欧洲无人机法律发展新趋势

来源：无人机

为确保欧盟内部无人机的自由流动以及建立一个公平的竞争环境，欧洲航空安全局制定了通用的欧洲规则。这一规则体系在确保安全运行和尊重欧盟公民的隐私和安全的同时，促进了欧洲共同市场的发展。

法规框架的草拟情况

自2019年2月28日以来，欧洲距离完成统一的确保无人机安全运行的规则体系又迈进了重要一步。

欧洲航空安全局委员会一致投票通过了欧盟委员会的实施法案提案，该法案旨在对欧洲无人机系统(UAS)的运行以及无人机运营人和认证无人机的登记进行规范。该实施法案附有《授权法案》，其中规定了无人机运行的技术规范。该法案于2019年3月12日由欧盟委员会通过，并提交欧盟议会和欧盟理事会进行为期2个月的强制性审查。

如果欧盟议会和欧盟理事会没有提出反对意见，这两项法案都将在2019年夏天之前发布，这些法规将在发布一年内逐步实施。到2022年，过渡期将完成，法规将全面实施。

在欧洲，无人机的运行分为三大类：

“开放类”：考虑到所涉及的风险，此类无人机运行不需要在运行开始之前事先获得主管当局的授权，也不需要无人机运营人作出声明；

“特许类”：考虑到所涉及的风险，此类无人机运行需要在运行开始之前获得主管当局的授权，主管当局在进行此种授权时会考虑到运行风险评估中所确定的缓解措施，除非在某些标准场景下，由运营人作出声明即可，或者运营人持有轻型无人机运营人证书(LUC)和适当的特权；

“核准类”：考虑到所涉及的风险，此类无人机运行需要无人机审定证书、持照遥控驾驶员以及经主管当局批准的运营人，以确保适当的安全水平。

拟议中的法规重点针对开放类和特许类无人机运行。

下一步工作：

欧盟法规发布后，欧洲航空安全局将发布指导材料(GM)和法规遵守指南(AMC)。它们包括：

与Opinion 01/2018一同公布的指导材料和法规遵守指南草案的修订本；

SORA(特定运行风险评估)，作为“特许类”无人机运行所需的风险评估的法规遵守指南；

初次预设风险评估，以协助“特许类”无人机运营人申请授权；

在批准法规期间与各利害攸关方进行的讨论得出的相关解释说明。

与此同时，欧洲航空安全局正在积极采取下一步措施，以便无人机系统能够安全运作，并将这些新的空域用户纳入欧洲空域：

《欧洲航空安全局意见》，其中包含两个允许使用声明的标准场景。这些标准场景将包括在实施法案的附录中：《欧洲航空安全局意见》预计将于2019年第四季度发布；

欧洲航空安全局关于“核准类”无人机运行的拟议修订通知(NPA)，其中将包括针对所有航空领域(适航性、持续适航性、遥控驾驶员执照、航空器的运行、空中交通管理／空中航行服务和机场)的一套全面的方案：拟议修订通知预计将于2019年第四季度或2020年第一季度发布；

欧洲航空安全局对U-space的意见，其中包括一个高层次的规范框架：该意见预计将于2019年第四季度发布；

最后但同样重要的是，欧洲航空安全局非常积极地致力于为“开放类”和“特许类”无人机运行制定标准，以及编制安全宣传材料。

参考材料：

实施法案：COMMISSION IMPLEMENTING REGULATION (EU) …/...of XXX on the rules and procedures for the operation of unmanned aircraft，27 Feb 2019 - 28 Feb 2019.

授权法案：COMMISSION DELEGATED REGULATION (EU) …/... on unmanned aircraft systems and on third-country operators of unmanned aircraft systems（Detailed rules on unmanned aircrafts (drones)）, adopted on 12 March 2019.

Opinion 01/2018：Unmanned aircraft system (UAS) operations in the ‘open’ and ‘specific’ categories.

指导材料(GM)和法规遵守指南(AMC)：Draft acceptable means of compliance (AMC) and guidance material (GM) to Regulation .../... [IR] laying down rules and procedures for the operation of unmanned aircraft and to the Annex (Part-UAS — UAS operations in the ‘open’ and ‘specific’ categories).

英文翻译：

To ensure the free circulation of drones and a level playing field within the European Union EASA has developed common European rules. They contribute to the development of a common European market while ensuring safe operations and respecting the privacy and security of EU citizens. 

Status on drafting of Regulatory Framework

Since 28 February 2019 Europe is one step closer to harmonised rules for safe drone operation.

The EASA Committee voted unanimously to approve the European Commission’s proposal for an Implementing Act to regulate the operations of Unmanned Aircraft Systems (UAS) in Europe and the registration of drone operators and of certified drones.The Implementing Act is accompanied by a Delegated Act, which defines the technical requirements for drones. It was adopted by the European Commission on 12 March 2019 and sent to the EU Parliament and to the EU Council for the mandatory 2 months scrutiny period. 

If no objections are raised by the EU Parliament or by the EU Council, both acts will be published before the summer of 2019 and the regulation will become gradually applicable within a year of publication. By 2022 the transitional period will be completed and the regulation will be fully applicable.

The operations of UAS in Europe will be classified in 3 main categories:

the 'open’ category is a category of UAS operation that, considering the risks involved, does not require a prior authorisation by the competent authority nor a declaration by the UAS operator before the operation takes place;

the ‘specific’ category is a category of UAS operation that, considering the risks involved, requires an authorisation by the competent authority before the operation takes place, taking into account the mitigation measures identified in an operational risk assessment, except for certain standard scenarios where a declaration by the operator is sufficient or when the operator holds a light UAS operator certificate (LUC) with the appropriate privileges;

the ‘certified’ category is a category of UA operation that, considering the risks involved, requires the certification of the UAS, a licensed remote pilot and an operator approved by the competent authority, in order to ensure an appropriate level of safety. The proposed regulation is focusing on the open and specific categories.

Next steps

Following the publication of the EU regulation, EASA will publish Guidance Material (GM) and the description of means to comply with the regulation, the Acceptable Means of Compliance (AMC). They include:

a revised version of the draft AMC and GM that were published with Opinion 01/2018 ；

the SORA (Specific operation risk assessment) as AMC to the risk assessment that is required in the ‘specific’ category;

the first pre-defined risk assessment to assist operators when applying for an authorisation in the specific category; and

explanations resulting from the discussions held with stakeholders during the approval of the regulation.

In parallel, EASA is working on the next steps that will enable safe operations of UAS and the integration of these new airspace users into the European airspace:

EASA’s Opinion containing 2 standard scenarios that each allow the use of a declaration. These standard scenarios  will be included in an appendix to the Implementing Act: EASA’s Opinion is expected in Q4 2019

EASA’s notice of proposed amendment (NPA) for UAS in the ‘certified’ category, which will include a comprehensive package addressing all aviation domains (airworthiness, continuing airworthiness, remote pilot licenses, aircraft operations, ATM/ANS and aerodromes): the NPA is expected in Q4 2019-or Q1 2020

EASA’s Opinion of U-space, including a high level framework: the Opinion is expected by Q4 of 2019

Last but not least EASA is very much engaged in the development of standards for the open and specific categories and in the development of safety promotion material