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CIVIL AVIATION
ORGANISATION
(ICAO)
FOUNDATION OF THE INTERNATIONAL CIVIL AVIATION
ORGANIZATION (ICAO)
The consequence of the studies initiated by the US and subsequent
consultations between the Major Allies was that the US government extended
an invitation to 55 States or authorities to attend, in November 1944, an
International Civil Aviation Conference in Chicago. Fifty-four States attended
this Conference end of which a Convention on International Civil Aviation
was signed by 52 States set up the permanent International Civil Aviation
Organization (ICAO) as a means to secure international co-operation an
highest possible degree of uniformity in regulations and standards, procedures
and organisation regarding civil aviation matters. At the same time the
International Services Transit Agreement and the International Air Transport
Agreement were signed.
The most important work accomplished by the Chicago Conference was in the
technical field because the Conference laid the foundation for a set of rules
and regulations regarding air navigation as a whole which brought safety in
flying a great step forward and paved the way for the application of a common
air navigation system throughout the world.
PICAO - North Atlantic Route Service Conference (Dublin, March 1946)
Because of the inevitable delays in the ratification of the Convention, the
Conference had signed an Interim Agreement, which foresaw the creation of a
Provisional International Organization of a technical and advisory nature with
the purpose of collaboration in the field of international civil aviation
(PICAO). This Organization was in operation from August 1945 to April 1947
when the permanent ICAO came into being. Its seat was in Montreal, Canada
and in 1947 the change from PICAO to ICAO was little more than a formality.
However, it also brought about the end of ICAN because, now that ICAO was
firmly established, the ICAN member States agreed to dissolve ICAN by
naming ICAO specifically as its successor Organization.
From the very assumption of activities of PICAO/ICAO, it was realised that
the work of the Secretariat, especially in the technical field, would have to
cover two major activities:
1. Those which covered generally applicable rules and regulations
concerning training and licensing of aeronautical personnel both in the
air and on the ground, communication systems and procedures, rules for
the air and air traffic control systems and practices, airworthiness
requirements for aircraft engaged in international air navigation as well
as their registration and identification, aeronautical meteorology and
maps and charts. For obvious reasons, these aspects required uniformity
on a world-wide scale if truly international air navigation was to
become a possibility. Activities in these fields had therefore to be
handled by a central agency, i.e. ICAO headquarters, if local deviations
or separate developments were to be avoided;
➢ CHICAGO CONVENTION
Convention on International Civil Aviation (also known as Chicago Convention),
was signed on 7 December 1944 by 52 States. Pending ratification of the
Convention by 26 States, the Provisional International Civil Aviation Organization
(PICAO) was established. It functioned from 6 June 1945 until 4 April 1947. By 5
March 1947 the 26th ratification was received. ICAO came into being on 4 April
1947. In October of the same year, ICAO became a specialized agency of the
United Nations linked to Economic and Social Council (ECOSOC).
The Convention on International Civil Aviation set forth the purpose of ICAO:
"WHEREAS the future development of international civil aviation can greatly help
to create and preserve friendship and understanding among the nations and peoples
of the world, yet its abuse can become a threat to the general security; and
WHEREAS it is desirable to avoid friction and to promote that co-operation
between nations and peoples upon which the peace of the world depends;
THEREFORE, the undersigned governments having agreed on certain principles
and arrangements in order that international civil aviation may be developed in a
safe and orderly manner and that international air transport services may be
established on the basis of equality of opportunity and operated soundly and
economically; Have accordingly concluded this Convention to that end."
In response to the invitation of the United States Government, representatives of 54
nations met at Chicago from November 1 to December 7, 1944, to "make
arrangements for the immediate establishment of provisional world air routes and
services" and "to set up an interim council to collect, record and study data
concerning international aviation and to make recommendations for its
improvement." The Conference was also invited to "discuss the principles and
methods to be followed in the adoption of a new aviation convention."
Exploratory conversations with a number of governments had already been
conducted bilaterally by the United States Government, and the conference met
with the texts of four draft proposals already prepared for its consideration by the
Governments of the United States of America, the United Kingdom, and Canada,
and by Australia and New Zealand jointly.
The Conference immediately set up, in addition to the normal working committees
(Executive, Nominations, Steering, Credentials, and Rules and Regulations
Committees), four technical committees with appropriate subcommittees. These
were as follows:
Multilateral Aviation Convention and International Aeronautical
Committee I.
Body
Committee II. Technical Standards and Procedures
Committee III. Provisional Air Routes
Committee IV. Interim Council
FUNCTIONS OF ICAO
The constitution of ICAO is the Convention on International Civil Aviation,
drawn up by a conference in Chicago in November and December 1944, and
to which each ICAO Contracting State is a party. According to the terms of
the Convention, the Organization is made up of an Assembly, a Council of
limited membership with various subordinate bodies and a Secretariat. The
chief officers are the President of the Council and the Secretary General.
The Assembly, composed of representatives from all Contracting States, is
the sovereign body of ICAO. It meets every three years, reviewing in detail
the work of the Organization and setting policy for the coming years. It also
votes a triennial budget.
The Council, the governing body which is elected by the Assembly for a
three-year term, is composed of 36 States. The Assembly chooses the
Council Member States under three headings: States of chief importance in
air transport, States which make the largest contribution to the provision of
facilities for air navigation, and States whose designation will ensure that all
major areas of the world are represented. As the governing body, the
Council gives continuing direction to the work of ICAO. It is in the Council
that Standards and Recommended Practices are adopted and incorporated as
Annexes to the Convention on International Civil Aviation. The Council is
assisted by the Air Navigation Commission (technical matters), the Air
Transport Committee (economic matters), the Committee on Joint Support
of Air Navigation Services and the Finance Committee.
The Secretariat, headed by a Secretary General, is divided into five main
divisions: the Air Navigation Bureau, the Air Transport Bureau, the
Technical Co-operation Bureau, the Legal Bureau, and the Bureau of
Administration and Services. In order that the work of the Secretariat shall
reflect a truly international approach, professional personnel are recruited on
a broad geographical basis.
ICAO works in close co-operation with other members of the United
Nations family such as the World Meteorological Organization, the
International Telecommunication Union, the Universal Postal Union, the
World Health Organization and the International Maritime Organization.
Non-governmental organizations which also participate in ICAO's work
include the International Air Transport Association, the Airports Council
International, the International Federation of Air Line Pilots' Associations,
and the International Council of Aircraft Owner and Pilot Associations.
ICAO STANDARDS AND RECOMMENDED PRACTICES - AN OVERVIEW
ICAO
Despite recently released safety statistics that, gratifyingly, indicate that the first six months of 2004
were among the safest ever for airlines, insufficient language proficiency, both in comprehension and
expression, continues to feature in incident and accident reports throughout the world of civil aviation.
Although there is a continuing downward trend in the fatal airline accident rate, the extent to which the
problem of miscommunication occurs in day-by-day operations is well known to all controllers and
pilots active in international operations. Miscommunication on account of poor language skills has, for
decades, “gone with the territory”, but it should not and need not.
The role of communication in safety, particularly between air traffic controllers and pilots, is critical. Just
how critical has been well established through research: “The most vulnerable link in our ... airspace
system is information transfer between air traffic controllers and pilots. Research conducted using the
(safety reporting system) confirms the problem. A review of 28,000 reports revealed that over 70% of the
problems cited were in information transfer; this issue continues to represent the largest category of
problems reported.” 1
After a number of major accident investigations had indicated a lack of proficiency in the English
language by flight crews and air traffic controllers as a causal factor, the 32 nd Assembly of ICAO
(Montreal, 1998) adopted a Resolution (A32-16) that called for “strengthening relevant provisions with a
view to obligating States to take steps to ensure that air traffic controllers and flight crews involved in
flight operations in airspace where the use of the English language is required, are proficient in
conducting and comprehending radiotelephony communications in the English language.” The
Resolution sought that the matter be addressed with a high level of priority and that it be approached
with a view to strengthening the language provisions of Annex 1 and Annex 10. In 1997, the Air
Navigation Commission (ANC) agreed to the establishment of a study group to assist the Secretariat in
progressing the task of developing language provisions.
The study group was named the Proficiency Requirements in Common English Study Group (PRICESG)
and comprised aviation and linguistic experts from Argentina, Canada, China, France, Russia, Ukraine,
the United Kingdom, the United States, the European Organization for the Safety of Air Navigation
(EUROCONTROL), the International Air Transport Association (IATA), the International Federation of
Air Traffic Controllers Associations (IFATCA), the International Federation of Airline Pilots
Associations (IFALPA) and the International Civil Aviation Organization (ICAO).
Early in its deliberations, the study group confirmed the relevance of some key statements made fifty
years ago, firstly, that “the universal availability of at least one medium of radiotelephone
communication is important both for safety and efficiency in international air navigation” and, secondly,
that “the lack of a language common to the aircrew and the ground station could lead to an accident”
(Annex 10, Volume II, Attachment B). At the same time, it was recognized that there was a need to
retain recourse to the language normally used by the station on the ground in the situation where both the
aircrew and the air traffic controllers were proficient in its use.
The PRICE study group recommended Standards for Annexes 1 and 10 including, importantly, that the
provision for the use of the language of the station on the ground, and English, be elevated from a
Recommended Practice to a Standard.
Further, the group established a minimum level of proficiency for all pilots and controllers engaged in
the conduct of international civil aviation operations. As a necessary adjunct to that, the group prescribed
certain testing requirements. The minimum required level of proficiency is embedded in a scale of
proficiencies described in terms of language “behaviours” that can serve the purposes
MAKING AN ICAO STANDARD
Development of SARPs
For technical SARPs, proposals are analysed first by the Air Navigation Commission, or
ANC. Depending on the nature of the proposal, the Commission may assign its review to a
specialized working group.
Meetings are, of course, the main vehicle for progress in the air navigation field, although
much of the preparatory work is accomplished by correspondence. It is through a variety of
meetings that most of the work is finalized and the necessary consensus reached.
In the development, a number of consultative mechanisms are used:
Air Navigation meetings are divisional-type meetings devoted to broad issues in the air
navigation fields. They can be either divisional meetings dealing with issues in one or more
related fields or air navigation conferences normally having a "theme" covering issues in
more than one field. All Contracting States are invited to participate in these meetings with
equal voice. Interested international organizations are invited to participate as observers.
ANC panels are technical groups of qualified experts formed by the ANC to advance, within
specified time frames, the solution of specialized problems which cannot be solved
adequately or expeditiously by the established facilities of the ANC and the Secretariat.
These experts act in their expert capacity and not as representatives of the nominators.
Air Navigation study groups are small groups of experts made available by States and
international organizations to assist the ICAO Secretariat, in a consultative capacity, in
advancing progress on technical tasks.
Council technical committees are established to deal with problems involving technical,
economic, social and legal aspects, for the resolution or advancement of which expertise is
required that is not available through the normal Council means, are also instrumental in
developing ICAO SARPs.
In summary, technical issues dealing with a specific subject and requiring detailed
examination are normally referred by the ANC to a panel of experts. Less complex issues
may be assigned to the Secretariat for further examination, perhaps with the assistance of an
air navigation study group.
Review of Draft SARPs
These various groups report back to the Air Navigation Commission in the form of a
technical proposal either for revisions to SARPs or for new SARPs, for preliminary review.
This review is normally limited to consideration of controversial issues which, in the opinion
of the Secretariat or the Commission, require examination before the recommendations are
circulated to States for comment.
The original recommendations for core SARPs along with any alternative proposals
developed by the Air Navigation Commission are submitted to Contracting States and
selected international organizations for comment. Detailed technical specifications for
complex systems are made available to States upon request and are submitted to a validation
process. States are normally given three months to comment on the proposals.
Standards developed by other recognized international organizations can also be referenced,
provided they have been subject to adequate verification and validation.
The comments of States and international organizations are analysed by the Secretariat and a
working paper detailing the comments and the Secretariat proposals for action is prepared.
The Commission undertakes the final review of the recommendations and establishes the
final texts of the proposed amendments to SARPs, PANS and associated attachments. The
amendments to Annexes recommended by the Commission are presented to the Council for
adoption under cover of a "Report to Council by the President of the Air Navigation
Commission".
Adoption/Publication of Annex Amendments
The Council reviews the proposals of the Air Navigation Commission and adopts the
amendment to the Annex if two-thirds of the members are in favour.
Within two weeks of the adoption of an Annex amendment by the Council, an interim
edition of the amendment, referred to as the "Green Edition", is dispatched to States with a
covering explanatory letter. This covering letter also gives the various dates associated with
the introduction of the amendment.
Policy prescribes that Contracting States be allowed three months to indicate disapproval of
adopted amendments to SARPs. A further period of one month is provided for preparation
and transit time, making the Effective Date approximately four months after adoption by
Council. There should be a period of four months between an amendment's Effective Date
and its Applicability Date. However, this can be longer or shorter as the situation requires.
The Notification Date is normally one month prior to the Applicability Date.
Provided a majority of States have not registered disapproval, the amendment will become
effective on the Effective Date.
On the Notification Date, which is one month prior to the Applicability Date, the States must
notify the Secretariat of any differences that will exist between their national regulations and
the provision of the Standard as amended. The reported differences are then published in
supplements to Annexes.
Immediately after the Effective Date, a letter is sent announcing that the amendment has
become effective and the Secretariat takes action to issue the "Blue Edition" which is the
form of the amendment suitable for incorporation in the Annex or PANS.
On the Applicability Date, States must implement the amendments unless, of course, they
have notified differences. To limit the frequency of Annex and PANS amendments, the
Council has established one common applicability date for each year. This date is chosen
from the schedule for the regulation of amendments to Aeronautical Information Regulation
and Control (AIRAC) for the month of November.
The result of this adoption procedure is that the new or amended Standards and
Recommended Practices become part of the relevant Annex.
It takes on average 2 years from the Preliminary Review by the ANC to the applicability
date. Although this process may seem lengthy at first glance, it provides for repeated
consultation and extensive participation of States and international organizations in
producing a consensus based on logic and experience.
Cooperation and consensus have thus provided international aviation with the vital
infrastructure for safe and efficient air transport. The third "C", compliance, brings this
comprehensive regulatory system to life.
Approval/Publication of other Annex Material and Procedures
Attachments to Annexes, although they are developed in the same manner as Standards and
Recommended Practices, are approved by Council rather than adopted.
Regional Supplementary Procedures, because of their regional application, do not have the
same line of development as the previously mentioned amendments; they also must be
approved by Council.
The proposed amendments to PANS are approved by the Air Navigation Commission, under
power delegated to it by the Council, subject to the approval by the President of the Council
after their circulation to the Representatives of the Council for comment.
Manuals and circulars are published under authority of the Secretary General in accordance
with principles and policies approved by Council.
Implementation of SARPs/Universal Safety Oversight Audit Programme
Under the Convention on International Civil Aviation, the implementation of SARPs lies
with Contracting States. To help them in the area of safety, ICAO established in 1999 a
Universal Safety Oversight Audit Programme. The Programme consists of regular,
mandatory, systematic and harmonized safety audits carried out by ICAO in all Contracting
States.
The objective is to promote global aviation safety by determining the status of
implementation of relevant ICAO SARPs, associated procedures and safety-related
practices. The audits are conducted within the context of critical elements of a State's safety
oversight system. These include the appropriate legislative and regulatory framework; a
sound organizational structure; technical guidance; qualified personnel; licensing and
certification procedures; continued surveillance and the resolution of identified safety
concerns.
Since its inception, the Programme has proved effective in identifying safety concerns in the
safety-related fields under its scope, while providing recommendations for their resolution.
The Programme is being gradually expanded to include aerodromes, air traffic services,
aircraft accident and incident investigation and other safety-related fields.
While providing additional assistance in the form of regional safety oversight seminars and
workshops, the programme also provides ICAO with valuable feedback to improve existing
SARPs and create new ones.
The experience gained with the safety oversight programme was successfully adapted to
aviation security. In 2002, the Universal Security Audit Programme was launched to
similarly help States identify deficiencies in the implementation of security-related SARPs.
The format may in the future be applied to other areas of civil aviation.
Yes, cooperation, consensus, compliance and an unfailing commitment to the on-going
implementation of SARPs have made it possible to create a global aviation system that has
evolved into the safest mode of mass transportation ever conceived. The flight crew of
today's commercial aircraft, as their predecessors and those that will follow, can count on a
standardized aviation infrastructure wherever they fly in the world.
ICAO is proud of this unique achievement, based on the singled-minded pursuit of working
with its Contracting States and all other partners of the international civil aviation
community in providing the citizens of the world with an aviation system that is safe and
reliable, now and for years to come.
In 1957, the ICAO Panel of Teletypewriter Specialists devised the principles for
the formulation and assignment of four-letter location indicators for geographic
regions throughout the world, and the addresses of centers in charge of flight
information regions (FIRs) and/or upper flight information regions (UIRs).
The world is divided into non-overlapping AFS routing areas that are assigned a
separate identifying letter. The United States was assigned Ê - although we were
unable to confirm this - apparendy because the main telecommunications switching
center was in Kansas City. Canada got Ñ for obvious reasons and the old Union of
Soviet Socialist Republics got U for reasons that are just as obvious. P for Pacific
makes sense, too, and that's why Alaska and Hawaii locator prefixes are P (PANC
for Anchorage and PHNL for Honolulu, for example).
The accompanying map shows the prefixes for various parts of the world. Other
than the examples above, there does not appear to have been any reason why a
specific letter was assigned to a specific region.
You will note that the boundaries of these areas do not necessarily coincide with
the boundaries of any state, territory or FIR but were decided only in
consider¬ation of the requirements of the AFS to assist message traffic-routing
processes to the maximum possible extent.
The first letter is assigned by ICAO to the AFS routing area within which the
location is situated. The second letter is assigned by ICAO to the state or territory
in which the communication center is situated. The third and fourth letters are
assigned by the state or territory supervised by ICAO by checking their conformity
with the principles for assignment in the ICAO Location Indicators document and
registering the indicator. Incidentally, some four-letter location indicators have an
asterisk attached, which indicates that the site cannot be addressed over the AFTN.
Interestingly, NNN should not be used as the second, third and fourth letters of a
location indicator, nor should ZCZC, because these sequences are used as
switching signals in the AFS automated relay stations, and their presence in these
parts of the message would cause malfunctioning.
The E for parts of Europe covers several countries and/or territories. Therefore, the
location identifier starts with two letters, EG for England, ES for Sweden, ED for
Germany, and EH for the Netherlands. In the L area, there is LF for France, LO for
Austria and LI for Italy, and so on. Canada has a two-letter introduction, too: CY.
This was all worked out in conjunction with the International Telecommunications
Union (ITU). Like ICAO, the ITU is a specialized agency of the United Nations,
headquartered in Geneva, Switzerland.
Among its many other functions, the ITU manages the worldwide radio-frequency
spectrum, so the ITU had a role to play in establishing the basis for the location
indicators, which, after all, identify primarily telecommunication stations. (While
ICAO and the ITU work closely on telecommunications matters, ICAO has to
sometimes fight hard to maintain, or expand, the number of radio frequencies
assigned to aviation.)
While in some cases, the four-letter ICAO location identifier closely matches the
three-letter identifier assigned by the International Air Transport Association
(IATA), there are no requirements to do so. The ICAO identifier is designed to
send a message to a station of the AFS; the IATA identifier is designed to send
your baggage to an airport. Hence the destination on your baggage tag reads LHR
for London Heathrow and the flight plan in the cockpit reads EGLL. (The
Heathrow VOR isn't identified by LHR, either; it's LON, although the NDB is
HRW for Heathrow.)
If you're flying internationally, you have to use the ICAO four-letter codes in flight
planning. One wrong first letter can indicate a completely different destination,
although the mistake would be picked up by flight plan checking. If, for instance,
you're heading for New Orleans Naval Air Station on an international flight, you
would file KNBG. But if you file FNBG, you'll be expected at the 17th of
November Airport in Benguela, Angola, Africa.
STRATEGIC OBJECTIVES OF ICAO FOR 2005-2010
ICAO works to achieve its vision of safe, secure and sustainable development of
civil aviation
through cooperation amongst its member States.
To implement this vision, the Organization has established the following Strategic
Objectives for the
period 2005-2010:
1. Identify and monitor existing types of safety risks to civil aviation and develop
and implement an effective and relevant global response to emerging risks.
2. Ensure the timely implementation of ICAO provisions by continuously
monitoring the progress toward compliance by States.
3. Conduct aviation safety oversight audits to identify deficiencies and encourage
their resolution by States.
4. Develop global remedial plans that target the root causes of deficiencies.
5. Assist States to resolve deficiencies through regional remedial plans and the
establishment of safety oversight organizations at the regional or sub-regional
level.
6. Encourage the exchange of information between States to promote mutual
confidence in the level of aviation safety between States and accelerate the
improvement of safety oversight.
7. Promote the timely resolution of safety-critical items identified by regional
Planning and
Implementation Groups (PIRGs).
8. Support the implementation of safety management systems across all safety-
related disciplines in all States.
9. Assist States to improve safety through technical cooperation programmes and
by making critical needs known to donors and financial organizations.
Enhance the security of global civil aviation through the following measures:
1. Identify and monitor existing types of security threats to civil aviation and
develop and
implement an effective global and relevant response to emerging threats.
2. Ensure the timely implementation of ICAO provisions by continuously
monitoring the progress toward compliance by States.
3. Conduct aviation security audits to identify deficiencies and encourage their
resolution by States.
4. Develop, adopt and promote new or amended measures to improve security for
air travelers worldwide while promoting efficient border crossing procedures.
5. Develop and maintain aviation security training packages and e-learning.
6. Encourage the exchange of information between States to promote mutual
confidence in the level of aviation security between States.
7. Assist States in the training of all categories of personnel involved in
implementing aviation
security measures and strategies and, where appropriate, the certification of such
personnel.
8. Assist States in addressing security related deficiencies through the aviation
security mechanism
and technical cooperation programmes.
Enhance the efficiency of aviation operations by addressing issues that limit the
efficient development of
global civil aviation through the following measures:
1. Develop, coordinate and implement air navigation plans that reduce operational
unit costs,
facilitate increased traffic (including persons and goods), and optimize the use of
existing and
emerging technologies.
2. Study trends, coordinate planning and develop guidance for States that supports
the sustainable
development of international civil aviation.
3. Develop guidance, facilitate and assist States in the process of liberalizing the
economic
regulation of international air transport, with appropriate safeguards.
4. Assist States to improve efficiency of aviation operations through technical
cooperation
programmes.
Identify and manage threats to the continuity of air navigation through the
following measures:
Maintain, develop and update international air law in light of evolving needs of the
international civil aviation
community by the following measures:
To implement its Strategic Objectives, the Organization will take the necessary
steps to: