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Insight ReportAdvanced Drone Operations Toolkit:Accelerating the Drone RevolutionDecember 2018World Economic Forum91-93 route de la CapiteCH-1223 Cologny/GenevaSwitzerlandTel.: +41 (0)22 869 1212Fax: +41 (0)22 786 2744Email: contactweforumweforum 2018 World Economic Forum. All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means, including photocopying and recording, or by any information storage and retrieval system.Source cover photo: U.S. Department of Agriculture3Accelerating the Drone RevolutionPrefaceIntroductionTools for Governance of Advanced Drone OperationsPerformance-based Regulations: A Proven Path to Drone SuccessCase Study: How Switzerland Pioneered Urban Drone DeliverySafe, Secure and Inclusive: Developing a Drone Ecosystem that Works for AllCase Study: Demonstrator to Delivery in Rwanda, Scaling a Drone EcosystemConclusionContributorsEndnotes5 68 11121720242526Contents4 Accelerating the Drone Revolution5Accelerating the Drone RevolutionPrefaceSystems of mobility are fundamentally important to the health and sustainability of society. The movement of goods and people drives economies and greater interconnection. The supply-chain and logistics systems that have enabled rising prosperity and driven the success of digital commerce rely heavily on advances in communication, automation, and transport. While much of this innovation has been on land, we are now entering an era of rapid transformation and disruption in the skies. Unmanned and autonomous aerial vehicles are challenging traditional legal paradigms, while authorities that govern safety and security in the air are struggling to keep pace with technical innovation. Transport systems must adapt to meet the increasing demands of society, but without adding additional risks.A unique opportunity exists today to harness the revolutionary power of drones and autonomous aerial mobility. Around the world, drones are already having a positive effect on human health, food production, environmental protection, and more. Drones are providing a vision from the skies that redefine how we see the world, identifying unhealthy or drought-stricken crops with granularity never possible with satellite imagery or crewed aircraft. Infrastructure is becoming more resilient through remote inspections and multi spectral imagery by drones acting as an interoperable platform capable of more frequent and precise measurements. Private citizens increasingly have access to capabilities that have historically been available only to governments or large corporations.Transporting vital goods through the air has been a staple of international commerce for decades, but a revolution is taking place at low altitudes, on demand, for last-mile connectivity. Rural health clinics in Rwanda, bolstered by performance-based regulations, are receiving vital medical deliveries by drone and doing so in a way that is saving lives and reducing waste system-wide. Switzerland leads the world in urban deliveries of goods by drone. Other nations are beginning to explore similar approaches, adopting agile governance frameworks to support societal needs through the skies. What is needed most today is leadership by those responsible for governing aviation. This toolkit has been co-designed with a wide spectrum of partners across government, industry, civil society and academia in collaboration with the World Economic Forums Drones and Tomorrows Airspace team at the Centre for the Fourth Industrial Revolution. While many emerging technologies proliferate in the absence of fit-for-purpose regulation, innovation in the application of drone technology is limited by governments inability to update legacy rules to meet new possibilities. Thus, the goal of this toolkit is to enable regulators to learn from the innovative policy experiments occurring around the world and empower them to adopt these new governance models that accelerate the promise of drones for all.Zvika KriegerHead of Technology Policy and PartnershipsWorld Economic ForumCentre for the Fourth Industrial RevolutionHarrison WolfLead of Dronesand TomorrowsAirspace World Economic ForumCentre for theFourth IndustrialRevolutionTimothy ReuterHead of Dronesand TomorrowsAirspace WorldEconomic ForumCentre for theFourth IndustrialRevolution6 Accelerating the Drone RevolutionIntroductionThe Fourth Industrial Revolution is characterized by an unprecedented speed, scale and scope of technological change, with governments around the world struggling to adapt their approaches to policy and regulation in the face of these transformations. From artificial intelligence driving decision-making of autonomous controls to new materials and propulsion systems that will make flying cars a reality, ministries across the globe require the tools for creative governance that maintains the safety of the skies while enabling the increasing movement of people and goods. One of the most impactful use cases for unmanned aircraft systems (UAS), commonly referred to as drones, is the transport of essential goods in a more rapid, efficient or less expensive manner than ground transport. Many areas of the world are poorly served by existing infrastructure. Advanced drone operations promise to bring both life-saving and economically important goods and services to these communities, with especially acute need after a disaster when the usual modes for transporting goods are no longer functioning. Currently, most governments around the world lack the oversight mechanisms to take advantage of what is possible in this area with drone technology. To aid and advance the governance of autonomous aerial vehicle technology, the World Economic Forum has collected lessons from around the world that highlight the genesis and scaling phases of successful implementations and created a template of considerations for governments that are interested in implementing similar programmes. The status of drone operations across the globe fall into two categories pilot projects (genesis) and expansion (scaling). Lessons from both experiences are being gathered in this toolkit to identify how to develop frameworks for enabling advanced drone operations alongside existing users of airspace and to understand the role of the regulator and government authority in scaling operations. This policy toolkit has been developed in collaboration with the Drone Innovators Network (DIN), a community of leading civil aviation authorities and ministries, supported by industry leaders, that shares best practices to accelerate policy innovation around drones. Brought together by the Drones and Tomorrows Airspace team at the World Economic Forums Centre for the Fourth Industrial Revolution, this community was launched in Zurich, Switzerland, in June 2018. The toolkit draws on DIN members pilot projects that have taken place across the globe, leveraging the lessons shared in Zurich. and complemented by ongoing project work being undertaken by the Forum. It also includes lessons discussed at the Lake Victoria Challenge event in Mwanza, Tanzania, co-hosted with the World Bank, that brought together regulators and pan-African aviation organizations to discuss drone use in Africa. The intent of this toolkit is to help empower those in government seeking to bring the benefits of UAS to their countries, while mitigating the risks by showing them how other governments have tackled relevant challenges. Safe, clean, inclusive and scalable drone use has become the goal of many nations, recognizing the vast potential to disrupt outdated logistics systems, promote global health initiatives, save lives, minimize costs and to connect disconnected populations. This toolkit, developed not in theoretical dialogues but through comparative analysis of real projects, shares the lessons learned by governments and private players alike to enable the continued evolution of this new technological innovation.Nation states are struggling to develop frameworks that enable socially and economically important use cases, while mitigating negative impacts, securing the skies from unlawful actors and enforcing the policies they do create. Drones are, by their nature, dispersed. They change the commercial flight model by not operating point-to-point between fixed airports but enabling a more dynamic use of airspace with limited physical infrastructure required. Many of the new players in the drone ecosystem do not come out of the traditional aviation community while seeking to accomplish tasks that would not have been possible with traditional aviation technology. Separating the intent and capability of the systems from pilots who are reliable and operating in the interest of society is a significant challenge to authorities previously tasked with overseeing well-understood and regimented communities. This is both the problem and the promise posed by drones. We are witnessing the beginning of a logistics revolution; one that will redefine the way goods and people are moved around the world and one that will drive social change alongside societal impact.Timothy Reuter, Head of Drones and Tomorrows Airspace, USA7Accelerating the Drone RevolutionWhat follows are insights and recommendations from the most successful projects, demonstrating what it takes to launch and oversee advanced drone operations. The stories and information were captured first-hand by the World Economic Forum speaking directly with policy-makers, entrepreneurs, regulators and technical experts who have fundamentally shifted the dialogue from what “may” be possible to what “is” possible, in a very short time. The two case studies presented are great examples of how leaders in the field can revolutionize governance frameworks. Rwandas first successful deployment of drone delivery for medical logistics is not the end of the story but the beginning. The success of the operation drove the Rwandan government to seek new methods of regulation to scale the contribution drones could make to their society and economy. Switzerland became the “Home of Drones” only after being fully embraced by the Swiss Federal Office of Civil Aviation (FOCA). Looking ahead, how does the government invest in enabling drone infrastructure and what role does the public play in determining the approval processes? The answers to these questions and the stories from these countries can help guide the decision-making of regulators from around the world. 8 Accelerating the Drone RevolutionTools for Governance of Advanced Drone OperationsThe opportunity for countries to benefit from advanced drone operations is increasing as associated technologies continue to rapidly improve and evolve. Most countries are struggling to routinely enable beyond visual line of sight operations, multiple aircraft per operator or autonomous operations, and operations around people, all key conditions for realizing the full potential of drones. For the purposes of this paper, we consider operations that meet at least two of these three operational criteria to be advanced operations. In Switzerland, Swiss Post is connecting hospitals and medical labs by drones; lifting medical supplies and cargo into the skies to avoid transport gridlock and ensure the security of vital cargo. In Rwanda, the Ministry of Health is saving lives through aerial supply chains that bring blood products to clinics around the country, preventing stockouts and eliminating expiration of product and wastage from the system. The following elements are modular components of an overarching programme that regulators and the community identified as fundamentally important to enabling applications. Performance-based regulation model All over the world, governments have struggled with balancing their expertise in oversight through certification with the dynamism of rapidly evolving technologies. In early 2018, Rwanda passed a pioneering national scale regulation based on performance, not prescription. This regulation was developed by the Rwandan Civil Aviation Authority with support from the World Economic Forums Centre for the Fourth Industrial Revolution, in consultation with experts from all over the world. Regulations based on dynamic risk mitigation enable authorities to approve new types of missions based on evolving technologies while keeping unsafe operations out of the airspace. Performance-based regulations (PBRs) are regulations developed to combine risk profile and safety performance, address the management of risk, and ensure compliance. These are regulations that focus on the actual risk presented by an operation, such as EASAs newly promulgated regulation, and are founded in international best practice and safety management doctrine. Rwandas implementation of PBR for all category of unmanned aircraft has led directly to an increase in operations for its drone ecosystem, promoted expansion of domestic industry participants, and will enable the planned scaling of the Zipline blood delivery system to 95% of the country. Cross-ministerial councils Breaking barriers in communication across ministerial silos helps develop a broader understanding of the opportunities, challenges and solutions government officials face before operations begin. By engaging all relevant government departments Specific Operations Risk AssessmentUnmanned Traffic Management (UTM)Key perfomance IndicatorsPublic and Private Data TransparencyCommunity Outreachand EngagementOversight, Audits, EnforcementsSecurity Services CoordinationPerformanceBasedRegulationsTechnology DemonstratorsPolicy PrototypingCrossMinisterialCouncilsUnmanned TrafficManagement(UTM)RegulatorySandboxes9Accelerating the Drone Revolutionearly, the opportunity for identifying socially meaningful and economically impactful use cases can ensure buy-in and a shared vision across the government as well as much greater societal adoption from community engagement through existing government channels. In Rwanda, the Ministry of Health set up and coordinated directly with the Drone Advisory Council and Zipline to integrate drones into their blood delivery system, which led directly to the national scale success that exists today. Security service coordination Without direct buy-in and consultation from the onset, security concerns will prevent the genesis and scaling of operations. When considering the development of drone operations, two concrete challenges must be first and foremost safety and security. In Switzerland, direct and early coordination with security authorities that had oversight authority over critical infrastructure assets enabled FOCA and industry coordination in a collaborative manner. Technology demonstrators Fit for purpose events, bringing together the stakeholders that must be convinced the technology is mature enough for implementation or further experiments can be extremely effective for facilitating early drone ope
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