Space

5.1 Establish a new approach to the governance of space activities

Changed governance

Objectives must be ambitious and organisational arrangements must be consistent with these objectives.

The European Space Policy outlined in the preceding pages carries the promise of substantial economic, social and environmental benefits for the Union and its citizens. The policy will also bring new qualities to the Unions external actions, especially in defence, security, environment and development. However, successful delivery of these benefits is not guaranteed unless the roles and responsibilities of the relevant actors are adapted.

In turn, successful implementation requires a system of governance in which the roles of the players are clearly understood, the tools for careful coordination properly provided and processes of accountability put in place. Duplication of work and structures must obviously be avoided. This system should command the consent and support of all stakeholders, respect their mission objectives and complementarity and conform to the principle of subsidiarity.

The coming into force of the new Constitutional Treaty will open up a long term perspective in which the Union becomes the natural point of reference for a European space policy driven by demand, a view strongly supported by the European Parliament in a recent report.[1]

As a key component of the European space policy, ESA must eventually acquire legitimacy in the EU framework. Movement in this direction should be conducted in a pragmatic and evolutionary way and be subject to regular review so as to ensure that stakeholders can adapt their structures and procedures progressively.

A two-phased approach

This White Paper has set down the measures needed to implement the European Space Policy. This would be applied in two phases:

(1) Phase one (2004-2007) will in particular consist of implementing the topics covered by the recently agreed Framework Agreement between European Community and ESA. This will enable the two organisations to set common objectives and to mount joint initiatives, whilst retaining their respective rules. ESA should be the implementing agency of the Union for space matters.

(2) Phase two (2007-onwards) will begin with the coming into force of the proposed European Constitutional Treaty, establishing space as a shared competence between the Union and the Member States, if the draft Treaty of the Convention on the future of Europe is followed. ESA should then be positioned within the EU framework and its Convention modified accordingly.

A first review of these new provisions and their effects should be planned a few years after the entry into force of the new Treaty.

European Space Programme

The European Space Policy will be implemented within a multi-annual European Space Programme. The Programme, acting like a strategic agenda for Europe, will be the platform for determining priorities, setting objectives, allocating roles and responsibilities and framing annual budgets. Its scope must embrace R&D, infrastructure development, services and technology. This programme should be articulated as a response in the form of space infrastructures to demands and needs expressed by the citizens through the policies of the European Union. As a living document, it should be reviewed and updated every five years.

Such a Programme will provide the stability of outlook that Europes various actors need. It will have to be prepared by the EU, benefiting from its collaboration with ESA, through an interactive process driven by demand, involving the consultation of space stakeholders.

Key public actors include national space agencies, national research centres, European organisations such as EUMETSAT, ESO, etc. The private sector will be a key interlocutor since so much of the Programmes implementation will depend on its efforts. A first outline of the European Space Programme is attached as annex 1.

Design and implementation of the Programme should lead to greater coherence and stability, and a substantial improvement in the match between ambitions and public resources, thus ensuring better value for tax payers money and providing a strong rationale for new investments. It should also provide the framework to encourage common initiatives involving a collective effort by all Member States, or of a smaller group. Its impact should be regularly assessed.

Stakeholders responsibilities

With the one articulating demand for space-based solutions and the other acting as supplier, the European Union should have the lead responsibility for federating societys needs for space-based services relevant to EU policies and for co-ordinating their delivery, while the European Space Agency should take the lead in elaborating, proposing and developing the required solutions.

The European Union should also ensure that ethical aspects are taken into account when implementing the European space policy and elaborating the European space programme. It should also elaborate proposals and represent Europes interests when addressing space laws issues in international fora.

Member States and their relevant space/research agencies should be associated with the revision and ultimate adoption of the European Space Programme. National space agencies and research organisations will be largely responsible for implementing the Programmes lines of action relevant to them.

Fully in line with the European Research Area objectives, the establishment of a network of specialised technical centres working together would represent a cost efficient way to associate the various national actors with the implementation of the European Space Programme. Such a network should not only encourage further integration and improved co-operation but also increased specialisation and a reduction of overall costs and overlapping activities. This will call for a restructuring of the European public technical infrastructure based on pilot networks currently involving ESA and national capabilities in the implementation of on-going programmes.

Recommended Actions

• EU to establish the European Space Policy as a horizontal policy (serving all other Union policies); the responsibility for space could be a clearly attributed competence within the European Commission;
• The Commission to elaborate in collaboration with ESA the first draft of the European Space Programme by the end of 2004. It should then report regularly to Council and Parliament on key issues including the situation of the European space industry, the execution of the Action Plan and the general state of the space sector;
• The Commission to make use of ESA proposals for a network of technical centres combining available national and ESA capacities, including the roles of the partners and a timetable for their creation;
• The Commission to review the institutional setting for space policy after some experience with the present EU space policy and in light of the new Constitutional Treaty.

[1] Report A5/2002/294