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ICAO

Manual on Remotely Piloted Aircraft Systems (RPAS)

First edition (draft v1.0)_02 April 2012

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DRAFT ICAO RPAS MANUAL - version 1.0_02 April 2012

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EXECUTIVE SUMMARY

Background

Vehicles without a person on board to control them have long been imagined, designed, built or evenoperationally exploited already in the XX century. They are generically referred as Unmanned

vehicle systems (UAS) and can operate on the surface (e.g. trains without driver on board inmetropolitan areas or even at airports), at sea or even in the air. Civilian use of Remotely PilotedAircraft (RPA) is spreading in the XXI century and their international use is possible.

Therefore ICAO:

Established in 2007 a specific UAS study group (UAS SG) to assist Secretariat in developingproposals for the safe and efficient international use of UAS;

Published in 2010 Amendment 13 to Annex 13 (Aircraft Accident and Incident Investigation)to Chicago Convention to mandate investigations following accidents involving unmanned

aircraft systems;

Published in 2011 Circular 328 to provide initial information on the subject; Adopted in 2012 amendment 43 to Annex 2 (Rules of the air) and amendment 7 to Annex 7

(Aircraft Nationality and Registration Marks) to Chicago Convention providing the initialstandards necessary to obtain the special authorization per Article 8 of the Convention,necessary for civil international use of UAS.

This Manual has been drafted with the support of the UAS SG in order to provide guidance to ICAOContracting States and Regional Safety Oversight Organisations (RSOOs)

1 for possible application

when they decide to establish a regulatory framework for UAS.

ICAO intends to progressively amend a number of other Annexes to the Chicago Convention in order

to provide Standards and Recommended Practices (SARPs) related to UAS accommodation into the

system of the international civil aviation.

Remotely-piloted aircraft (RPA)

UAS can be autonomous (i.e. they do not allow pilot intervention in the management of the flight2)

or Remotely-piloted aircraft (RPA, which are unmanned aircraft piloted from a Remote pilot station

(RPS)3. Only the latter are currently considered by ICAO suitable for standardised international civil

operations, due to unclear responsibility for the autonomous portion of the flight.

Of course an RPA cannot fly unless it is part of a wider Remotely-piloted aircraft system (RPAS. TheRPAS includes the RPA, its associated RPS(s), the required command and control links and any other

components as specified in the type design.

Based on Annex 2 of the Chicago Convention, ICAO Contracting States wishing to allow civil

operations of RPA in the airspace for which they are responsible per Articles 1, 2 and 12 of theChicago Convention, even in the absence of more detailed SARPs in other ICAO Annexes, should

establish, either directly or through RSOOs, a regulatory framework which, as a minimum, shouldinclude administrative procedures and technical and operational criteria to:

a) authorize operations of RPAS engaged in international air navigation, issued by the Statefrom which the take-off of the remotely-piloted aircraft (RPA) is made;

1Ref. Resolution A37-8 adopted by the 37

thGeneral Session of the ICAO Assembly (Montreal; October 2010).

2

ICAO Circular 3283ICAO Annex 2

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b) issue special authorizations, based on bilateral or multilateral treaties or agreements amongthe States involved, in order to allow RPA to be operated across the territory of another State;

c) issue approvals (or certificates) to RPAS taking into account the interdependencies of thecomponents of the system;

d) issue individual certificate of airworthiness to RPA, per Article 31 of the ChicagoConvention;

e) issue appropriate certificates (e.g. for suitability for use) to the associated RPAS componentsspecified in the type design (in the first place the RPS(s)) and ensure that such stations andother necessary elements are maintained in a state suitable for continuing operations;

f) issue RPAS operator certificates to operators using RPAS for commercial or other non-recreational (e.g. corporate) operations;

g) ensure that service providers of communications for command and control are under propersafety supervision according to paragraph 2.4 of Annex 10 volume II;

h) issue or validate licences to remote pilots per Article 32 of the Chicago Convention;i) Allow entry to and operation in the various airspace classes of non-segregated airspace, as

standardised in Annex 11.

Purpose and scope

This Manual contains material recommended for use by ICAO contracting states and RSOOs whenestablishing the regulatory framework for RPAS certification and subsequent operations. The material

could be useful in advance of the publication of specific SARPs in the Annexes (e.g. 1, 6, 8 and 10) oras additional explanatory guidance, once these Annexes will have been amended in order toaccommodate RPAS and related operations.

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TABLE OF CONTENT

EXECUTIVE SUMMARY ....................................................................................................... 2

FOREWORD ........................................................................................................................... 15

REFERENCES ........................................................................................................................ 18

Abbreviations and acronyms ................................................................................................... 19

Explanation of terms ................................................................................................................ 20

1. CHAPTER 1 ICAO REGULATORY FRAMEWORK AND SCOPE OF MANUAL 25

1.1 The Chicago Convention ........................................................................................... 25

1.2 Article 8 of the Convention ....................................................................................... 25

1.3 Annexes to the Convention ....................................................................................... 26

1.3.1 General ............................................................................................................... 26

1.3.2 Annex 2 Rules of the Air ................................................................................... 27

1.3.3 Annex 7 Aircraft registration ............................................................................. 27

1.3.4 Annex 13 Accident investigations ..................................................................... 28

1.4 Procedures for Air navigation services ..................................................................... 28

1.4.1 Status and implementation of PANS ................................................................. 28

1.4.2 Published PANS................................................................................................ 29

1.4.3 PANS-ATM ....................................................................................................... 29

1.4.4 PANS-OPS ......................................................................................................... 29

1.5 Implementation by Contracting States (voluntary harmonisation) ........................... 30

1.6 Scope of the Manual .................................................................................................. 30

1.7 Future developments ................................................................................................. 31

2. CHAPTER 2: DESCRIPTION OF RPAS AND RELATED OPERATIONS ................ 32

2.1 Types of RPA operations .......................................................................................... 32

2.2 Integration of RPAS in the civil aviation system ...................................................... 32

2.3 B/VLOS ..................................................................................................................... 33

2.4 B/RLOS ..................................................................................................................... 34

2.5 Insertion of RPA into airspace .................................................................................. 34

2.6 Instrument flight rules (IFR) / Visual flight rules (VFR) .......................................... 35

3. CHAPTER 3: GENERAL REQUIREMENTS ................................................................ 36

3.1 Special authorization (ref. Art. 8 Convention) .......................................................... 36

3.1.1 General ............................................................................................................... 36

3.1.2 Transition ........................................................................................................... 36

3.1.3 Special authorization after amendment of Annexes 1, 6 and 8 .......................... 36

3.2 Exercise of privileges, notifications, approvals and specific approvals .................... 37

4. CHAPTER 4: RPAS AIRWORTHINESS AND SUITABILITY FOR USE.................. 39

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4.1 General ...................................................................................................................... 39

4.2 Type Certificate ......................................................................................................... 39

4.3 RPS: a new product ................................................................................................... 40

4.4 Individual certificate of airworthiness of the RPA .................................................... 40

4.5 Communication System ............................................................................................ 40

4.6 Airworthiness Organization Structure and Responsibilities of States ...................... 41

4.6.1 Airworthiness Responsibilities of the State ....................................................... 41

4.6.2 State or regional regulatory system.................................................................... 41

4.6.3 Airworthiness Organization ............................................................................... 41

4.7 Type Certification of the RPA(S) and of the RPS .................................................... 41

4.8 Production Approvals/Certification of RPAS elements ............................................ 42

4.9 Certificates of Airworthiness and Approvals for Export and Special Flights ........... 42

4.10 Responsibilities of manufacturer for continuing airworthiness of RPA and RPS . 42

4.11 Changes to Approved Type Design of RPA and RPS ........................................... 42

4.12 Repairs to Approved Type Design of RPA and RPS ............................................ 43

5. CHAPTER 5: RPA REGISTRATION ............................................................................ 44

5.1 Aircraft classification ................................................................................................ 44

5.2 Aircraft Registration Marks ...................................................................................... 44

5.3 Identification Plate .................................................................................................... 44

6. CHAPTER 6: CERTIFICATION OF RPAS OPERATORS .......................................... 45

6.1 Requirements for RPAS operators ............................................................................ 45

6.1.1 RPAS Operator responsibilities ......................................................................... 45

6.1.2 Terms of approval and privileges ...................................................................... 45

6.1.3 Changes .............................................................................................................. 45

6.1.4 Occurrence reporting ......................................................................................... 46

6.1.5 Management System (safety, quality and security) ........................................... 46

6.1.5.1 RPAS into State (or regional) safety programmes ........................................... 46

6.1.5.2 RPAS operator safety management ................................................................. 47

6.1.5.3 Safety data collection and analysis .................................................................. 47

6.1.6 Contracted services ............................................................................................ 48

6.1.7 Personnel management ...................................................................................... 49

6.1.7.1 Quantity, quality and posts of personnel.......................................................... 49

6.1.7.2 Competence of personnel ................................................................................. 50

6.1.7.3 Stress and fatigue management ........................................................................ 50

6.1.8 Operating facilities and Remote Pilot Stations (RPS) ....................................... 50

6.1.9

Record keeping .................................................................................................. 51

6.2 RPAS Operator Certificate (ROC) ............................................................................ 51

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6.2.1 General ............................................................................................................... 51

6.2.2 Validation or acceptance of ROC ...................................................................... 52

6.2.3 Content of the ROC ........................................................................................... 52

6.2.4 Issue of the certificate (& format) ...................................................................... 52

6.2.5 OPS specifications and privileges of ROC holder ............................................. 53

6.2.6 Continued Validity ............................................................................................. 53

6.2.7 Lease agreements ............................................................................................... 53

6.2.8 Document requirements ..................................................................................... 53

6.2.8.1 Documents at the RPAS operator premises ................................................ 53

6.2.8.2 Documents at or in close proximity of RPS(s) ........................................... 53

7. CHAPTER 7: PESRONNEL LICENSING ..................................................................... 55

7.1 General ...................................................................................................................... 55

7.1.1 Remotely piloted aircraft ................................................................................... 55

7.1.1.1 Scope .......................................................................................................... 55

7.1.1.2 Fundamentals .............................................................................................. 55

7.1.2 The history of personnel licensing ..................................................................... 55

7.1.3 Annex 1 to the Chicago Convention .................................................................. 56

7.2 Guidance to the Licensing Authority on rules for personnel involved in RPAS ...... 57

7.2.1 Application and issue of licences and associated ratings................................... 57

7.2.2 Student remote pilot and student RPA observer ................................................ 58

7.2.3 Theoretical knowledge examinations ................................................................ 58

7.2.4 Practical skill test ............................................................................................... 59

7.2.5 Crediting of time and theoretical knowledge ..................................................... 59

7.2.6 Exercise of the privileges of licences ................................................................. 59

7.2.7 Obligation to carry and present documents ....................................................... 59

7.2.8 Recording of RPA flight time ............................................................................ 60

7.2.9 Language proficiency......................................................................................... 60

7.3 RPA observer license (ROL) .................................................................................... 61

7.3.1 General ............................................................................................................... 61

7.3.2 Minimum age ..................................................................................................... 61

7.3.3 Privileges and conditions ................................................................................... 61


7.3.5 Training course .................................................................................................. 61

7.3.6 Skill test ............................................................................................................. 62

7.3.7 Experience requirement ..................................................................................... 62

7.4

RPA payload operator license (RPOL) ..................................................................... 62

7.5 Remote Pilot License (RPL) ..................................................................................... 62

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7.5.1 Minimum age ..................................................................................................... 63

7.5.2 Privileges and conditions ................................................................................... 63

7.5.3 Training course .................................................................................................. 63

7.5.4 Skill test ............................................................................................................. 63


7.5.6 Experience requirement and crediting ............................................................... 64

7.5.7 RPA flight instruction ........................................................................................ 65

7.5.7.1 General ........................................................................................................ 65

7.5.7.2 RPA flight instruction in BVLOS .............................................................. 65

7.5.7.3 RPA flight instruction in VLOS ................................................................. 65

7.6 Instrument rating ....................................................................................................... 66

7.7 Class and type ratings ................................................................................................ 66

7.7.1 Circumstances in which class or type ratings are required ................................ 66

7.7.2 Privileges of the holder of a class or type rating ................................................ 66

7.7.3 Requirements for the issue of class and type ratings ......................................... 66

7.7.4 Theoretical knowledge and flight instruction for class and type ratings ........... 67

7.7.5 Specific requirements for the RPS ..................................................................... 67

7.7.6 Specific requirements for the RPA .................................................................... 67

7.8 Additional Rating ...................................................................................................... 67

7.8.1 Night rating ........................................................................................................ 67

7.8.2 Harbour pilot rating............................................................................................ 68

7.8.3 Other limitations or restrictions ......................................................................... 68

7.9 RPA Instructor........................................................................................................... 68

7.9.1 RPA Instructor rating ......................................................................................... 68

7.9.2 General prerequisites and requirements for RPA instructors ............................ 69

7.9.3 RPA instructor competencies and assessment ................................................... 69

7.9.4 Training course .................................................................................................. 69

7.9.5 Assessment of competence ................................................................................ 69

7.9.6 Validity of RPA instructor rating ....................................................................... 70

7.10 RPA Examiner ....................................................................................................... 70

7.10.1 RPA Examiner certificates ................................................................................. 70

7.10.2 Limitation of privileges in case of vested interests ............................................ 70

7.10.3 Prerequisites for RPA examiners ....................................................................... 71

7.10.4 RPA examiner standardization .......................................................................... 71

7.10.5 RPA examiners assessment of competence ....................................................... 71

7.10.6

Validity, revalidation and renewal of RPA examiner certificates ..................... 72

7.11 Medical requirements ............................................................................................ 72

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7.11.1 Medical certificates ............................................................................................ 72

7.11.2 Application for a medical certificate .................................................................. 72

7.11.3 Issue, revalidation and renewal of medical certificates ..................................... 72

7.11.4 Validity, revalidation and renewal of medical certificates ................................ 72

7.12 Additional guidance material for FCL................................................................... 72

7.12.1 Guidance material for language proficiency ...................................................... 72

7.12.2 Guidance material for student remote pilot ....................................................... 73

7.12.3 Guidance material for theoretical knowledge examinations for ROL ............... 73

7.12.4 Guidance material for theoretical knowledge examinations for RPOL ............. 74

7.12.5 Guidance material for theoretical knowledge examinations for RPL ................ 74

8. CHAPTER 8: RPAS OPERATIONS .............................................................................. 76

8.1 Flight Operations (all RPAS) .................................................................................... 76

8.1.1 Flight preparation ............................................................................................... 76

8.1.2 Fuel/energy and oil reserves .............................................................................. 76

8.1.3 Taxi .................................................................................................................... 78

8.1.4 Climb.................................................................................................................. 78

8.1.5 Environmental conditions .................................................................................. 78

8.1.6 Additional requirements for day VLOS Operations .......................................... 79

8.1.7 Additional requirements for night VLOS operations......................................... 79

8.1.8 Additional requirements for BVLOS/VFR operations ...................................... 79

8.1.9 Additional requirements for RP aeroplane operations in BVLOS/RLOS/IFR

(day and night) ................................................................................................................. 79

8.1.10 Additional requirements for RP aeroplane operations in BVLOS/BRLOS/IFR

(requires a COM SP) day and night ................................................................................. 81

8.1.11 Additional requirements for commercial air transport operations by remotely

piloted aeroplane (including dangerous goods) ............................................................... 81

8.1.12 Contingency and emergency procedures (e.g. loss of C2 data link, forced

landing, emergency recovery) .......................................................................................... 81

8.2 RPA performance operating limitations .................................................................... 82

8.2.1 General (for aeroplanes equipped with internal combustion engines) ............... 82

8.2.2 Applicable to RPA-aeroplanes ........................................................................... 82

8.2.3 Obstacle data ...................................................................................................... 82

8.3 Performance operating limitations for RPA other than aeroplanes........................... 83

8.3.1 General ............................................................................................................... 83

8.3.2 Applicable to RPA rotorcraft (with internal combustion engines) .................... 83

8.3.3 Applicable to RPA other than aeroplanes or rotorcraft ..................................... 83

8.3.4 Applicable to RPA using propulsion systems other than internal combustion

engines 83

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8.3.5 Obstacle data ...................................................................................................... 83

8.4 RPAS operator responsibilities for continuous airworthiness................................... 83

8.4.1 Operators maintenance responsibilities ............................................................ 84

8.4.2 Operators maintenance control manual ............................................................ 84

8.4.3 Maintenance programme ................................................................................... 84

8.4.4 Maintenance records .......................................................................................... 84

8.4.5 Continuing airworthiness information ............................................................... 84

8.4.6 Modifications and repairs .................................................................................. 84

8.4.7 Approved maintenance organization ................................................................. 84

8.4.8 Release to service ............................................................................................... 84

8.5 RPA flight crew ......................................................................................................... 84

8.5.1 Composition and duties of the flight crew ......................................................... 84

8.5.2 Crew member emergency duties ........................................................................ 84

8.5.3 Flight crew member training programmes ......................................................... 85

8.5.4 Crew competence and qualifications ................................................................. 85

8.5.5 Flight crew equipment ....................................................................................... 85

8.5.6 Flight duty periods, operation shifts and rest periods for fatigue management . 85

8.5.7 Use of psychoactive substances (including tea!) ............................................... 85

8.6 Flight dispatch ........................................................................................................... 85

8.7 Manuals, logs and records ......................................................................................... 86

8.7.1 Operation Manual .............................................................................................. 86

8.7.2 Flight manual ..................................................................................................... 86

8.7.3 Operators maintenance control manual ............................................................ 87

8.7.4 Maintenance programme ................................................................................... 87

8.7.5 Operation log data .............................................................................................. 87

8.7.6 Flight and ground recorder records .................................................................... 88

8.7.7 Documents to be carried on board ..................................................................... 88

8.8 Additional security requirements .............................................................................. 88

8.8.1 Personnel security .............................................................................................. 88

8.8.2 Security of the RPA, .......................................................................................... 88

8.8.3 Security of the RPS including physical security ................................................ 88

8.8.4 Training programmes ......................................................................................... 89

8.8.5 Reporting acts of unlawful interference ............................................................. 89

9. CHAPTER 9: RULES OF THE AIR AND DETECT AND AVOID ............................. 90

9.1 Why Detect and Avoid? ............................................................................................ 90

9.2

Detect and be detected............................................................................................... 90

9.3 Mitigating the risk of Mid Air Collision (MAC) ...................................................... 90

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9.3.1 Protection layers................................................................................................. 90

9.3.2 The scenario and responsibilities in the different airspace classes .................... 92

9.3.3 ROA surveillance and action sectors ................................................................. 94

9.4 D&A Performance Requirements ............................................................................. 94

9.4.1 Safety objectives in the total aviation system .................................................... 94

9.4.2 Maintaining an equivalent risk for MAC ........................................................... 95

9.4.3 Target levels of safety (TLS) for MAC involving RPAS .................................. 95

9.4.4 Compatibility of D&A with ACAS/TCAS ........................................................ 96

9.5 DAA Systems ............................................................................................................ 96

9.5.1 System classification .......................................................................................... 96

9.5.1.1 Remote Systems ......................................................................................... 96

9.5.1.2 Complementary Systems ............................................................................ 97

9.5.1.3 Replacement Systems ................................................................................. 97

9.5.2 Assumptions and Limitations ............................................................................ 98

9.5.3 Right of Way Rules (in VLOS and BVLOS)..................................................... 99

9.5.4 D&A optional in VLOS ..................................................................................... 99

9.5.5 Basic D&A functionality ................................................................................... 99

9.5.5.1 Situational Awareness ................................................................................ 99

9.5.5.2 Traffic avoidance ...................................................................................... 100

9.5.5.3 Collision Avoidance ................................................................................. 101

9.5.5.4 Integrity Supervision ................................................................................ 104

9.6 Terrain and Obstacle Avoidance ............................................................................. 104

9.6.1 General ............................................................................................................. 104

9.6.1.1 VFR/VMC ................................................................................................ 104

9.6.1.2 IFR ............................................................................................................ 104

9.6.1.3 Database Considerations ........................................................................... 104

9.6.1.4 Compatibility/ Communality of Databases .............................................. 104

9.6.2 Obstacle detection and terrain situational awareness....................................... 104

9.7 Weather ................................................................................................................... 105

9.7.1 General ............................................................................................................. 105

9.7.2 Protection of RPS from Weather ..................................................................... 105

9.7.3 Detect and situational awareness regarding weather ....................................... 105

9.7.3.1 Weather hazard detection ......................................................................... 105

9.7.3.2 Cloud clearance ........................................................................................ 105

9.7.4 Weather avoidance ........................................................................................... 106

9.8

Mitigating the risk of collision during ground operations....................................... 106

9.8.1 General ............................................................................................................. 106

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9.8.2 Functional description of the ground movements ............................................ 106

9.8.3 Phases of Ground Operations........................................................................... 106

9.8.3.1 Departure .................................................................................................. 106

9.8.3.2 Arrival ....................................................................................................... 107

9.8.4 Standard operating procedures and Risk Factors ............................................. 107

9.8.5 Detect ground traffic and situation awareness on the ground .......................... 108

9.9 Other Hazards .......................................................................................................... 108

9.9.1 General ....................................................................................................................... 108

9.9.2 Detection and situation awareness ............................................................................. 108

9.9.3 Hazard avoidance ....................................................................................................... 108

10. CHAPTER 10: COMMAND, CONTROL (C2) AND COMMUNICATIONS WITH

ATS 109

10.1 General ................................................................................................................. 109

10.2 Scope of ICAO SARPs for C2 ............................................................................ 109

10.3 Command and control link architecture and requirements .................................. 110

10.3.1 C2 architectures ............................................................................................... 110

10.3.2 Link Quality of service .................................................................................... 111

10.3.3 Data link information flow requirements ......................................................... 112

10.3.4 C2 Security (malicious and non-malicious threats) ......................................... 115

10.3.5 C2 Protection requirements.............................................................................. 115

10.3.6 Transfer of data link ......................................................................................... 115

10.4 Loss of C2 link .................................................................................................... 115

10.4.1 Possible causes of lost link .............................................................................. 115

10.4.2 Characteristics of lost link and criteria for initiation of the lost link procedure

117

10.4.2.1 General ...................................................................................................... 117

10.4.2.2 Decoupling C2 and collision avoidance ................................................... 117

10.4.2.3 Criteria for identification of Lost Link condition ..................................... 117

10.4.3 Lost link procedures by airspace and operation ............................................... 118

10.5 ATC communication ........................................................................................... 120

10.5.1 Communication requirements for operations in VLOS in non-controlled

airspace (including blind transmissions and contingency communications with ATC

supervisors) .................................................................................................................... 120

10.5.2 Communication requirements for operations in BVLOS ................................ 120

10.5.3 ATC communication architecture .................................................................... 120

10.5.4 ATC voice communication on relevant ATC frequency ................................. 120

10.5.5 ATC data link communications ....................................................................... 120

10.5.6 Minimum communication airborne equipment ............................................... 120

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10.5.7 Future developments (System wide information management) ...................... 121

11. CHAPTER 11: REMOTE PILOT STATION ........................................................... 122

11.1 Identification of classes of the RPS ..................................................................... 122

11.1.1 General ............................................................................................................. 122

11.1.2 VLOS RPS ...................................................................................................... 122

11.1.3 BVLOS RPS .................................................................................................... 123

11.2 Control interface considerations for all classes of RPS ....................................... 127

11.3 Display requirements for BVLOS RPS ............................................................... 128

11.3.1 General requirements ....................................................................................... 128

11.3.2 Display of information for detect and avoid .................................................... 128

11.3.3 D&A Traffic avoidance and collision avoidance elements .......................... 130

11.3.4 Compensation for pilot sensory perception ..................................................... 132

11.4 Flight plan generation and filing ......................................................................... 132

11.5 Voice and data recording requirements ............................................................... 132

11.6 Mobile RPS.......................................................................................................... 132

11.7 Minimum crew requirements ............................................................................... 132

11.8 RPS handover procedures .................................................................................... 133

11.8.1 General ............................................................................................................. 133

11.8.2 Legal considerations ........................................................................................ 135

11.8.2.1 Transfer of PIC responsibility during an RPA Flight ............................ 135

11.8.2.2 Remote pilot responsibility during lost command control link conditions

135

11.8.3 Handover procedures ....................................................................................... 136

11.8.3.1 Generic handover procedure ..................................................................... 136

11.8.3.2 Special conditions for transfers between BVLOS RPS and VLOSlLaunch

and recovery RPS ....................................................................................................... 136

11.8.3.3 Special case of RPS handover harbour remote pilot ............................ 136

12. CHAPTER 12: INSTRUMENTS, EQUIPMENT AND FLIGHT DOCUMENTS .. 138

12.1 General ................................................................................................................. 138

12.2 All RPAS (including replacement of the on-board pilot situational awareness at

the RPS) on all flights ........................................................................................................ 138

12.3 Flight recorders .................................................................................................... 138

12.4 All RPAS operated within VLOS ........................................................................ 138

12.5 All RPAS operated as VFR flights in BVLOS .................................................... 138

12.6 All RPAS on flights over designated land areas .................................................. 138

12.7 All RPAS in icing conditions .............................................................................. 138

12.8 All RPAS operated in accordance with IFR ........................................................ 13812.9 All RPAS when operated at night........................................................................ 138

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12.10 All RPA complying with the noise certification Standards in Annex 16, Volume I

138

12.11 Mach number indicator ........................................................................................ 138

12.12 Ground proximity warning systems (GPWS) ...................................................... 138

12.13 Requirements for pressure-altitude reporting transponders................................. 138

12.14 RPAS required to be equipped with an Airborne collision avoidance system

(ACAS) 138

12.15 RPAS required to be equipped with detect and avoid systems ........................ 138

12.16 Emergency Locator Transmitter (ELT) ............................................................... 138

12.17 Vibration health monitoring systems ................................................................... 138

12.18 Navigation ........................................................................................................... 138

12.18.1 Airborne navigation equipment .................................................................... 138

12.18.2 RPS navigation equipment ........................................................................... 13812.18.3 Electronic navigation data management ...................................................... 138

12.18.4 Specific approvals for navigation operations (e.g. PBN) ............................. 138

13. CHAPTER 13: INTEGRATION OF RPAS OPERATIONS INTO ATM................ 139

13.1 General ................................................................................................................. 139

13.2 Integration principles ........................................................................................... 139

13.3 Airspace requirements ......................................................................................... 139

13.4 CNS (PBN?) ........................................................................................................ 140

13.5 Flight rules (Rules of the Air?) ............................................................................ 140

13.6 UAS Categorization ............................................................................................. 141

13.7 ACAS compatibility ............................................................................................ 141

13.8 RPAS performance requirements ........................................................................ 141

13.9 ATM procedures .................................................................................................. 141

13.10 R/T Spectrum ?/Data link .................................................................................... 142

13.11 Contingency and emergency procedures ............................................................. 142

13.12 Training / Licensing............................................................................................. 143

13.13 Human Factors ..................................................................................................... 143

13.14 D&A (detect and avoid) ...................................................................................... 143

13.15 Safety ................................................................................................................... 144

13.16 Security ................................................................................................................ 144

14. CHAPTER 10: USE OF AERODROMES AND OPERATING SITES ................... 145

14.1 General ................................................................................................................. 145

14.2 Operating sites (additional infrastructure needs, Annex 14) ............................... 145

14.3 Launch and recovery operations and elements .................................................... 145

14.4 Type of aerodromes ............................................................................................. 145

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14.5 Ground movements.............................................................................................. 145

14.6 Segregated airport operations .............................................................................. 145

14.7 Semi-segregated airport operations ..................................................................... 145

14.8 Full airport integration ......................................................................................... 145

14.9 Approach procedures ........................................................................................... 145

14.10 Visual aids and signs ........................................................................................... 146

14.11 Airport and operating site security ...................................................................... 146

14.12 Contingency and emergency procedures ............................................................. 146

14.13 Existing regulations / need for new regulation (ICAO / EU etc) ........................ 146

15. CHAPTER 11: SPECIAL OPERATIONS ................................................................ 146

15.1 General ................................................................................................................. 146

15.2 RPA indoor operations ........................................................................................ 146

15.3 RPA operations in close proximity of obstacles to manned aviation .................. 146

15.4 RPA operations in dangerous (chemical, nuclear or volcanic) clouds ................ 146

15.5 RPA operations in proximity of runways used by manned aviation (e.g. for bird

management) ...................................................................................................................... 146

APPENDIX A. Example for estimation of the TLS for MAC with RPA in the European

Union ..................................................................................................................................... 147

APPENDIX B. RPA operator certificate (ROC) ................................................................... 152

APPENDIX C. Validation of RPA operator certification ..................................................... 152

APPENDIX D. Organization and contents of an operations manual .................................... 152

APPENDIX E. Flight safety documents system .................................................................... 152

APPENDIX F. Master Minimum equipment list (MMEL) and Minimum equipment list

(MEL) .................................................................................................................................... 153

APPENDIX G. Additional guidance for approved special operations by RPAS .................. 154

APPENDIX H. Flight and ground recorders ......................................................................... 154

APPENDIX I. Lights to be displayed by RPAS .................................................................... 154

APPENDIX J. RP aeroplane performance operating limitations .......................................... 154

APPENDIX K. Altimetry system performance requirements for operations in RVSM airspace............................................................................................................................................... 154

APPENDIX L. Functional Tables of Separation provisions, Failure considerations and

replacements .......................................................................................................................... 155

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FOREWORD

Structure of the Manual

This manual contains the following chapters:

Chapter 1 ICAO regulatory framework and scope of Manual.

Chapter 2 Description of RPAS and related operations, which provides the foundation for thismanual.

Chapter 3 General requirements, providing information on the main features of a regulatoryframework for aviation safety.

Chapter 4 RPAS airworthiness and suitability for use, which offers recommendations forregulation in this domain (i.e. RPAS should be safe to fly).

Chapter 5 RPA registration.

Chapter 6 Certification of RPAS operators including their certification, privileges andresponsibilities.

Chapter 7 Personnel licensing, explaining the main topics to be regulated in order to issue suchlicences.

Chapter 8 RPAS operations, outlining main topics to be regulated in this domain (i.e. RPAS should

be safely flown), including for operations, necessary equipment and procedures, in a way similar tomanned aviation. Specific operational aspects of RPAS are dealt with in Chapters 9 to 12.

Chapter 9 Rules of the air and detect and avoid (D&A) providing an overview of the safetyrequirements for these systems, essential to operate in non-segregated airspace, Beyond visual line of

sight (BVLOS).

Chapter 10 Command, control and communications with ATS.

Chapter 11 Remote Pilot Station (RPS) including both its technical aspects (e.g.; display) and

operations (e.g. handover).

Chapter 12 Instruments, data and equipment (IDE), which takes into account that in the case ofRPAS, equipment can be distributes at the RPS or on board the RPA.

Chapter 13 Integration of RPAS operations into Air traffic management (ATM), outlining how aState or Regional safety oversight organisation (RSOO) should progress the introduction of civil RPAinto non-segregated airspace and the relationship with ATM and Air traffic services (ATS) (also innon-controlled airspace) as well as with Air traffic control (ATC) in controlled airspace classes.

Chapter 14 Use of aerodromes and operating sites.

Chapter 15 Special operations, offering information of operations of RPAS which are not normallypossible by manned aviation, like: indoor, in close proximity of obstacles or in dangerous clouds(e.g. volcanic).

Attachments:

APPENDIX A. Example for estimation of the TLS for MAC with RPA in the European Union

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APPENDIX B. RPA operator certificate (ROC)APPENDIX C. RPA operator certification and validationAPPENDIX D. Organization and contents of an operations manualAPPENDIX E. Flight safety documents systemAPPENDIX F. Master minimum equipment list (MMEL) and Minimum equipment list (MEL)APPENDIX G. Additional guidance for approved special operations by RPAAPPENDIX H. Flight and ground recordersAPPENDIX I. Lights to be displayed by RPAAPPENDIX J. Remotely-Piloted (RP) aeroplane performance operating limitationsAPPENDIX K. Altimetry system performance requirements for operations in Reduced verticalseparation minima (RVSM) airspace

Specific remarks

This Manual is based on information related to RPAS development and initial use, debates inspecialised fora including in the UAS SG, initial experiences of States and RSOOs which have issued

regulatory material for RPAS and related operations.

In addition the UAS SG carried out a thorough review of current Annexes to the Chicago Conventionin order to identify those SARPs whose intent (not necessarily the wording) is appropriate also forRPAS and related operations.

History of this manual

ICAO established the UAS SG in 2007.

The group has supported the Secretariat in developing the Circular Unmanned Aircraft Systems(UAS (Circ. 328 AN/190, published in March 2011).

In October 2010 the 37th General Assembly addressed the safety issues arising from the increasingnumber of UAS operating in the airspace. The Assembly drew attention to the fact that at the timethere were no international standards and agreed practices for UAS flight operations, and thattherefore individual contracting States were forced to develop national regulatory frameworks at theirdiscretion. The Assembly recommended that ICAO undertake development of a regulatory frameworkfor UAS in order to support all States facing this new safety issue. In particular the Assembly stressedthat Standards are needed and should be developed as a matter of urgency to support the regulatoryframework of States and to support the safe integration of UAS into non-segregated airspace.

Subsequently three Annexes to the Chicago Convention have already been amended to accommodateRPAS. Namely:

Annex 2 Rules of the Air, applicable since November 2012;

Annex 7 Aircraft Nationality and Registration Marks, applicable since November 2012;and

Annex 13 Accident Investigations, applicable since November 2010.

In support of these SARPs and of additional SARPs under development, the UAS SG has developedthe present first edition of the RPAS Manual.

Future developments

Comments on this Manual would be appreciated from all parties involved in the development,manufacture and operation of UAS, as well as from States and RSOOs developing the necessary

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regulatory framework for them.

These comments should be addressed to:

The Secretary GeneralInternational Civil Aviation Organization999 University StreetMontral, Quebec, Canada H3C 5H7

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REFERENCES

ICAO Documents

Doc 7300 Convention on International Civil Aviation, signed at Chicago on 7 December 1944 andamended by the ICAO Assembly

Annex 1 Personnel Licensing

Annex 2 Rules of the Air

Annex 3 Meteorological Service for International Air NavigationAnnex 6 Operation of Aircraft

Part I International Commercial Air Transport Aeroplanes

Annex 7 Aircraft Nationality and Registration Marks

Annex 8 Airworthiness of Aircraft

Annex 10 Aeronautical TelecommunicationsVolume II Communication Procedures including those with PANS status

Volume IV Surveillance and Collision Avoidance Systems

Annex 11 Air Traffic Services

Annex 13 Aircraft Accident and Incident Investigation

Annex 14 AerodromesVolume I Aerodrome Design and Operations

Annex 16 Environmental Protection

Volume I Aircraft Noise

Volume II Aircraft Engine Emissions

Annex 17 SecurityAnnex 18 The Safe Transport of Dangerous Goods by Air

Doc 4444 Procedures for Air Navigation Services Air Traffic Management (PANS-ATM)Doc 8643Aircraft Type Designators

Doc 9284 Technical Instructions for the Safe Transport of Dangerous Goods by AirDoc 9854 Global Air Traffic Management Operational Concept

Doc 9863Airborne Collision Avoidance System (ACAS) Manual

Doc 9869Manual on Required Communication Performance (RCP)

Other documents

a) Radio technical commission for Aeronautics (RTCA), DO-304, Guidance Material andConsiderations for Unmanned Aircraft Systems Issued 03-22-07Prepared by SC-203.

This document addresses all UAS and UAS operations being considered for realistic implementationin the United States National airspace system (NAS) in the foreseeable future. It is intended to educate

the community and used to facilitate future discussions on UAS standards. It provides the aviationcommunity with a definition of UAS, a description of the operational environment, and a top-levelfunctional breakdown. The guidance material provides a framework for developing standards throughRTCA Special Committee 203.

b) European aviation safety agency (EASA), Policy Statement Airworthiness CertificationPolicy of Unmanned Aircraft Systems (UAS) Doc E.Y013-0. Issued 25-08-2009.

This policy statement establishes general principles for type-certification (including environmentalprotection) of UAS. The policy represents a first step in the development of a comprehensive civil

UAS regulation. This policy statement is an interim solution to aid acceptance and standardization ofUAS certification procedures in Europe.

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Abbreviations and acronyms

ACAS Airborne collision avoidance system

AGL Above ground level

AIP Aeronautical information publication

ANC Air navigation conference

ANSP Air navigation service provider

ATC Air traffic control

ATM Air traffic management

ATO Approved training organisation

ATS Air traffic services

ATSP Air traffic service provider

BRLOS Beyond radio line-of-sight

BVLOS Beyond visual line-of-sight

C2 Data link for command and control

C3 Data link for command, control and communications with ATS

CA Collision avoidance

CAT Commercial air transportCISM Critical Incident Stress Management

CPDLC Controller-pilot data link communications

CNS Communications, navigation and surveillance

COM Communications

COM SP Communication service provider

D&A Detect and Avoid (equivalent to SAA)

DH Decision Height

EASA European Aviation Safety Agency

EDA European Defence Agency

ELOS Equivalent level of safety

ELT Emergency locator transmitterESA European Space Agency

EU European Union

FCL Flight crew licensing

FDR Flight data recorder

FIS Flight information service

GAT General air traffic

GPWS Ground Proximity warning systems

ICAO International Civil Aviation Organisation

IFR Instrument flight rules

MAC Mid-air collision

IMC Instrument meteorological conditions

MEL Minimum equipment list

MMEL Master minimum equipment list

MTOM Maximum take-off mass

NAS National airspace system (specific to the USA)

NextGen Next generation air transportation system

NOTAM Notice to airmen

OAT Operational air traffic

PANS Procedures for air navigation services

PBN Performance-based navigation

PIC Pilot-in-command

QFE

QNEQNH

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QOS Quality of service

RCP Required communication performance

RF Radio frequency

RLOS Radio line-of-sight

ROC RPAS operator certificate

ROL RPA observer licenseRP Remotely-piloted

RPA Remotely-piloted aircraft

RPAS Remotely-piloted aircraft systems

RPL Remote pilot license

RPOL RPA payload operator licence

RPS Remote pilot station

RSOO Regional safety oversight organisation

RTCA Radio technical commission for aeronautics

RVSM Reduced vertical separation minima

SAA Sense and Avoid (equivalent to D&A)

SARPs Standards and recommended practices (as contained in the Annexes to the ChicagoConvention)

SATCOM Satellite communication

SESAR Single European sky ATM research

SMS Safety management system

SOP Standard operating procedures

SSP State safety programme

SSR Secondary surveillance radar

TC Type certificate

TCAS Traffic alert and collision avoidance system

TEM Threat and error management

TLS Target level of safety

TRM Team resource managementTx/Rx Transmitter/receiver

UAS Unmanned aircraft systems

UAS SG Unmanned aircraft systems study group

UAV Unmanned Aerial Vehicle

UVR Unmanned visual rules

VFR Visual flight rules

VMC Visual meteorological conditions

VLOS Visual line-of-sight

Explanation of terms

a) Definitions:

Note. The definitions contained herein are copied from official ICAO definitions published in the

Annexes to the Chicago Convention and relevant, in the same exact meaning, for RPAS.

Accepting remote pilot. A competent and properly licensed and rated remote pilot, who takesresponsibility for the continuation of flight, after handover between two RPS.

Aerial work. An aircraft operation in which an aircraft is used for specialized services such asagriculture, construction, photography, surveying, observation and patrol, search and rescue, aerialadvertisement, etc.

Aircraft. Any machine that can derive support in the atmosphere from the reactions of the air other

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than the reactions of the air against the earths surface.

Aircraft category. Classification of aircraft according to specified basic characteristics, e.g.aeroplane, helicopter, glider, free balloon.

Autonomous aircraft. An unmanned aircraft that does not allow pilot intervention in the managementof the flight.

Autonomous operation. An operation during which a remotely-piloted aircraft is operating withoutpilot intervention in the management of the flight.

Command and control link (C2).The data link between the remotely-piloted aircraft and the remotepilot station for the purposes of managing the flight.

Commercial air transport (CAT) operation. An aircraft operation involving the transport ofpassengers, cargo or mail for remuneration or hire.

Commercial operation. An aircraft operation conducted for business purposes (mapping, securitysurveillance, wildlife survey, aerial application, etc.) other than commercial air transport, forremuneration or hire.

Crew member. A person assigned by an operator to duty on an aircraft during a flight duty period.

Detect and avoid.The capability to see, sense or detect conflicting traffic or other hazards and takethe appropriate action.

Flight crew member. A licensed crew member charged with duties essential to the operation of anaircraft during a flight duty period.

Flight time aeroplanes. The total time from the moment an aeroplane first moves for the purposeof taking off until the moment it finally comes to rest at the end of the flight.

Flight time helicopters. The total time from the moment a helicopters rotor blades start turninguntil the moment the helicopter finally comes to rest at the end of the flight, and the rotor blades arestopped.

General aviation operation. An aircraft operation other than a commercial air transport operation oran aerial work operation.

Instrument flight time. Time during which a pilot is piloting an aircraft solely by reference toinstruments and without external reference points.

Night. The period between the end of evening civil twilight and the beginning of morning civiltwilight or such other period between sunset and sunrise as may be prescribed by the LicencingAuthority, as defined by the Contracting State.

Operator. A person, organization or enterprise engaged in or offering to engage in an aircraftoperation.

Note. In the context of RPA, an aircraft operation includes the RPAS.

Operational control. The exercise of authority over the initiation, continuation, diversion ortermination of a flight in the interest of safety of the aircraft and the regularity and efficiency of the

flight.

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Pilot (to). To manipulate the flight controls of an aircraft during flight time.

Pilot-in-command. The pilot designated by the operator, or in the case of general aviation, the owner,as being in command and charged with the safe conduct of a flight.

Remote pilot.Aperson charged by the operator with duties essential to the operation of a remotely-piloted aircraft and who manipulates the flight controls, as appropriate, during flight time.

Remote pilot station (RPS).The component of the remotely-piloted aircraft system containing theequipment used to pilot the remotely-piloted aircraft.

Remotely-piloted aircraft (RPA).An unmanned aircraft which is piloted from a remote pilot station.

Remotely-piloted aircraft system (RPAS). A remotely-piloted aircraft, its associated remote pilotstation(s), the required command and control links and any other components as specified in the typedesign.

RPA observer.A trained and competent person designated by the operator who, by visual observationof the remotely-piloted aircraft, assists the remote pilot in the safe conduct of the flight.

Visual line-of-sight (VLOS) operation. An operation in which the remote pilot or RPA observer

maintains direct unaided visual contact with the remotely-piloted aircraft.

b) Additional terms:

Note. The additional contained herein are used in the context of this Manual. They have no official

status within ICAO. Where a formally recognized ICAO definition exists, and it is relevant for RPAS,

it is contained in the paragraph immediately above. However, some existing terms contained in the

definitions in Annexes to the Chicago Convention, are used herein in a different meaning. In such a

case this is noted with an **.

Beyond radio line-of-sight (BRLOS). An operation beyond the range of RLOS

Note. Typically communications beyond RLOS are established by radio waves able to go beyond the

radio horizon (e.g. HF) or via SATCOM.

Beyond Visual line-of-sight (BVLOS) operation.An operation beyond the range of VLOS.

Collision Avoidance.See ICAO Doc 9854 Item 2.7.31.

Collision Avoidance Threshold. The boundary around the UAS at which collision avoidance is

necessary to prevent the threat from penetrating the collision volume (similar to an ACAS resolutionadvisory). This threshold is also variable dependent on UAV performance characteristics, intruderapproach geometry, closure rates, and relative accelerations.

Collision boundary. Defined as the closest point of approach or the minimum distance to be achievedbetween two aircraft to ensure that a collision is avoided taking account of any inaccuracies in thesystem.

Collision threshold. The latest point at which a manoeuvre must be initiated in order to ensure thatthe collision boundary is not crossed.

Collision Volume. A cylindrical volume of airspace centered on the UA with a horizontal radius andvertical height within which a collision is most likely and avoidance of a collision can only beconsidered a matter of chance.

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Cooperative Aircraft. Aircraft that have an electronic means of identification (i.e., a transponder)aboard and operating.

Corporate aviation operation**. The non-commercial operation or use of aircraft by a company forthe carriage of passengers or goods or for aerial work as an aid to the conduct of company business,flown by a professional pilot(s) employed to fly the aircraft.

Cross-country**.means an RPA flight beyond the point or area of departure following a pre-plannedroute using standard navigation procedures;

Dual instruction time**.The time during which a person is receiving instruction from a properlyauthorized remote pilot at the controls of the RPS.

Flight recorder**. Any type of recorder installed in the aircraft for the purpose of complementingaccident/incident investigation. In the case of remotely-piloted aircraft, it also includes any type of

recorder installed in a remote pilot station for the purpose of complementing accident/incident

investigation.

Flight time RPA.The total time from the moment a command and control link is established withthe RPA in the intent to perform a flight, until the moment the RPA finally comes to rest and the link

is disconnected at the end of the flight.

Handover. The act of passing piloting control from one remote pilot station to another.

Harbour pilot. A remote pilot familiar with a defined aerodrome or landing site, which transfersresponsibility to another pilot few minutes after take-off, or accepts responsibility for approach,landing and possibly taxing and parking.

Intruder. Aircraft within the surveillance volume but outside the self-separation threshold. Thistraffic is merely monitored and no action is necessary to maintain separation unless so instructed byATC.

Lost link. The loss of command and control link contact with the remotely-piloted aircraft such thatthe remote pilot can no longer manage the aircrafts flight.

Non-Cooperative aircraft. Aircraft that do not have an electronic means of identification (i.e., atransponder) aboard or not operating such equipment due to malfunction or deliberate action.

Operational Volume.The volume of airspace in which the UAS is proposed to operate, defined bypoints on the ground and altitudes.

Radio line-of-sight (RLOS). A direct electronic point-to-point contact between a transmitter and a

receiver.

Remote Co-pilot.A licenced remote pilot serving in any piloting capacity other than as remote PICbut excluding a remote pilot who is an operating crew member for the sole purpose of receiving RPAflight instruction.

Remote crew member. A licensed crew member charged with duties essential to the operation of aremotely-piloted aircraft, during flight time.

Remote flying pilot. A person who operates the flying controls of an aircraft and is responsible for theflight trajectory of the aircraft.

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Remote Pilot-in-command (remote PIC). The remote pilot designated by the operator, or in the caseof general aviation, the owner, as being in command and charged with the safe conduct of flight

Safe State. A state (e.g. position, velocity) in which the probability of mid-air collision is at a levelacceptable to the regulator (or user agency for the airspace in which the UAS is operating).

Segregated airspace. Airspace of specified dimensions allocated for exclusive use to a specificuser(s).

Self Separation. See ICAO Doc 9854 Item 2.7.23 and 2.7.24

Self Separation Threshold. The boundary around the UAS at which an aircraft becomes a threat andthe UAS is required to prevent it from penetrating the collision avoidance threshold, therebymaintaining a safe distance from traffic. This threshold varies depending on speed and direction oftraffic compared to the UAV.

Separation boundary. The defined minimum separation, which, in controlled airspace is the ATC

separation minima defined for the airspace, while in uncontrolled airspace is a to-be-defined distance,set to ensure that one aircraft is not perceived as a hazard by the other;

Separation threshold. The latest point at which a manoeuvre needs to be initiated in order to maintainthe required separation e.g. to ensure that the separation boundary is not crossed;

Solo flight time**.The flight time during which a student remote pilot is piloting the RPA withoutreceiving RPA flight instruction.

Surveillance Volume. That volume which describes the effective limits (e.g. range, elevation,azimuth) of the surveillance system.

Threat Aircraft. An intruder that may pose a potential collision risk (i.e. an aircraft that has crossedthe Self Separation Threshold). ATC instructions requiring separation from this traffic are likely andif ATC separation is not available, self-separation needs to be maintained.

Threat Volume. The volume of airspace in which an intruder is considered a collision threat. Usuallywhen the intruder crosses the self-separation threshold.

Track. (to track?- do not confuse with the projection of the path of an aircraft on the ground)- One ormore surveillance reports concerning the same intruder that supports estimation (e.g. current and/orfuture position) of its collision risk.

Transferring remote pilot.A remote pilot, who transfer responsibility for the continuation of flight,

during handover between to the next RPS.

Unmanned aircraft (UA). An aircraft which is intended to operate with no pilot on board.

Unmanned aircraft system (UAS). An aircraft and its associated elements which are operated with no

pilot on board.

Unmanned visual rules (UVR). VLOS operations with visibility of less than 5 km.

Note:definitions not used in the following could perhaps be deleted

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1. CHAPTER 1 ICAO REGULATORY FRAMEWORK AND SCOPE OF MANUAL

1.1The Chicago Convention

The Convention on International Civil Aviation was signed in Chicago on 7 December 1944. In thefollowing it is referred as the Convention. It includes several articles which call for adoption of

international regulations in all fields where uniformity facilitates and improves air navigation.These regulations, known as Standards and recommended practices (SARPs) are promulgated inAnnexes to the Convention and amended from time to time when necessary.

The Standards constitute mandatory acts of international law addressed to ICAO Contracting States.The SARPs are adoptedby Council in pursuance of Article 37 of the Convention, subject to the fullrulemaking procedure of Article 90 therein, which includes consultation of all Contracting States viaState Letter type I.

Each Annex deals with a specific aspect of international civil aviation. For example personnelcompetence and medical requirements are included in Annex 1 (Personnel Licensing), Rules of the

Air in Annex 2 and provisions on operation of aircraft in Annex 6.

(SARPs are defined as follows:

Standard - Any specification for physical characteristics, configuration, material, performance,personnel or procedure, the uniform application of which is recognized as necessary for the safetyor regularity of international air navigation, and to which Contracting States will conform inaccordance with the Convention. In the event that a State finds it impracticable to comply in allrespects with any such international standard but allows a less stringent practice, immediatenotification to ICAO is compulsory under Article 38 of the Convention. In case a more stringentregulation is adopted, notification to ICAO is compulsory only when such regulation is appliedalso on foreign licence holders and aircraft. However, in a Resolution of 5 February 1999, the

ICAO Council made it clear that, in principle, national requirements more exacting than theSARPs would be detrimental to the framework of the Chicago system within which internationalcivil aviation has developed and continues to develop. In this Resolution the Council also calledupon each Contracting State to utilize the multilateral mechanism of ICAO where it believes thatchanges to the content or level of implementation of the Standards and Recommended Practices inthe Annexes to the Chicago Convention are necessary or desirable;

Recommended practices - Any specification for physical characteristics, configuration, material,performance, personnel or procedure, the uniform application of which is recognized as desirablein the interest of safety, regularity or efficiency of international air navigation, and to whichContracting States will endeavour to conform in accordance with the Convention.

Although the purpose of SARPs is to provide provisions only for international air navigation, theyhave greatly influenced national regulations governing domestic aviation in most Contracting States.

ICAO also originates guidance material which is intended to assist States in the implementation ofSARPs, but places no regulatory responsibility upon States for compliance. This ICAO Manual onRPAS (Doc XXXX) falls into this category since it offers guidance on the implementation of theSARPs contained in Annex 2, 7 and 13.

1.2 Article 8 of the Convention

All RPA, whether remotely-piloted, fully autonomous or a combination thereof, are subject to theprovisions of Article 8 of the Convention. This article states:

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Pilotless aircraft

No aircraft capable of being flown without a pilot shall be flown

without a pilot over the territory of a contracting State withoutspecial authorization by that State and in accordance with the termsof such authorization. Each contracting State undertakes to insurethat the flight of such aircraft without a pilot in regions open to civilaircraft shall be so controlled as to obviate danger to civil aircraft.

To understand the implications of this Article 8 and its inclusion from the Paris Convention of 1919(Article 15) into the Chicago Convention of 1944, the intent of the drafters must be considered.Remote-controlled and (autonomous) uncontrolled aircraft were already in existence at the time of theFirst World War, operated by both civil and military entities. Aircraft flown without a pilot thereforerefers to the situation where there is no pilot on board the aircraft. As a consequence, any RPA is apilotless aircraft, consistent with the intent of the drafters of Article 8.4

Second, emphasis was placed on the significance of the provision that aircraft flown without a pilotshould be so controlled as to obviate danger to civil aircraft, indicating that the drafters recognizedthat pilotless aircraft must have a measure of control being applied to them in relation to a so-calleddue regard obligation, similar to that of State aircraft. In order for an RPA to operate in proximity toother civil aircraft, a remote pilot is therefore essential.

The Eleventh Air Navigation Conference (ANC) (Montral, 22 September to 3 October 2003) when

endorsing the global Air traffic management (ATM) operational concept, agreed the following text:An unmanned aerial vehicle is a pilotless aircraft, in the sense of Article 8 of the Convention onInternational Civil Aviation, which is flown without a Pilot-in-command (PIC) on-board and is eitherremotely and fully controlled from another place (ground, another aircraft, space) or programmed and

fully autonomous. This understanding of Unmanned aerial vehicle (UAV) was endorsed by the 35thSession of the ICAO Assembly in 2004.

The term UAV was widely used by the international community until around 2005. Later thepreferred term became Unmanned aircraft system (UAS, to emphasize that these machines areaircraft (and therefore subject to aviation rules) and that to safely fly them the entire system has to be

considered.

1.3 Annexes to the Convention

1.3.1 General

In principle RPAS, related operations, operators and involved personnel, are subject to the applicableSARPs contained in all Annexes to the Chicago Convention.

However, the content, intent or wording of SAPRs existing on the date of publication of this Manual,may not be immediately applicable to RPAS. Therefore:

a) In the absence of specific SARPs contracting States have nevertheless the responsibility ofestablishing proper safety rules in order to accommodate UAS in non-segregated (controlled anduncontrolled) airspace;

b) Should some of the existing SARPs be considered not applicable to UAS, States should considerthe possibility of notifying a difference to ICAO;

4Paragraph 4.3 till 4.5, Legal Matters, Circular 328, AN/190, Unmanned Aircraft Systems (USA).

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c) ICAO plans to amend virtually all the Annexes in order to accommodate UAS, including inparticular Annex 1 (Personnel Licensing), 6 (Air Operations), 8 (Airworthiness) and 10(Telecommunications);

d) Annex 2 (Rules of the air), 7 (aircraft registration) and 13 (accident investigations) have beenalready amended to accommodate RPAS, as summarised below;

e) Present Manual offer to States and RSOOs guidance, for possible voluntary adoption, even beforeother ICAO Annexes are amended.

1.3.2 Annex 2 Rules of the Air

Amendment 43 to Annex 2 to the Convention was adopted by ICAO Council on 07 March 2012, forapplicability from November 2012 onwards.

The main provisions covered by such amendment, which use the verb shall having the status ofmandatory standards, can be summarised as follows:

a) An RPA shall be operated in such a manner as to minimize hazards to persons, property or other

aircraft and in accordance with the conditions specified in Appendix 4 of said Annex 2;b) An (RPAS engaged in international air navigation shall not be operated without appropriateauthorization from the State from which the take-off of RPA is made;

c) An RPA shall not be operated across the territory of another State, without a special authorization(ref. Article 8 Convention) issued by each State in which the flight is to operate. Thisauthorization may be in the form of agreements between the States involved;

d) The authorization shall be obtained prior to take-off if there is reasonable expectation, whenplanning the operation, that the aircraft may enter the airspace concerned;

e) Flight plans shall be submitted in accordance with applicable procedures;f) RPAS shall meet the performance and equipment carriage requirements for the specific airspace

in which the flight is to operate;g) An RPAS shall be approved for its airworthiness and safe use, taking into account the

interdependencies of the components, in accordance with applicable regulations;h) In addition an RPA shall have a (individual) certificate of airworthiness issued in accordance with

applicable regulations;i) The associated RPAS components specified in the type design (e.g. the Remote pilot station

(RPS)) shall be certificated and maintained in accordance with applicable regulations;j) An operator shall have an RPAS operator certificate;k) Remote pilots shall be licensed or have their licences rendered valid;l) The request for authorization shall be made to the appropriate authorities of the State(s) in which

the RPA will operate not less than seven days before the date of the intended flight unlessotherwise specified by the State;

m) After authorization has been obtained from the appropriate State(s), air traffic servicesnotification and coordination shall be completed in accordance with the requirements of the

State(s).

1.3.3 Annex 7 Aircraft registration

Amendment 6 to Annex 7 to the Convention was adopted by ICAO Council on 07 March 2012, for

applicability from November 2012 onwards.

The main provisions covered by such amendment, which use the verb shall having the status ofmandatory standards, can be summarised as follows:

a) The existing aircraft classification (e.g. aerodynes and aerostats or aeroplanes and helicopters) is

applicable also to RPA;b) In addition an aircraft which is intended to be operated with no pilot on board shall be further

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classified as unmanned;c) Unmanned aircraft include unmanned free balloons and RPA;d) If a heavier-than-air aircraft does not possess pa