Current affairs

Will Airspace Reform Finally Take Off?

The European Commission has set up a Performance Review Body (PRB) to oversee the implementation of the Single European Sky initiative. It’s another step toward integrating Europe’s skies—but is it enough to tackle chronic delays, system congestion, and the environmental challenges of aviation?

4 min read · 22 Dec 2025

Michalina Szpyrka ·

A new council takes flight

On September 12, the European Commission announced the composition of the newly established Performance Review Body (PRB), chaired by Koen Milis. The body also includes Maurizio Castelletti, Ana Gomez-Pineda Luna, Katarzyna Mary Mannion, Juan José Montero-Pascual, Patrick Souchu, and Józef Sultana. Members will serve five-year terms and support the Commission in assessing performance and air navigation service charges under the Single European Sky (SES).

The PRB will act as an independent advisory body, providing analysis and recommendations on the economic and operational efficiency of air navigation service providers. Its creation stems directly from Regulation (EU) 2024/2803, which defines the framework for SES implementation and introduces oversight mechanisms for monopolistic structures in the sector.

This reform builds on a process that began in 2004 when the EU first attempted to integrate European airspace. More than two decades later, fragmentation, bureaucratic inertia, and insufficient coordination among member states remain major hurdles.

The problem of a divided sky

Although the Single European Sky aims to simplify air traffic management (ATM), reality looks very different. European airspace is still a patchwork of national zones, each managed by different authorities with distinct procedures and infrastructure.

The result? Delays and bottlenecks that have cost airlines hundreds of millions of euros in peak years. These disruptions affect not only passenger punctuality but also the sector’s carbon footprint, as planes forced onto longer routes emit more CO₂.

The COVID-19 pandemic also exposed the system’s inflexibility when demand dropped suddenly and then surged again. The lack of a coordinated approach caused periodic overloads whose effects lingered long after travel restrictions were lifted.

Challenges: from drones to cybersecurity

Modern air traffic management is not just about capacity. New users—drones and autonomous vehicles—are entering European skies. Integrating them with traditional aviation requires investment in communication technology, radar systems, and cybersecurity measures.

Digitalizing ATM opens opportunities but also risks. As networks become more automated, a common European approach to digital security is increasingly necessary. Whether the PRB has the tools to support these processes—or will remain purely advisory—remains an open question.

SESAR and Eurocontrol: technology and management

A cornerstone of the reform is the SESAR project (Single European Sky ATM Research), a civil-military initiative to modernize Europe’s aviation infrastructure. SESAR covers both ground and airborne technologies, aiming to improve traffic flow and safety.

Eurocontrol is the second key pillar, acting as network manager until 2029. It oversees capacity management, route planning, and congestion response. Implementing regulations—such as the Network Functions Regulation (2019/123) and the Performance and Charging Scheme (2019/317)—define Eurocontrol’s operational role.

However, effectiveness is often limited by the lack of common standards and member states’ reluctance to cede control over their airspace.

SES2+ reform: progress or course correction?

Aware of the system’s shortcomings, the European Commission proposed SES2+ in 2020. Accompanying changes to the EASA Basic Regulation (2018) expanded the agency’s role to include performance oversight.

The reform aims to create a more flexible and scalable air navigation system while improving environmental and economic efficiency. A key feature is combining performance and cost oversight under the new PRB.

In theory, this could streamline decision-making. Yet questions remain about the PRB’s independence: since the Commission appoints members, can it truly assess the Commission’s performance? On the other hand, the absence of such a body for years led to opaque decision-making and weak enforcement of performance targets.

Economy and ecology in the same airspace

The SES performance and charging system functions as an economic regulator for monopolies, balancing service costs with quality. It also supports environmental transformation: shorter routes, lower fuel consumption, and fewer delays directly reduce emissions and operational costs.

However, real impact depends on data quality, member state cooperation, and consistent enforcement. Past experience shows not all countries are willing to fully align with EU requirements.

Technocratic vision or real change?

The PRB’s creation signals a new stage in European airspace integration. Yet institutional structures alone cannot fix systemic issues—from underinvestment in infrastructure to complex national interests.

The Single European Sky was meant to be modern, green, and integrated. But many countries still see it as a threat to their control over air traffic. If the PRB cannot overcome this mindset, it risks becoming just another advisory body that analyzes problems rather than solving them.

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Michalina Szpyrka

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