Good morning and thank you, Nancy, for the kind introduction.

We are here this week to talk about the newest entrant into our airspace, the remotely piloted aircraft, as it is called in Montreal. Or unmanned aircraft systems, or UAS, as we call it in the U.S. regulatory system. Or drones, as they are widely known in the general public.

But whatever we choose to call them, these aircraft are rapidly changing the face of aviation. They are being already deployed around the world in a variety of commercial activities, from agriculture, pipeline inspection, oil exploration, wildlife monitoring, movie making, photography, and construction. The list seems endless.

This is not a theoretical exercise: these aircraft exist now. And as with any new technology, it is impossible to predict what commercial uses may lie ahead. In fact, that is not our role. Our role is to build a regulatory structure that allows their introduction into the airspace in a fashion that is both safe and efficient. We need to ensure that we maintain the same levels of safety that we have achieved in the current system, while allowing this rapidly developing technology to flourish and integrate into the airspace.

This is the balance we must strike, and we are all approaching the task somewhat differently – from what we call these aircraft, to how we categorize them. But at the end of the day, we have to come up with a harmonized system, which is where ICAO plays such an important role.

This morning I would like to talk a bit about how the FAA is approaching the integration of UAS into our airspace, and then talk more about the importance of harmonization.

The U.S. Approach

In looking at the U.S. regulatory approach, we began with a comprehensive road map, which we published two years ago and which constitutes our plan to safely integrate unmanned aircraft. This roadmap addresses the policies, the regulations, the technologies, and the procedures that we will need to integrate unmanned aircraft on a routine basis.

In addition, the Department of Transportation released a Comprehensive Plan that details the multi-agency approach to the safe and timely integration of unmanned aircraft. That plan establishes goals to integrate both small and larger aircraft.

Effectively, the U.S. approach divides UAS into two categories: small UAS, meaning under 55 pounds, or 25 kilograms, which operate at low altitudes, and large UAS, which would operate in busier controlled airspace. We are also considering the possibility of a third category – devices that are less than two kilos.

Small UAS

In February we issued a proposed rule for regulations that would govern small UAS, and that rule is now available for public comment. The proposed rule is designed to create a flexible framework that balances our goal of accommodating innovation in the industry, while ensuring that we protect other aircraft by maintaining separation, and that we protect people and property on the ground.

I’d like to share some of the highlights of our proposed rule, which is similar to the framework that EASA has proposed for what it calls the low risk or “Open” category of unmanned aircraft.

The FAA’s proposed rule accommodates aircraft operating up to 500 feet above ground level, and restricts operations near airports and other restricted airspace unless air traffic control gives permission. This provides a buffer between manned and unmanned aircraft.

This proposal would allow operations during daylight hours, at speeds of up to 100 mph, and would require the operator to be able to see the unmanned aircraft at all times.

We propose that operators obtain a newly created operator’s certificate by passing a knowledge test focusing on the rules of the air, but they do not need to obtain a traditional pilot’s license. The operator would need to renew that certificate every two years by passing a written proficiency test.

These small unmanned aircraft pose the least amount of risk to our airspace and therefore, consistent with our risk-based approach, the proposed rule would allow these aircraft to operate without the need for an airworthiness certificate. A traditional certificate can take three to five years to obtain. An unmanned aircraft could very well be outdated by the time it obtained a certificate following the traditional approach. Therefore, we have proposed that no airworthiness certificate is needed. Rather, these aircraft must operate within the specified parameters to maintain safety.

In addition to mitigating risk, the rule opens the door to many potential benefits. The small unmanned aircraft may be used to conduct higher risk activities, such as inspecting utility towers, antennas, bridges, power lines and pipelines in hilly or mountainous terrain. Small unmanned aircraft could also support wildlife conservation, or be used to monitor crops. They can help with search and rescue, shoot scenes for films and television or take aerial photographs for real estate purposes. In many cases unmanned aircraft can do these tasks with less risk than manned aircraft that might have to fly in dangerous terrain or in bad weather. And, in some cases, an unmanned aircraft could conduct inspections more safely than a worker who might need to climb a tower, or repel down the side of a building.

The proposed rule is also relevant for what is not covered. The rule does not affect those who want to fly model aircraft as a hobby or for recreation. They already can do that – they simply need to fly according to our model aircraft guidelines.

As part of this rule, we are also asking the question of whether there should be an additional category and special rules for “micro unmanned aircraft” – those that weigh less than 4.4 pounds, or 2 kilograms. We will consider public comment on this issue.

Finally, the rule does not address privacy. Rather, President Obama last month issued a memorandum on privacy that will guide how the U.S. Federal Government uses unmanned aircraft in our domestic airspace. The presidential memorandum also outlines how the Administration will engage with industry to develop best practices to protect the privacy of the public.

Rulemaking of course takes time, but meanwhile we have moved forward with approving the first commercial use of unmanned aircraft in the Arctic. In both cases, the FAA issued a restricted type certificate for these unmanned aircraft, which means we deemed them airworthy for restricted operations.

• Our first commercial approval was in 2013 for Conoco-Phillips to use the InSitu Scan Eagle for marine mammal and ice surveys.
• And last summer we approved our first commercial use of an unmanned aircraft over land. British Petroleum began using the Puma AE to survey its pipelines, roads, and equipment at Prudhoe Bay, Alaska, which is the largest oilfield in the United States.

More recently, we have provided exemptions for applications to operate small unmanned aircraft in the continental United States.

• We have granted almost 70 exemptions for tasks such as shooting video for movies, real estate photography, railroad inspections, insurance disaster claims and agriculture. We are increasing our efforts to authorize more commercial uses, and are also working to streamline this approval process.
• And last week, we issued an experimental airworthiness certificate to Amazon Logistics for an aircraft design they are working on for research and development and crew training.

Large UAS

With respect to large unmanned aircraft, different challenges remain as we look at the technology necessary to integrate those aircraft into our busier controlled airspace. There are operational and regulatory challenges that still must be met:

• Similar to the “see and avoid” obligation of pilots, how do we ensure adequate detect and avoid capabilities for unmanned aircraft?
• How do we mitigate risk and ensure recovery from a loss of link with the operator?
• What specific training programs and procedures will be necessary for pilots of large unmanned aircraft?

We have a large body of work ongoing with other government agencies and researchers to find solutions to these challenges. The FAA, NASA and industry are collaborating on research and have successfully demonstrated a proof of concept for an airborne detect and avoid system. This was a major milestone in the development of a collision avoidance system for unmanned aircraft.

We are also working with universities, states and airports across the country for research on unmanned aircraft. Last year, we opened six research test sites, in conjunction with approximately 150 members representing research institutes, private industry, and partners in the U.S., Canada, Norway and Iceland.

Harmonization

Like other jurisdictions, we are working to integrate these aircraft into our airspace in a way that maintains our level of safety and allows innovation to continue with this important new technology. And as we do that, it is important that we all work together to ensure that our efforts are harmonized.

The United States will continue to support ICAO and work together to create the safe integration of unmanned aircraft. As we all learn more about unmanned flight, we will be well served to share that knowledge and harmonize standards, as we have done for so long with manned aircraft.

The FAA is working with 25 other countries that are part of the Joint Authorities for Rulemaking on Unmanned Systems, which was founded in 2007. The United States co-chairs this organization, which is working toward a single set of technical, safety and operational requirements for the certification and safe integration of unmanned aircraft.

Also, the FAA is committed to ensuring that experts from several fields will support the new ICAO Remotely Piloted Aircraft Systems Panel. This panel, which represents more than 30 member states and international organizations, will look at issues like airworthiness, operator certification, licensing of remote pilots and other operational issues. They will work through many of the same topics that we’re discussing at this symposium this week, and focus on creating standards and recommended practices for adoption by the ICAO Council in 2018.

This is the start of a years-long process for creating a worldwide framework for integration of unmanned aircraft. We support ICAO as the forum and process where we can achieve international harmonization.

ICAO Manual

Finally, I would like to take the opportunity to congratulate all who were involved with achieving a significant milestone in harmonization with the publication this month of ICAO’s Manual on Remotely Piloted Aircraft Systems. A significant amount of work from many experts in many fields contributed to this manual. It includes input from operators, manufacturers, inspectors, pilots, accident investigators, air traffic representatives and many others.

The manual provides guidance on technical and operational issues applicable to the integration of UAS in non-segregated airspace and airports. This is an important achievement.

Conclusion

In closing, all of us are trying to harness the potential of this new technology. The applications are limitless, and our job is to ensure that innovation can happen, while at the same time, ensuring that we maintain a safe system. I look forward to hearing the ideas of my colleagues here today. I also look forward to working with all of you to create the kind of regulatory framework that will allow unmanned aircraft to reach their full potential and operate seamlessly around the world.

Thank you very much.