This blog post continues to look at legislation, but homes in on drones. Based upon the work carried out by Noosware and partners presented in Deliverable 1.5 Drone Standards, Regulations and Risks, it provides an overview of the European Union’s (EU) legislative and standardization framework for uncrewed aerial systems. (UAS).
In recent years, Europe has witnessed a wave of innovations transforming industries, from office collaboration to logistics and public services. Technologies like artificial intelligence, autonomous mobility, drones, satellites, and the Internet of Things have been key drivers of this transformation. However, as these technologies advance globally and reach the markets locally, the need for modern governance structures grows equally strong. The governance model, together with the institutional framework, delineates the regulatory environment for the civilian drone services in Europe. Regulating these operations requires a balance between safety, efficiency, and innovation, achieved through laws, standards, certifications, and operational authorizations.
The Foundation of EU Drone Regulation
Since 31 December 2020, a unified EU drone regulation has been in force, harmonising previously fragmented national laws. It is built upon the work of the Joint Authorities for Rulemaking on Unmanned Systems (JARUS), which guides national aviation authorities worldwide. The EU regulation consists of two main parts:
- Implementing Regulation (EU) 2019/947 – Governing the operational rules and procedures for UAS.
- Delegated Regulation (EU) 2019/945 – Defining product requirements for drone manufacturers.
Together, these form a comprehensive framework for all UAS operations within EU airspace.
The Three Operational Categories
Under EU rules, drone operations are classified into three main categories: Open, Specific, and Certified.
The Open Category covers low-risk operations and allows flights within defined limits without prior authorization. Operators are required to use drones with proper Class Identification Labels (CILs), which enable operations near populated areas or uninvolved people.
The Specific Category applies to higher-risk operations, such as those involving heavier drones, urban flights, or beyond visual line of sight (BVLOS) missions. This category relies on a risk-based approach supported by tools such as Standard Scenarios (STS) and Pre-Defined Risk Assessments (PDRA). Operators can declare operations under standard scenarios, STS-01 and STS-02, without needing additional authorization.
The Certified Category covers the most complex and high-risk operations, including those involving large drones or passenger transport.
National Implementation Examples
France has been a pioneer in developing its own national drone laws since 2014. It categorises UAS operations into recreational, professional, and experimental uses. France offers an online training platform and examinations for Open Category pilots, while Specific Category operators may request authorization through PDRA or perform a Safety Risk Assessment (SORA). Still the French legislation takes precedence over the EU regulations.
Germany divides regulatory responsibilities between federal and state authorities. The Federal Aviation Authority manages nationwide training and certification, while state authorities oversee Specific Category operations. Coordination challenges persist due to the complexity of jurisdictional divisions.
The U-Space Regulatory Package
In April 2021, the EU introduced the U-space package, a major step towards integrating drones safely into shared airspace alongside manned aircraft. This framework enables high levels of automation and digitalization. Member states are required to designate U-space airspaces, within which several mandatory digital services must operate:
- Network Identification Service – Provides operator and drone identification in real time.
- Geo-awareness Service – Informs about airspace restrictions and operational conditions.
- Flight Authorisation Service – Ensures deconfliction between drones and other airspace users.
- Traffic Information Service – Alerts operators about nearby aircraft.
Optional services such as weather and compliance monitoring may also be introduced.
To implement these systems, two new types of service providers have been introduced:
- Common Information Service Provider (CISP)
- U-space Service Provider (USSP)
Standardisation and Industry Alignment
Beyond regulation, Europe places great emphasis on the role of standards to ensure interoperability, safety, and international compatibility.
The European UAS Standards Coordination Group (EUSCG) was established to coordinate all standardisation efforts across Europe. Chaired by the European Union Aviation Safety Agency (EASA) and supported by EUROCAE, the group maintains the European UAS Standardisation Rolling Development Plan (U-RDP), which ensures harmonisation between regulatory initiatives and technical standards.
EUROCAE, an independent non-profit organisation with more than six decades of experience in aviation standardisation, leads this effort through its Working Group 105 on Unmanned Aircraft Systems. The group has published over twenty standards covering areas such as detect-and-avoid systems, geo-fencing, automation, and safety analysis. Some of these have already been adopted by EASA as Acceptable Means of Compliance (AMC) or Guidance Material (GM).
JARUS continues to play a key global role in shaping safety and operational standards. Its Specific Operations Risk Assessment (SORA) methodology and other guidelines help national authorities assess UAS risks consistently.
ISO, through its technical subcommittee ISO/TC 20/SC 16, develops the ISO 21384 and ISO 23629 series, which set international standards for drone manufacturing, operations, and unmanned traffic management.
Finally, the European Standards Organisations (CEN, CENELEC, ETSI) and their partner ASD-STAN are working on detailed specifications for drone classes C0 to C6. These include requirements such as direct remote identification, ensuring drones can be tracked and identified in real time.
Challenge:
The civilian drone industry is driven by global competitive market forces, and the governance model with the embedded institutions in each jurisdiction contributes to the competitiveness of the industry. As such, the regulatory framework of the EU drone operations has its advantages and disadvantages, which may create obstacles for firms, member-states and innovators. For instance, aerial application of plant protection products is prohibited in Europe beyond a few specific exceptions due to ongoing concerns about human and environmental health safety, particularly from drift. More broadly, the absence of fully harmonised rules across Europe leads to conflicting national requirements and a legal landscape that continues to evolve. This volatility creates uncertainty for manufacturers and users alike, slowing cross-border deployment and complicating the scaling of drone-based services.
The Path Forward
ICAERUS is working to use the experience of the project’s Use Cases to develop a set of policy recommendations with white papers expected to be published in the new year.
