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SORA 2.5: The New Version of the European Methodology for UAS Operations in the Specific Category
With the publication of ED Decision 2025/018/R, EASA has officially incorporated SORA 2.5 into the AMC and GM to Regulation (EU) 2019/947. This means that, from its entry into force, SORA 2.5 becomes the official acceptable means of compliance to be used by competent authorities when assessing authorisation requests in the Specific Category.
SORA 2.5 has been designed to streamline the authorisation process and enhance harmonisation among EU Member States. The new version provides a clearer structure, a more precise distinction between mandatory requirements and guidance material, and reduces the margin of interpretation for national authorities. It also lowers the documentation burden for many VLOS operations classified as SAIL II, which now require less technical evidence, and introduces greater flexibility regarding certain requirements related to the number of UAS operating within the operational volume.
Application and Transition in Member States
In Spain, the national aviation authority (AESA) will accept applications based on SORA 2.0 until 17 November 2025, and the authorisations granted during this period will have a maximum validity of one year. After this date, all applications must comply with the SORA 2.5 methodology. Other Member States may set different transition deadlines, so operators should always consult the guidance provided by their respective national authorities.
Comparison Between SORA 2.0 and SORA 2.5
SORA 2.5 maintains the overall logic of version 2.0 but introduces significant changes that directly affect how operators must prepare their applications. The updates focus on improving process clarity, ensuring proportionality in the analysis, and reducing divergent interpretations among Member States.
1. Methodology Structure
SORA 2.5 features a clearer and more coherent structure. Requirements are now separated from guidance material, the process has been reorganised into two phases (risk definition and CSP development), and reduced to ten steps, with containment assessed before the OSOs. This allows operators to prepare a logical and consistent submission without reworking parts of the assessment.
2. Operational Information
The former “CONOPS” is replaced by Detailed Operational Information, a more straightforward format supported by official templates included in Annex A. This helps operators present their operations in a consistent and easily understandable way for any competent authority.
3. Ground Risk Evaluation (iGRC / GRC)
SORA 2.0 relied on more qualitative criteria to determine ground risk, using general estimates of population density and fixed parameters that did not always reflect the UAS’s real characteristics. Version 2.5 introduces a quantitative approach, including clearer definitions of population density, critical area calculations using the Annex F equation, and more precise criteria for assigning risk classes. It also incorporates automatic classifications, such as drones under 250 g and below 25 m/s, which are directly assigned GRC 1. These enhancements provide more consistent results and, in many cases, reduce the final GRC of an operation.
4. Mitigations M1 and M2
In SORA 2.0, ground risk mitigations were less clearly defined, creating uncertainty about their proper application. SORA 2.5 reorganises them into clearer categories, such as M1A (sheltering), M1B (operational restrictions), and M1C (ground observation), in addition to M2. Certain lightweight UAS may now satisfy M2 without additional testing, reducing the documentation burden.
5. Air Risk (ARC)
The air risk assessment remains largely unchanged. SORA 2.5 retains the ARC model but provides clearer terminology and a more precise explanation of strategic mitigations such as VLOS operations. A substantive revision of air risk is foreseen for future versions.
6. Containment
Containment is now defined with greater precision, assessed earlier in the process, and structured into low, medium, and high levels. The treatment of adjacent areas and loss-of-control scenarios is clarified, reducing common discrepancies between authorities.
7. Operational Safety Objectives (OSO)
The OSOs remain in SORA 2.5 but have been reformulated to better delineate the responsibilities of the operator, the UAS designer, and third parties. The explanation of integrity and assurance levels is clearer, making it easier to justify the required robustness according to the assigned SAIL.
8. Comprehensive Safety Portfolio (CSP)
The CSP is now presented using official templates and a more defined structure, improving consistency in submissions and reducing the number of clarification requests received from authorities.
What SORA 2.5 Means for Operators
Overall, SORA 2.5 provides a more streamlined, predictable, and sector-aligned process, enabling operators to obtain their authorisations more efficiently and with less regulatory uncertainty.
SORA 2.5 became immediately applicable across the European Union on 29 September 2025, following the publication of ED Decision 2025/018/R. However, Member States may establish transition periods during which they still accept applications based on SORA 2.0.
SORA 2.5 introduces a clearer structure, separates requirements from guidance, reduces the number of steps to ten, and incorporates a more quantitative approach to ground risk assessment. It also provides official templates, clearer mitigation categories, improved containment definitions, and reduces documentation requirements for many SAIL II operations.
SORA 2.5 streamlines the authorisation process, reduces regulatory uncertainty, and improves harmonisation among EU Member States. Operators can expect clearer requirements, fewer interpretation issues with authorities, and reduced technical documentation for many VLOS operations, enabling faster and more predictable authorisation outcomes.
SORA 2.5 introduces greater flexibility regarding operations involving multiple UAS within the same operational volume. Some requirements have been adapted to reflect practical use cases, reducing the documentation burden in comparison with SORA 2.0.
Yes. SORA 2.5 introduces a more quantitative approach to ground risk, including clearer definitions of population density, critical area calculations using the Annex F equation, and automatic classifications for certain lightweight UAS. For example, drones under 250 g flying below 25 m/s are automatically assigned GRC 1, which may reduce the overall risk level of an operation.