humanitarian aid and development of third countries;
* technical aspects - which will involve seeking a common orientation on issues related to the identification of information products on the environment, collection of space-based data, information processing and distribution, and ensuring the appropriate satellite infrastructure;
* institutional/organisational aspects to examine the possibilities of task sharing between the players in Europe and in the international arena, including economic aspects regarding the opportunities offered by a public/private partnership.
Three concrete themes for initiating the practical aspects of the development of such an initiative have been identified:
* global change,
* environmental stress, and
* natural and man-made disasters.
The framework embraces both the information needs of horizontal thematic concerns (e.g. water), and policy concerns (e.g. security in terms of the general welfare of the European citizens.
The complexity of the issue calls for a concrete initiative, building on the preparatory activities, to bring all actors together to ensure that Europe develops a coherent approach to space-based observation. In the initial phase this joint effort should establish a portfolio of information products and a comprehensive overview of space system initiatives. It should also examine the question of a common mechanism for data and information pooling.
These actions should benefit from the full support of existing programmatic tools of the Commission and ESA and include the active participation of Member States. They should rapidly lead to the formulation of concrete proposals as part of a European action plan.
4.3.4. Common European Security and Defence Policy aspects
The European Council in Helsinki constitutes a major step in the development of the new Common European Security and Defence Policy (CESDP). The formation of a rapid reaction force under the EU's political responsibility has led to the creation of new decision-making structures and calls for an optimisation of Europe's intelligence assets.
To meet the CESDP objectives, the EU should be able to call on a range of military (initially established by the WEU) and civil (established by the EU) means for intelligence gathering and crisis management. The exploitation of dual-use possibilities and the consolidation of Member State plans for communications, intelligence gathering and observation satellites could provide significant benefits. By establishing a focused and policy-driven framework for co-ordinating relevant research and development efforts, GMES can contribute to providing Europe with coherent global observation and monitoring capabilities.
With the forthcoming integration of the WEU, its Satellite Centre is due to be transferred to the European Union. It will be a true asset provided the Centre maintains the dual nature of its tasks and its capacity for civilian services. The Centre may also be called upon to perform new tasks and to participate in genuine intelligence work for the purpose of applying the space-related aspects of the CESDP on the basis of arrangements, which remain to be defined.
5. Implementation
5.1. Working together
Over the years the European Space Agency, governed by its Convention, has progressively developed its relationship with the European Commission. Now working with the Commission on a European Strategy for Space, it is becoming Europe's Space Agency in a wider sense, with a socio-economic dimension that will require it to take up additional tasks.
It is imperative, therefore, that the Commission and ESA develop an appropriate operational arrangement for working together on the implementation of this strategy. Indeed, there is a need for formal links between the Union and ESA, which would allow a straightforward practical implementation of common activities. Although ad-hoc solutions (Tri-partite Agreement [13] and the joint GALILEO Programme Office [14]) allow the pursuit of common projects, a more sustainable path should be established for implementing a common European strategy.
[13] A formal agreement based on former article 228 of the EC Treaty was concluded 18.6.1998 between the European Community, ESA and EUROCONTROL for the development of the European contribution to a global navigation satellite system (GNSS) (Council decision of 18.6.1998, OJ L 194 of 10.7.98, p. 15). This arrangement made possible the juxtaposition of respective contributions in view of having a single European programme
[14] The GPO represent a temporary structure aiming at consolidating results of respective industrial activities required for the definition of Galileo. It was jointly established on the 4th of May 2000 by the Commission and the Executive of ESA
Today, the European Strategy for Space features two projects that differ from traditional space projects: the global navigation satellite system GALILEO and an information collection and processing infrastructure for Global Monitoring for Environment and Security. While it is important to preserve and adapt ESA's current flexibility and know-how in space activities, the implementation of these projects requires it to assume further responsibilities.
These must embrace the possibility to deal with a European initiative financed from multiple-sources and executed in different frameworks and institutional settings. The pursuit of common objectives in these projects will obviously require the establishment of a clear operational framework to allow ESA to act, in addition to its activities as a space agency for its Member States, as the implementing agency for the development and procurement of the space segment and ground segments associated with such initiatives.The Commission and ESA are ready to enter a new operational relationship to work together under their respective competencies for the implementation of this strategy. Therefore it is envisaged that the Commission and the ESA Executive continue to develop the strategy for space jointly, monitor its implementation and issue a joint annual report on space.
For this purpose the Commission and the ESA Executive will set up a joint task force. Amongst others the task force will stimulate the reflection on a possible unified setting for Member States to review the strategy and its implementation on a regular basis, in order to propose permanent arrangements before the end of next year. Furthermore, it will elaborate proposals for framework arrangements for the management of joint projects and outline a coherent approach with respect to candidate countries.
At the technical level the research and technical centres of ESA and of national space agencies play a key role in implementing the strategy. These centres have contributed to the European space successes and have experience and know-how that will enable the use of European resources to be optimised. This will be imperative in establishing ways of working together and co-ordinating and distributing the work involved in space programmes.
The development of the new role for ESA will benefit from the establishment of closer relations between the space agencies in their capacity to elaborate and implement space programmes. This new relationship is under discussion between ESA and the national space agencies.
The ESA Council's decision to work towards a "Network of Technical Centres" to enhance the effectiveness of the space research centres in Europe is a significant step. The progressive approach is illustrated by the start-up in 2000, of two pilot networks of centres (for flight operations and for project reviews). The objective is to have all functions of the technical centres integrated into relevant networks by 2003 at the latest.
The right balance of activities and responsibilities between the different centres will permit fruitful and dynamic exchanges of know-how and optimised use of European resources, equipment and facilities. Pursuance of this approach is of particular importance for future developments of GALILEO, GMES. In the context of its initiative "Towards a European Research Area" the Commission can, where appropriate, play an active role and assist with the creation and the implementation of networks for projects and initiatives adopted in the EU framework.
5.2. Industrial aspects
As a strategic asset for Europe, the space industry requires a political approach. Through the creation of large space companies, European industry is consolidating to face the challenge of the US industrial giants in this sector, confirming the need to unify Europe's political approach to space.
To accompany the evolution from the build-up of industrial capability into its consolidation, which is necessary to succeed in global competition, it will be important to foster a sustained dialogue between policy makers and industry building upon existing successful fora.
This dialogue should increase awareness of industry's priorities and preoccupations while helping to ensure a proper balance between the respective interests of system integrators, operators, larger suppliers, SMEs (small and medium-sized enterprises) and downstream added-value industry. A wide range of policies, including competition rules, are of direct relevance in this context.
SMEs require special attention, as they play a key role in fostering innovation. Their low-cost structures and market-oriented behaviour is necessary to capitalise quickly on market opportunities and to compete effectively. They could benefit from a co-ordinated action between the ESA technology transfer programmes and the Community programmes for innovation.
In view of the multiple-source financing, the principles of procurement will have to be outlined to ensure that the rules of the sources are respected and that the overall procedures are consistent and coherent.
Public Private Partnerships as part of an industrial approach
The enhanced opportunities to recover investments in space give rise to a growing demand for greater private investment in space-related projects, mainly during their deployment and operational phases.
In this respect, the PPP provides one model that can help in committing the public sector as well as the complete industrial chain to an operational project. GALILEO is Europe's pioneering example, from which similar constructions may be developed for information systems and services based on observation satellites in the context of GMES.
The arrangements for Public Private Partnerships in projects for the deployment of large infrastructures based on satellite applications go well beyond financial commitments. Indeed, the partnership concerns the establishment of both the economic and the political bases for the projects. A commitment on the public side might include the adaptation of the regulatory environment, such that it allows investors and industrial partners to facilitate the generation of return on their investments (e.g. signal encryption required to have a robust/guaranteed signal shall justify a charging mechanism for the commercial use of the system).
5.3. International aspects
Space activities with their global dimension develop in a context with a wealth of international issues, such as:
* co-operative scientific space missions,
* aspects of international trade ("fair competition") and market access through the regulatory environment (WTO, export control, licensing, allocations of frequencies and orbital slots within the ITU)
* co-ordination of a European position with respect to the United Nations.
Europe has to show coherence vis à vis third countries. The European Union provides a political framework for co-operative activities, notably for strategic activities like GALILEO and eventually GMES. It is already effective in various other areas of European activity, such as the harmonisation of telecommunications.
The association of Canada to ESA, the EU-Russia Dialogue on Space [15]and the longstanding co-operation with the USA in space science and the International Space Station are specific examples of special relations with third countries that need to be reflected in determining the most efficient way to embrace space in the EU policies for international co-operation.
[15] Under article 67 of the Partnership and Co-operation Agreement with EU support of space R&D in Russia via the ISTC International Science and Technology Center, established by treaty signed 27.11.92 by EU, J, RF, US, see also Council Regulation (CEE) 3955/92 (OJ L 409, 31.12.92), and Euratom Regulation CEE-2053/93 (OJ L 187/11 29.07.93).
FINANCIAL STATEMENT
1. Title of operation
Communication from the Commission: "Europe and Space: turning to a new chapter".
2. Budget heading(s) involved
B6-1, B6-2 JRC specific RTD Programme (staff and specific EC credits).
3. Legal basis
Council Decision 1999/174/CE of 25.01.1999 (JRC Specific RDT Programme).
4. Description of operation
4.1 General objective
The Communication proposes an outline of a strategy for space built around three objectives:
1.- Strengthening the foundation for space activities preserving independent and affordable access to space, and ensuring a broad technology base.
2.- Enhancing scientific knowledge for a better understanding of our planet and its atmosphere, the solar system and the Universe.
3.- Reaping the benefits for markets and society through a demand-driven exploitation of the space capabilities.
The national and European space agencies successfully pursue the first two objectives. The new element in this strategy is the third objective, which introduces for the first time the EU dimension in space, with EU policies as driving forces.
4.2 Period covered and arrangements for renewal
This communication envisages setting up a joint task force with ESA. This Task force should deliver its output before December 2001.
5. Classification of expenditure or revenue
5.1 Compulsory/Non-compulsory expenditure
5.2 Differentiated/Non-differentiated appropriations
5.3 Type of revenue involved
6. Type of expenditure or revenue
Credits destinés à la couverture des dépenses de personnel relatives aux agents prévus pour l'exécution des activités du CCR.
7. Financial impact
7.1 Method of calculating total cost of operation (relation between individual and total costs)
The task force will use the existing staff resources of the JRC Space co-ordination Unit (1A, 1B, 1C and 3 END) and will not require any additional staff. The tasks of the Unit are very similar to the one proposed and are only widening the scope of its activities. ESA will cover participation by its own resources.
7.2 Itemised breakdown of cost
Commitment appropriations EUR million (at current prices)
>TABLE POSITION>
The annual breakdown of financing is provisional, and will depend on the evolution of the Task Force. The work should begin end of December.
8. Fraud prevention measures
The fraud prevention measures contained in each of the instruments that are proposed to finance the different operations will apply. These include inspections, reporting, monitoring and evaluation.
9. Elements of cost-effectiveness analysis
9.1 Specific and quantified objectives; target population
The Commission envisages taking an active role in the implementation of the strategy by:
* Establishing the right political and regulatory conditions for space activities, in line with and in support of Community policies;
* Acting as an animator to catalyze joint research and development efforts of all actors in line with the objectives of a European Research Area;
* Bringing together all actors and competencies around common political objectives in projects of a European-wide interest. This role is articulated concretely in initiatives with a Community dimension such as GALILEO and eventually a capacity for Global Monitoring for Environment and Security.
The Commission is ready to enter a new operational relationship with ESA to work together under their respective competencies for the implementation of this strategy. Therefore it is envisaged that Commission and the ESA Executive continue to jointly develop the strategy for space and issue a joint annual report on space.
For this purpose the Commission and the ESA Executive will set up a joint task force. The task force will also, among other tasks, reflect on a possible unified setting for Member States to review the strategy and its implementation on a regular basis, in order to propose permanent arrangements before the end of next year. Furthermore, it will elaborate proposals for framework arrangements for the management of joint projects and outline a coherent approach with respect to candidate countries.
9.2 Grounds for the operation
In 1999, European Ministers called on the European Commission and the Executive of the European Space Agency to elaborate a coherent European Strategy for Space. The European Parliament welcomed this initiative, emphasizing the importance of introducing for the first time a Community dimension in Europe's political approach to space.
The EU Council and the ESA Council at Ministerial level thereby provided a basis for a joint consultation of all interested parties concerned and enabled the preparation of a comprehensive document on a strategy for space that can be subscribed to by European states, irrespective of whether they are member of ESA or part of the Union.
Parts of our society have become critically dependent on the use of satellites and space-based technologies. An autonomous and competitive capability to develop and manage space-based infrastructures and to collect and use the information deriving from these systems is an increasingly important asset for an enlarging and further integrating Union with a greater political weight on the global scene.
Space-based information is going to be a significant element for success in the knowledge economy of tomorrow. In the public sector, at the level of the Union, it is likely to play an increasing role in the implementation of a wide range of EU policies such as for environment, transport, telecommunications, culture, research, agriculture, fishery, regional development and international relations.
Through the emergence of new markets for satellites and notably for downstream services and user equipment there are also enhanced possibilities to generate revenues. The development of these markets and the position of the European industry in them depend both on the regulatory environment and the availability of the appropriate space infrastructure. In the face of global competition, industry would benefit from the political and economic weight of the Union in the development and the regulation of these markets.
Space presents a security dimension, which has thus far only been dealt with, at European level, in the context of the WEU. The forthcoming integration of the WEU into the EU and the new steps taken at the European Summit in Helsinki towards the development of a Common European Security and Defence Policy (CESDP) are prompting the European Union to take space capabilities into account, for instance in decision-making for the planning and monitoring of the Petersberg Tasks (conflict prevention and crisis management).
9.3 Monitoring and evaluation of the operation
The operation will be monitored and evaluated on the basis of the following criteria:
- annual report on the progress in the implementation of the strategy with ESA
- proposal for permanent arrangement for a unified setting for Member States to review the strategy and its implementation on a regular basis
The organisational structure put forward is designed to ensure the cost-effective management of the project including effective monitoring and evaluation.
Performance indicators selected
* output indicators (measurement of resources employed)
* impact indicators (measurement of performance against objectives)
- Details and frequency of planned evaluations
- Assessment of the results obtained (where the operation is to be continued or renewed).
10. Administrative expenditure (Section III, Part A of the budget)
Not applicable. There will be no expenses on Part A of the Budget.