UAV TASK-FORCE Final Report

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oint Aviation AuthoritiesThe JointJAA/EUROCONTROLInitiative on UAVsEUROCONTROLUAV TASK-FORCEFinal ReportA CONCEPT FOR EUROPEAN REGULATIONSFOR CIVIL UNMANNED AERIAL VEHICLES(UAVs)11 May 2004

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UAV Task-Force Final ReportTABLE OF CONTENTS01234567FOREWORD/EXECUTIVE/ SUMMARY .11INTRODUCTION.331.1Background .331.2Terms of Reference.331.3Composition.331.4Objective of the Document .33BACKGROUND TO UAV SYSTEMS .442.1UAV Perspectives.442.2Civil Applications .442.3Current Regulatory Context.662.3.1Aviation Safety Principles .662.3.2International Regulatory Environment for UAV’s .772.3.3National Regulatory Environment .882.4JAA/EUROCONTROL Response .88THE PROPOSED REGULATORY APPLICABILITY.99DEFINITIONS .1010GUIDING PRINCIPLES FOR THE DEVELOPMENT OF AREGULATORY CONCEPT .12125.1Fairness .12125.2Equivalence.12125.2.1Equivalent Risk.12125.2.2Equivalent 135.4Transparency.1313OVERALL CONCEPT OF REGULATIONS .14146.1Systems Approach to Regulations .14146.2Safety Priority and Supporting Concepts.15156.3Summary of Adopted Concepts .17176.3.1Airworthiness & certification .17176.3.2Security .22226.3.3Operations, Maintenance, CUSSION TOPICS .28287.1Legal Framework for UAV Airworthiness Certification.28287.2Interpretation of UAV Airworthiness Definition.29297.3UAV System Elements to be included in Type Certification Basis .31317.4Setting the Type Certification basis.33337.5UAV System Safety Objectives and Criteria.35357.6Tailoring of existing manned requirements .38387.7Emergency Recovery .40407.8Communication Link .42427.9Autonomy .43437.10 Human Machine Interface.44447.11 Continued Airworthiness .46467.12 Noise & Emissions.47477.13 Frequency Spectrum .4949C-111 May 2004

UAV Task-Force Final Report7.14 Responsibility and Handover between control stations .50507.15 Security .51517.16 Collision Avoidance.52527.17 Equipment .54547.18 Flight Rules.56567.19 Licensing.58587.20 Operator Certification .60607.21 EUROCONTROL Safety Regulatory Requirements - ESARR .62628RECOMMENDATIONS FOR FUTURE REGULATORY WORK .67678.1Justification for Future Regulatory Work .67678.2Security .67678.3Airworthiness Recommended Actions .68688.4Operations, Maintenance and Licensing Recommended Actions .69698.5ATM Recommended Actions .70708.6Aerodromes Recommended Actions: .7070ANNEX 1:ANNEX 2:Guidelines for the Regulation of Light UAV SystemsList of AcronymsENCLOSURES:ENCLOSURE 1:APPENDIX 1-1:APPENDIX 1-2:APPENDIX 1-3:GENERAL INTRODUCTORY INFORMATIONList of UAV T-F Participants and ContributorsFuture UAV ApplicationsUAV Task-Force Terms of ReferenceENCLOSURE 2APPENDIX 2-1:APPENDIX 2-2:GENERAL, SAFETY AND SECURITYPrinciples for the Approach to Regulatory DeterminationSafetyENCLOSURE 3:AIRWORTHINESS, CONTINUED AIRWORTHINESSAND ENVIRONMENTUAV CategorisationReservedDraft Proposal to Amend EASA Regulation EC1592/2002Impact Energy Method for Establishing the Design Standardsfor UAV SystemsUAV Safety ObjectivesAPPENDIX 3-1:APPENDIX 3-2:APPENDIX 3-3:APPENDIX 3-4:APPENDIX 3-5:ENCLOSURE 4:APPENDIX 4-1APPENDIX 4-2APPENDIX 4-3OPERATIONS, MAINTENANCE AND LICENSINGIdentification of SubjectsDiscussion of SubjectsLicences and RatingsENCLOSURE 5:AIR TRAFFIC MANAGEMENT11 May 2004C-2

UAV Task-Force Final Report0Chapter 0FOREWORD/EXECUTIVE/ SUMMARYThis document represents the final report of the UAV Task-Force establishedto address a development of an concept for the regulation of civil unmannedaerial vehicles (UAVs), with respect to safety, security, airworthiness(including continued airworthiness), operational approval, maintenance andlicensing. The UAV Task Force was established as a result of a jointinitiative of the Joint Aviation Authorities (JAA) and the EuropeanOrganisation for the Safety of Air Navigation (EUROCONTROL) inSeptember 2002.Broad participation from representatives of the European aerospace industryin the work of the UAV Task-Force provided a major contribution to thedevelopment of the contents of this final report. Participation also includedrepresentation from a number of State civil aviation authorities, JAA, andEUROCONTROL. Authorities with direct interest in areas of UAVregulations, such as NATO, were kept informed of the progress of the UAVTask- Force work.Although this concept does not address military UAVs directly, it isconsidered that the information could also be of value to military certificationauthorities.The scope of the final report does not include the development of a conceptfor the regulation of civil UAVs with respect to air traffic management(ATM). The UAV Task- Force acknowledged that the responsibility for afuture development of an ATM unified concept for the operation of civilUAVs outside of reserved airspace would continue to reside withinternational ATM organisations such as ICAO and EUROCONTROL.However, implications of UAV operations for ATM were considered to theextent this pertains to airworthiness certification, and the report containssome recommendations (see 8.5) for future work on ATM provisions forUAV operations outside restricted areas.This document has been the subject of a wide external consultation processwith relevant bodies and their views/comments have been fully consideredand incorporated where possible.The UAV Task-Force plans to present its report early June 2004 to the JAACommittee (JAAC: Management Committee of the JAA). The JAAC shouldbe invited to endorse the report and agree to the recommendations it contains.The UAV Task-Force also plans to present its report to the EUROCONTROLSafety Regulation Commission (SRC) around the same period of time. TheSRC should be invited to support the report and the recommendations itcontains.When these two steps are done, it is the intention of the UAV Task-Force tosubmit its report for the consideration of: The ICAO EUR/NAT Office in support of future ICAO initiatives inthis area.111 May 2004

Chapter 0UAV Task-Force Final Report The European Aviation Safety Agency (EASA) in support of EASA'spossible future development of airworthiness regulations pertainingto civil UAVs.This document consists of a main body, two Annexes and five enclosures.The main body represents the consensus achieved by the UAV Task-Force.The Enclosure 1 sets up the scene with introductory information on theinternational and national regulatory framework for UAVs, describes thecurrent and foreseen UAV applications and provides some details on theestablishment of the UAV Task-Force.The enclosures 2-5 represent the output of the 3 Working Groups createdwithin the Task-Force (General, Safety and Security; Airworthiness &Certification; Operations, Maintenance and Licensing) andEUROCONTROL for ATM issues.The enclosures provided further information on the issues discussed and thekey points raised by each of the Working Groups. Cross-references toenclosures were introduced into the main body to assist further understandingof the issues.The main body first reminds the Terms of Reference of the Task-Force, itscomposition and the objective of the document and states the proposedregulatory applicability. Main definitions of UAV related terms used in thisdocument are provided.Guiding principles for the development of a regulatory concept, based uponfairness, equivalence, responsibility/ accountability and transparency areproposed. An overall concept of regulations is then proposed around the fivepillars of Safety and Security to be envisaged when dealing with regulationsfor UAVs: Airworthiness & Certification, Security, Operations &Maintenance & Licensing, Air Traffic management and Airports. Emphasishas been put, at least at this stage, on the use of existing manned regulationswhile recognizing the need to tailor than and/or complement themconsidering the specific character of UAV operations.A number of discussion topics that have been considered by the Task Forceand are also reviewed in this document, covering significant issues relatedairworthiness & certification, security, operations and Air Trafficmanagement. While the list of these topics may have to be completed at afurther stage, they were viewed significant attention items.For each topic, a statement of issue is provided, the discussions which tookplace at the Task-Force are summarised and recommendations are outlinedtogether with relevant institutions to which they are addressed with anindication of proposed timeframe and priority.Those recommendations are summarized in the last part of the main body ofthis document and mostly concern proposals for the relevant institution toinitiate rule-making changes or policy making process to adjust the existingmanned regulatory framework and address relevant technical issues.11 May 20042

UAV Task-Force Final Report1Chapter 1INTRODUCTION1.1BACKGROUNDThe Joint JAA/EUROCONTROL initiative on UAVs (hereinafter addressed by “UAV TaskForce” or “UAV T-F”) was established in September 2002 on the basis of a joint decision ofthe JAA and EUROCONTROL governing bodies. This decision was taken in reaction to thegrowing European UAV Industry and their recognised need for the authorities to commencework leading to European regulations for civil Unmanned Aerial Vehicles (UAV). The nonexistence of such regulations is seen as a major obstacle for a further development of theEuropean UAV applications.The report is limited to civil UAVs as JAA regulates only civil aircraft. However it isrecognised that ATM requirements can also apply to military aircraft.1.2TERMS OF REFERENCEThe Terms of Reference for the UAV Task –Force, as agreed by the JAA andEUROCONTROL governing bodies (see Appendix 1-3 to Enclosure 1 to this report), haverequested the UAV T-F to develop and deliver in the Final Report a CONCEPT for Europeanregulations for civil UAVs, its justification and recommendation for a future regulatory work.The areas covered by the agreed Terms of Reference include – Safety and SecurityAirworthiness, Continued airworthiness and EnvironmentOperations, Maintenance and LicensingAir Traffic Management1.3COMPOSITIONThe JAA (National Authorities and the Central JAA), EUROCONTROL, FAA and keyrepresentatives from the UAV Industry participated in the work of the UAV T-F. The firstthree bullets of the Terms of Reference were covered by three Working Groups while ATMwould be handled by EUROCONTROL//ICAO as a function of validated airspacerequirements. Plenary sessions were organised where the three Working Groups andEUROCONTROL reported on progress made. More details on the composition of the UAVT-F and the working methods can be found in the Enclosure 1 and its appendices.1.4OBJECTIVE OF THE DOCUMENTThe objective of this document is to articulate the results of the UAVT-F’s analysis intofuture European UAV operations, to identify impediments to free operations and to indicatewhere changes are required to the regulatory framework. This work therefore sets forth aconcept for civil UAV regulations that would allow, when implemented, the safe integrationof UAVs into the European airspace.The concept will address the safety of the people on the ground and the safety of the people inflightThis document is primarily intended to address UAV systems engaged, or intended to beengaged, in aerial work activities. The concepts outlined are considered to be the startingbasis for commercial transport operations, including the transportation of passengers.However this deserves further research.311 May 2004

Chapter 22UAV Task-Force Final ReportBACKGROUND TO UAV SYSTEMS2.1UAV PERSPECTIVESFor many decades UAVs have been widely used for military missions mainly in the area oftactical and strategic reconnaissance. More than 30 nations are developing or manufacturingmore than 250 models of UAVs. More than 40 countries operate more than 80 types ofUAVs showing a wide range of system performance concerning speed, altitude, missionduration, and payload capability. The entire spectrum of aviation companies and researchinstitutes, both small and large, are developing and operating UAVs as well as forwardingtheir related technologies.For the next years the development and operations of European UAVs – either military orcivilian - is one of the most important challenges and at the same time one of the biggestopportunities of the European Community and its industries to stay at the technological andcommercial frontier of aerospace industry.In 2000 the world market for UAV systems reached the order of one billion in terms ofannual revenues, with a continued compound annual growth rate forecast of approximately 7percent for the next years. To date approximately 90 percent of all funding for UAV systemsare a direct result of national government requirements channelled through their military anddefence program elements. With few exceptions this is a world wide trend and one which willlikely continue until national airspace issues are resolved. Therefore the rest of this decadewill be greatly influenced by this funding trend and technology developments will followmainly national requirements.2.2CIVIL APPLICATIONSAlthough the military UAV market has been steadily growing, civil UAVs applications havebeen slow to take advantage of potential applications due, at least in part, to the lack of aregulatory framework. Civil missions such as global monitoring of environment and security(GMES), for example, can only be achieved if UAVs are able to fly seamlessly amongst otherair traffic within national or international airspace. Where it has been identified that existingregulations cannot accommodate civil UAVs, the regulatory framework needs to bedeveloped to determine what technologies or procedures are essential and a demonstration atan early stage to show the safe introduction of UAV civil applications should be an objective.Where it is identified that civil UAV applications can already be accommodated withinexisting regulatory arrangements it is expected that operators would be able to identify andexploit UAV technologies, if UAVs can commercially compete with similar applicationsbased on manned aircraft.For market introduction of civil UAV services three promising categories of market entrycandidates for civil applications are found (see Fig. 2-1): Technology induced applicationsfocusing on local range applications in the area of visual inspection and earthobservations based on light UAVs (see Annex 1 for definition of light UAVs) andhighly miniaturised payloads. Future applications will be heavily driven by thetechnological improvement (miniaturisation, performance enhancement, reduction inpower consumption) of platform and payload.In this business field mainly research centres, universities, small and medium sized11 May 20044

UAV Task-Force Final ReportChapter 2enterprises will be involved. The offered services will be dedicated to the veryspecific request of the users. Platform induced applicationsbased on existing medium altitude military platforms to perform governmental andscientific missions (e.g. GMES) as well as dedicated infrastructure monitoring tasksfor pipeline and power line monitoring.In this business segment the well established military UAV manufacturer and systemintegrator will play a dominant role. Typical customers are institutional organisations(government, national research centres). Service induced applicationsto use high altitude geostationary UAVs as new infrastructure elements for futuretelecommunication system or Earth observation services to extend the capabilities ofsatellite systems.This business segment will be dominated by telecommunication or earth observationservice providers, infrastructure manufacturers and system integrators with abackground in aeronautics and space.100,000ALTITUDE / technologyinduced1001,00010,000100,000MTOW / kgFig. 2-1 Civil UAV trend

UAV Task-Force Final Report Chapter 1 3 11 May 2004 1 INTRODUCTION 1.1 BACKGROUND The Joint JAA/EUROCONTROL initiative on UAVs (hereinafter addressed by “UAV Task-Force” or “UAV T-F”) was established in September 2002 on the basis of a joint decision of the JAA and EUROCONTROL governing bodies. This decision was taken in reaction to the growing European UAV Industry and their .

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