16 European space policy
(28598)
9052/07
COM(07) 212
+ ADDS 1-3
| (a) Commission Communication: European space policy
(b) Commission Staff Working Document: European space programme — preliminary elements
|
| Legal base | — |
| Document originated | 26 April 2007
|
| Deposited in Parliament | 2 May 2007
|
| Department | Trade and Industry
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| Basis of consideration | EM of 10 May 2007
|
| Previous Committee Report | None, but see footnotes 42-45
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| To be discussed in Council | 21-22 May 2007
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| Committee's assessment | Politically important
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| Committee's decision | Cleared
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Background
16.1 Since the beginning of the decade, we and our predecessors
have reported on the evolution of a European space policy, most
notably a Council Decision,[42]
which led to the signing of a Framework Agreement between the
Community and the European Space Agency, and a Commission White
Paper,[43] setting out
an action plan for implementing the policy. These documents were
followed in May 2005 by a further Commission Communication[44]
which suggested what the policy's preliminary elements might be.
In commenting on these various documents, we and our predecessors
have noted that the UK is a strong supporter of a common European
space policy, but that it has stressed the importance of a user-focused
approach, and expressed scepticism about the value of European
involvement in launchers, space science (including the International
Space Station) and future human exploration of space. It has also
voiced particular concern that the Commission may be seeking in
this area to extend its competence to include the European Security
and Defence Policy (ESDP) which remains a matter for Governments.
The current document
16.2 The current document comprises a further Communication from
the Commission, which seeks to develop the various elements of
a European space policy, and this is accompanied by a Commission
Staff Working Document setting out the preliminary elements of
a European space programme.
16.3 The Communication reiterates the need for Europe to have
a space policy in order to enable it to exert global leadership
in areas in which it has interests and values, and it suggests
that the policy's "strategic mission" should seek to
develop space applications serving public policy objectives in
such areas as the environment, development and global climate
change; that it should meet European's security and defence needs;
that it should ensure a strong and competitive space industry
which fosters innovation, growth and the development and delivery
of high-quality cost-effective services; that it should contribute
to the knowledge-based society; and that it should secure unrestricted
access to new and critical technologies in order to ensure independent
European space applications. It adds that, in order to achieve
these aims, the Community, the European Space Agency and their
Member States need to improve the efficiency and effectiveness
of their activities by taking significant new steps in establishing
a European space programme and the coordination of national and
European level activities, with a user-led focus; by increased
synergy between defence and civil space programmes; and by developing
a joint international relations strategy in space.
16.4 The Communication then looks in more detail at the following
four areas:
Applications
Satellite navigation: It notes that Europe is committed
to establishing a sustainable global civil navigation satellite
system under the control of the Community, and that it is essential
that GALILEO is deployed without further delay.
Earth observation: It observes that autonomous access to
information relating to environment, climate change and security
is of strategic importance, and that Global Monitoring for Environment
and Security (GMES) will improve Europe's capacity in these two
areas. It also points out that the Commission has set out a strategy[45]
for delivering GMES, and that, for this to become fully operational,
the Community and Member States will have to establish appropriate
funding arrangements, policies, operational infrastructures and
management arrangements.
Satellite communication: It notes that satellite communications,
driven by private sector investment (most notably from the broadcast
and telecommunications sector), represent 40% of the current revenues
of the European space sector, and are an integral part of information
and communication technologies, such as the modernisation of the
air traffic management in Europe. It says that Community policies
will facilitate the introduction of innovative services, but adds
that the industry will need to keep pace with global competitors,
and that the Community will invest in advancing developments to
achieve inter-operability between terrestrial and satellite-based
networking services.
Security and defence: It notes Europe faces constantly
evolving threats, which are more diverse, less visible and less
predictable, and that the approach to crisis management has emphasized
the synergy between civilian and military sectors, with many civilian
programmes having a multiple-use capacity (and planned systems
such as GALILEO and GMES also having possible military uses).
It also says that there is an increasing need to protect space-based
capabilities from disruption, and that Europe will substantially
improve coordination between its defence and civilian programmes,
whilst retaining primary end-user responsibility for funding.
Foundations
Science and technology: The Communication highlights the
need for continued strong investment if Europe is to maintain
leadership in space-based science, and says that it will be ambitious
in terms of innovation, identifying critical technologies and
guaranteeing their funding. It also says that the maintenance
and development of know-how across the European space industry
is essential, but that there has been a severe reduction in the
interest among young people in science, engineering and technology
careers, which it is essential to address.
International Space Station and exploration of the solar system:
The Commission suggests that international exploration has a significant
political appeal in a vision of European identity, and that human
space flight and exploration are emblematic aspects of space.
It says that Europe needs to achieve optimum utilisation of the
International Space Station, and to prepare for a visible, affordable
and robust exploration programme, involving the development of
innovative technologies and the robotic exploration of Mars.
Access to space: It says that independent and cost-effective
access to space needs to remain a strategic goal, and that this
requires stable political support for a sustained European launcher
programme, with Europe taking advantage in a coherent way of the
launcher assets under its control.
A competitive European space industry
The Communication says that this is of strategic importance, and
that it is essential that those involved with European public
policy should define clear objectives and invest the necessary
public funds,[46] so
as to create a critical mass stimulating further public and private
investment. It adds that there is also a need for a suitable regulatory
framework and for policies covering public procurement and research
and development.
Governance
Institutional framework: The Communication says that a
clear framework to ensure efficient policy making and programme
management is essential, and that the Framework Agreement between
the Community and the European Space Agency provides a solid base
for coordination between inter-governmental and Community actions.
It adds that, as space will increasingly gain a Community dimension,
the goal of closer and more efficient cooperation remains, particularly
in developing space systems and sustaining associated services
responding to relevant Community sectoral policies.
Coordinated European space programme: It says that this
will become a "common, inclusive and flexible programmatic
basis for the implementation of all space-related activities".
It adds that Europe needs consistently to achieve maximum complementarity
and transparency among all space programmes, and that Member States
should continue to orient their national programmes towards shared
European objectives, with users being a driving force in this.
International relations: It says that Europe needs to remain
an "indispensable" international partner providing first-class
contribution to global initiatives and exerting leadership in
selected areas. It adds that the Community will take the lead
in the overall representation of application for its policies
(in particular GALILEO and GMES), whilst the ESA will take the
lead on overall representation of Europe in the areas of science,
launchers, technology and human space flight.
16.5 The accompanying document was drawn up by the Commission
and the ESA in consultation with the Member States, and details
various activities intended to provide a basis for Europe's space
activities, and to increase transparency, reduce unnecessary duplication
and enhance complementarity among Europe's space-related programmes.
The Government's view
16.6 In his Explanatory Memorandum of 10 May 2007, the Minister
for Science and Innovation at the Department of Trade and Industry
(Mr Malcolm Wicks) says that Europe cannot afford to lose out
on securing the potential economic and strategic benefits of space
for its citizens, and that the European space policy should help
it in its efforts to preserve and improve its global competitive
position. He notes that, whilst the ESA has until recently been
the main European institution spearheading space activity, the
Community is now much more active and wishes to lead on overall
policy because of the potential benefits to its wider aims. He
adds that the Government sees potential benefit in the marriage
of Community strength in policy-making with the technological
expertise possessed by the ESA and Member States, and is supportive
of the formulation of an overall European space strategy aiming
at closer coordination, which he suggests will — together
with user-driven exploitation of satellite technology, and cooperation
between the public and private sectors — help companies
to seize market opportunities.
16.7 However, the Minister does draw attention to the Commission's
suggestion that GALILEO and GMES may have military uses, stressing
that the UK has repeatedly made clear to both the Commission and
the ESA its concerns at this statement (which might allow an unacceptable
interpretation of what the military uses of these two systems
might be). He adds that the Communication is in this respect clearly
not consistent with the agreed policy that GALILEO is a civil
system, and that the UK is seeking to ensure that the response
of the Space Council to the Communication makes clear that any
change in the use of these two systems would need to be agreed
in the appropriate (Pillar II) fora.
Conclusion
16.8 This document contains no legislative proposals, and is
essentially a further step in the process of developing a European
space policy and European space programme. To that extent, it
covers similar ground to the earlier documents which have been
considered, and — like them — has the broad support
of the Government, subject to its continuing concerns about the
blurring of civilian and military applications and in the latter
case the prospect of the Commission seeking to extend its competence.
Having said that, the earlier White Paper was debated in European
Standing Committee, and we do not therefore believe that there
is any need for the current document to be considered further.
We are accordingly clearing it.
42 (24945) 12858/03: see HC 63-xxxv (2002-03), para
13 (29 October 2003). Back
43
(25038) 14886/03: see HC 42-ii (2003-04), para 1 (9 December 2003).
Stg Ctte Deb, European Standing Committee C (11 February
2004). Back
44
(26592) 9032/05: see HC 34-i (2005-06) para 22 (4 July 2005),
HC 34-vii (2005-06), para 7 (26 October 2005) and HC 34-xii (2005-06),
para 13 (30 November 2005). Back
45
(27016) 14443/05: see HC 34-xi (2005-06) para 12 (23 November
2005). Back
46
The Communication notes that the Community will dedicate over
€2.8 billion to space applications and activities over the
period 2007-13, and that Member States invest a little under €3
billion annually through the European Space Agency and a similar
amount in national programmes. Back
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