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A National Aviation Policy For Ireland
August 2015
A National Aviation Policy For Ireland
Contents MINISTER’S FOREWORD 4 INTRODUCTION 6 3 1. THE INTERNATIONAL CONTEXT 9
2. SAFETY, SECURITY AND SUSTAINABILITY 13
2.1 Aviation Safety 14 2.2 Aviation Security 18 2.3 Sustainability, Climate Change and the Environment 20
3. CONNECTIVITY AND AVIATION SERVICES 23
3.1 Access to the Air Transport Market 24 3.2 Irish Airlines 27 3.3 Air Cargo Services 28 3.4 US Preclearance Service 31 3.5 Air Traffic Management (ATM) 33
4. AIRPORTS 35
4.1 The Irish Airport Network 36 4.2 Regional Airports 39 4.3 State Airports 42 4.4 Ownership and Operation of State Airports 45 4.5 The Future Capacity Needs of the State Airports 46 4.6 Passenger Facilitation 50 4.7 Visas 52 5. REGULATION AND GOVERNANCE 55
5.1 Economic Regulation 56 5.2 Aviation Regulatory Bodies 58 5.3 Corporate Governance 60 5.4 Evolving Business and Employment Models in Aviation 62
6. AIRCRAFT LEASING, FINANCING AND MRO 65
Taxation 67 Aviation Finance 68 Ireland as an Aviation Transitioning Centre 68 Aviation Business Development - International Aviation Services Centre (IASC) 68 Article 83bis Arrangements 69
7. GENERAL AVIATION, EDUCATION AND TRAINING 71
7.1 Corporate Aviation 72 7.2 Flight Training and Third Level Education 73 7.3 Maintenance Licensing 75 7.4 Pilot Licensing 76 7.5 Recreational and Sport Flying 77
8. STATISTICS 79
9. CONSULTATION 83
Appendix 1 88 Appendix 2 92 Appendix 3 94 A National Aviation Policy For Ireland Minister’s Foreword
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As an island nation, aviation plays a crucial role in Ireland’s economy. We are far more dependent on aviation than many of our continental neighbours and trading partners. We depend on aviation for our links with the rest of the world both socially and economically so the Government considers it important to provide an appropriate policy framework within which the sector can continue to develop and grow to underpin economic recovery and development.
It is more than two decades since a formal statement of Government objectives for Irish aviation was published. There have been major developments in global aviation since then. Significant market Minister’s Foreword Minister’s liberalisation has taken place with access being opened up in many regions of the world and many airlines and airports have moved out of State ownership. There have been significant engineering and technological developments which have contributed to an expansion of aviation activity at a global level. The industry in Ireland has played its part in those developments and can continue to play a significant part in the development of global aviation in the future with an appropriate national policy framework in place to facilitate this.
The process of developing a National Aviation Policy was launched in December 2012 with a stakeholder conference in the Convention Centre Dublin. More than 400 participants attended from the aviation industry and from many other associated sectors. Taking account of the views expressed by participants at the conference, my Department published an Issues Paper in February 2013 and invited comments on the main themes and questions covered in the paper. A total of 74 submissions were received. These were analysed and a draft National Aviation Policy was published in May 2014 for further comment. Again more than 70 submissions were received and these were taken into account in finalising this policy document.
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At the time the process was launched, the aviation industry globally was suffering from the crippling effects of the economic downturn. The resilience of the sector has once again proven itself as evidence of recovery across all segments of the industry began to emerge in 2013. This positive trend has continued through 2014 and to date in 2015.
The extensive input received from stakeholders, including experiences in the industry over these past few difficult years, has helped to shape what I believe to be a robust Policy that will provide a positive pathway for the development and growth of the aviation sector in Ireland, creating jobs both directly and indirectly. It will also create an environment that will encourage the industry to increase connectivity to and from Ireland Foreword Minister’s for the benefit of the travelling public, Irish tourism and Irish business.
I look forward to working with the industry and all stakeholders to deliver on the actions set out in this National Aviation Policy.
Paschal Donohoe T.D. Minister for Transport, Tourism and Sport
A National Aviation Policy For Ireland 6 Introduction 6 Introduction aviation industry to build on its existing strong reputation to compete effectively in Irish effectively compete the to reputation strong enable existing its to on build pathway to industry a aviation plot Policy Aviation National this in out set and actions policies The aviation. Irish for challenges as opportunities many as presents picture global this and aviation in reputation and tradition strong very a has Ireland with future forecast demandandgrowth centred in Asia. challenges as the centre of gravity in global aviation shifts eastwards and southwards significant face to continue will industry European However,the 2015. in continuing Revenue Passenger Kilometres) of 5.9% compared to 2013 and this positive trend is in (measured demand in increase an showed 2014 in traffic passenger global that reported TransportAssociation Air International The 2014. in airports togrowth Irish most at returned numbers Passenger period. this their during grew significantly some business indeed and well downturn the weathered airlines Irish affected. was Europeprofitability badly airport and airline with downturn global the by hit badly particularly in industry The shocks. to particularly susceptible remains a and is industry Aviation cyclical the immune. across been not on aviation has Ireland in industry impact the and significant world a had downturn economic global The inIreland.among airports the decision to separate Shannon Airport from the daa group to and increase 2013 competition in tax travel air the of suspension the include sector the to commitment benefit of the wider economy. Recent measures that demonstrate the Government’s the for potential its maximise can industry the which in environment an creating to committed is and Ireland to aviation of importance the recognises Government The and 180,000jobs. GDP to contribution €5.3bn further a for accounts aviation, on dependent heavily is jobs 26,000 supports which industry, Ireland’stourism It chain. supply the in 16,000 further a aviation. and directly in employed people by spending associated aviation, from directly €1.9bn Ireland with the rest of the world. It contributes it is essential for our tourism industry, for our trading relationships and for connecting The aviation sector is a major contributor to Ireland’s economy. As an island economy, A National Aviation Policy For Ireland 1.3bn through the supply chain and chain supply the through €1.3bn €4.1bn directly to our GDP comprising 0.9bn from €0.9bn Specifically, theprincipalgoalsofthisNationalAviationPolicyare: increased servicestoandfrom Ireland Irishtourismandbusiness. tosupport this growing global market place. They also aim to create the conditions to encourage l l l l l l l l l l In particular, theNationalAviationPolicycommitsto: Aviation PolicyassetoutinthefollowingChapters. National this under taken be to actions the of list composite a contains 1 Appendix piiig h oeain f h Iih ipr ntok o nue maximum connectivity totherest ensure oftheworld; to network airport Irish the of operation the Optimising Irish the market; in operating airlines among competition of level high a Ensuring and routes new of development tonewandemergingservices, particularly markets; the encourage to conditions Creating that safetyregulation isrobust, andefficient; effective ensuring and aviation Irish in priority one number the as safety Maintaining growth anddevelopment. economic Ireland’s to sector aviation the of contribution the maximise To and positionIreland asarecognised globalleaderinaviation;and creationjob support ToIrelandto in enterprise aviation growthof the foster access responsive totheneedsofbusiness,tourismandconsumers; competitive and secure safe, ensuring by ToIreland’sconnectivity enhance broader aviationindustry. Maintaining a safe and innovative general aviation sector to support Ireland’s to maintain sectors finance Ireland’s leadingglobalpositioninthesespheres; and aviation and leasing aircraft the Supporting trafficgrowth; in aviation infrastructure tosupport atIrishairports investment continued facilitates regulation economic that and practice Ensuring that the regulatory framework for aviation reflects best international A National Aviation Policy For Ireland 7 7 Introduction Introduction 8 I T Chapter ONE A N O I T A N R E T N E H C l E T N O A National Aviation Policy For Ireland x t 9 Introduction The International Context
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BACKGROUND Single European Sky (SES), particularly in its role as Network Manager. It also has Aviation is an inherently international sector several other important roles including so aviation policy and regulation is to a large support for the implementation of SES at extent determined in an international context pan-European level, addressing civil-military although States do still have competence to interfacing aspects of SES, as well as determine national policy priorities within dealing with other specific aspects such this overarching international context. The as the collection of route charges. Ireland system of rules governing the operation of is a member of the European Civil Aviation international air transport dates back to the Conference (ECAC) which promotes 1940s when the Convention on International understanding of policy among its member The International Context International The Civil Aviation (commonly referred to as the States and other regions in the world within Chicago Convention) was adopted. The the global ICAO framework. Convention and its nineteen detailed annexes remain the rule-book for international air Given this global context, many of the transport. The International Civil Aviation decisions that affect aviation in Ireland are Organisation (ICAO) was established under not wholly within national control. However, the Convention. it emphasises the need for Ireland to participate actively in the development of The European Union (EU) also has policy and regulation at an international level. competence in relation to air transport and Ireland is a significant player in international the evolving EU regulatory agenda now aviation. We have a strategically important extends to all areas of aviation. role in air traffic management on the North Atlantic. We are the pre-eminent global Other EU and international organisations centre for aircraft leasing with almost also have an important role to play in the 4,000 of the 22,000 aircraft currently in development of the EU and international operation around the world owned by Irish regulatory agendas in aviation. The based lessors. We are the licensing State of European Aviation Safety Agency (EASA), the largest intra-community carrier, Ryanair. established in 2004, is now at the heart It is therefore critical that Ireland influences of the EU aviation safety system with developments at EU level and in ICAO to responsibility for proposing and monitoring ensure that Irish aviation interests are the implementation of EU safety rules and defended and advanced in the development regulations. EUROCONTROL also plays an of the international and EU regulatory important role in the development of the frameworks.
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ISSUES affecting aviation at national, EU and international levels. The intention is that the As a member State of the EU, Ireland is National Aviation Development Forum will a member of the Council of the European consider important EU legislative proposals Union and inputs to all decisions and and identify the most appropriate means of legislation adopted at EU level in relation providing feedback to the EU Commission to aviation. EU legislation on aviation is on relevant stakeholder consultation subject to ‘co-decision’, i.e. it is jointly processes. decided by the Council and the European Parliament. We can, therefore, also exert In ICAO, the governing body, the ICAO influence through our representatives in Council has 36 seats while there are more the European Parliament and by active than 190 contracting States. For the Context International The engagement with the European Commission purposes of securing representation on the at the preparatory stages of the legislative ICAO Council and its advisory committee, process. It is in this latter process that there the Air Navigation Commission, Ireland is scope for improving how we engage and joined with six other European States in influence the development of the regulatory the mid - 1990s to form the ABIS Group. agenda. The members of the ABIS group ‘rotate’ the opportunity for representation on the ICAO The European Commission has recently Council and Air Navigation Commission announced its intention to develop an (ANC) amongst its members. EU Aviation Package to improve the competitiveness of the EU aviation sector As part of this rotation process, Ireland and it will be important for Ireland to input secured election to the ICAO Council for to the development of this Strategy at an the period 2001 to 2004 and we will again early stage to ensure that the interests of have the opportunity to present a candidate Irish aviation are promoted and protected. for election to the Council in 2016 for the period 2016 to 2019. Ireland currently has In Chapter 9, Consultation, the Department a representative on the ANC and previously outlines its plans for the establishment of we had a representative on the ANC during a National Aviation Development Forum the period 1997 to 2000. These positions to provide an opportunity for engagement provide Ireland with an opportunity to shape with industry and to coordinate the efforts the international regulatory agenda and to of all Departments and State agencies in raise the profile of Irish aviation on a global the development of policy and legislation stage.
A National Aviation Policy For Ireland The International Context 12 1.3 1.2 1.1 ACTIONS sector. aviation the in developments influence to fora international in actively participate will Ireland POLICY POSITION A National Aviation Policy For Ireland the developmentofproposed measures. Ireland willinputtotheproposed EUAviationPackageatanearlystagetoinfluence legislative andregulatory agendas. Aviation DevelopmentForum(seeChapter9)onthedevelopmentofinternational ofTransport,The Department Tourism willconsultwiththeNational andSport Council fortheperiod2016-2019. Ireland, oftheABISGroup, aspart willseeknominationforelectiontotheICAO D N A T E F A S Chapter tw
I B A N I A T S U S ,y, T I R U C E S l y o T I A National Aviation Policy For Ireland y 13 Introduction Safety, Security and Sustainability 14
2.1 Aviation Safety Body (PRB) published its Annual Monitoring Report on safety which ranked Ireland first BACKGROUND out of 29 European States for Effectiveness of Safety Management (EoSM) - a key metric Safety and public confidence in the safety of for the quality of safety regulatory oversight air travel underpin all other objectives in this of air navigation services. sector. Maintaining the highest standards of safety in Irish aviation continues to be the A fundamental requirement of any aviation priority objective of Irish aviation policy. safety oversight system is the obligation to report occurrences that may affect The Irish Aviation Authority (IAA) has safety. In that regard, Ireland has a very Safety, Security and Sustainability Safety, statutory responsibility for regulating safety good and effective Mandatory Occurrence standards in civil aviation in Ireland and Reporting System (MORs), established in these functions are performed by its Safety accordance with the requirements of EU law Regulation Division. In general, aviation and ICAO requirements, that is monitored safety standards are set internationally by on an ongoing basis by both the IAA and the International Civil Aviation Organisation the Air Accident Investigation Unit (AAIU) an (ICAO) and, in a European context, by the independent Unit that reports directly to the European Aviation Safety Agency (EASA), Minister for Transport, Tourism and Sport. the European Union (EU), EUROCONTROL, the European Civil Aviation Conference It is the Government’s objective that Ireland’s (ECAC) and in the North Atlantic Systems safety record in aviation be maintained Planning Group (NAT SPG). The Safety and promoted and that Ireland participate Regulation Division (SRD) of the IAA actively in the development of the regulatory oversees and regulates the implementation framework at an international level. of these standards for the Irish civil aviation industry and its oversight activities are in While aviation is one of the safest modes of turn subject to regular independent audits transport, EU policy recognises that “zero by ICAO, EASA and EUROCONTROL. risk” does not exist in aviation as accidents and serious incidents may happen from In 2011, Ireland was ranked amongst time to time, especially in light of the growth the best in the world for civil aviation of commercial air transport. EU policy is safety oversight following an intensive to do everything possible to increase the international audit by ICAO. In July 2013, safety of air transport and mitigate the risks the EUROCONTROL Performance Review of accidents or serious incidents occurring.
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When accidents or serious incidents happen, as it may be required to conduct or assist it is necessary to launch investigations in investigations of any incidents involving into their causes in order to learn safety aircraft on the Irish register. It is imperative lessons and prevent such occurrences from that the AAIU is adequately resourced to happening again. fulfil its investigative oversight obligations on the Irish registered fleet both at home International rules require the separation of and abroad. Ireland is committed to working accident investigation and safety regulation with ICAO, the EU and other international functions. In Ireland all such occurrences agencies in the on-going development of are the subject of investigations by the AAIU. appropriate safety systems and processes, in supporting occurrence reporting and
In addition to the requirement to investigate investigation and in ensuring all safety Security and Sustainability Safety, accidents and incidents that occur in the regulations are implemented and enforced. State, where foreign safety investigation authorities conduct investigations into ISSUES occurrences on or involving Irish registered and/or Irish operated aircraft abroad, the Ireland has an excellent aviation safety AAIU is required to appoint Accredited record. Safety will remain the number one Representatives to assist the foreign State priority of our National Aviation Policy. in the investigation. Furthermore, where a foreign State delegates an investigation to The primary responsibility for aviation safety the State of Registration, or where an Irish rests with the operator; the State’s obligation registered aircraft suffers an occurrence in is to ensure compliance through the international waters, the AAIU is required to legislative and organisational arrangements conduct the investigation. and structures it has established for this purpose. The rapid and significant changes The Irish registered commercial fleet has and increasing complexity of the aviation expanded significantly in recent years, due system requires the use of a risk-based in particular to the significant expansion approach to identify safety issues and of Ryanair’s fleet which are all on the Irish assess residual safety risks that may exist aircraft register and the continued expansion within a compliant system. A risk-based in the number of leased aircraft being placed approach is an inherent part of a Safety on the Irish Register. This has implications Management System (SMS). SMS has been for the IAA as the regulatory authority but it adopted by ICAO as standard international also has resource implications for the AAIU practice and is a mandatory requirement
A National Aviation Policy For Ireland 16 under ICAO Annex 19. The EU, through Data collection and exchange, including EASA, is in the process of moving towards a occurrence reporting, together with system to anticipate and focus on potential the necessary analysis capability are safety risks. fundamental to a risk-based approach. A fundamental requirement is that occurrence The ICAO Global Aviation Safety Plan and reports are accurately recorded in the the European Aviation Safety Programme mandatory European Centrally Coordinated require Ireland to achieve full implementation Accident and Incident Reporting System of a State Safety Plan (SSP) and SMS across (ECCAIRS), an EU database in which the IAA the civil aviation system to facilitate the and AAIU participate. proactive management of safety risks. There are a number of bodies with responsibility A fast-growth area of interest in the Safety, Security and Sustainability Safety, for elements of safety policy, including the aviation sector is the operation and use of Department, the IAA and the AAIU, and remotely piloted aircraft systems (RPAS), appropriate co-ordination arrangements commonly known as ‘drones’. In Ireland, with regard to SSP requirements will be the IAA currently has a role concerning maintained. the safety regulation of RPAS, defined for this purpose as being of a mass less than A focus on improved human factors 150kg. As this Policy is being published, analysis and management within the SMS regulation of RPAS is being developed in is essential. By improving the quality and the EU, taking account of their beneficial depth of investigation to identify human and uses and associated public interest and organisation causal factors, appropriate privacy concerns. Ireland will encourage mitigation actions can be formulated. and support the early development of an appropriate regulatory framework for RPAS internationally.
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POLICY POSITION Safety will remain Ireland’s first priority in the aviation sector.
ACTIONS 2.1.1 Ireland, through the Department and the IAA, will play an active role in the development of aviation safety regulations at an EU level and in ICAO. 2.1.2 Ireland will continue to maintain an independent safety investigation authority for the investigation of aviation occurrences. 2.1.3 The Department and the IAA will coordinate the State Safety Programme, including risk management. 2.1.4 Ireland will continue to facilitate and promote occurrence reporting in accordance
with EU law and ICAO requirements and to meet the highest standards of independent Security and Sustainability Safety, accident investigation. 2.1.5 The IAA will establish and monitor appropriate key aviation safety indicators based on the EASA system. 2.1.6 The IAA and AAIU will monitor aviation safety trends through ECCAIRS analysis. 2.1.7 Ireland will contribute to work at EU level to develop and implement an appropriate EU-wide safety regulatory framework for the operation of Remotely Piloted Aviation Systems in civilian airspace.
A National Aviation Policy For Ireland 18 2.2 Aviation Security In 2013, responsibility for monitoring compliance by all entities in the State BACKGROUND with EU and international aviation security requirements was allocated to the IAA. The A high quality national aviation security development of aviation security policy, system requires not only sustained including the development of the NCASP, commitment and effort by the State but and engagement at international level also by all key players in the sector including continues to be led by the Department. airports, airlines, and other regulated entities in the supply chain. ISSUES
The global threat to aviation remains real
Safety, Security and Sustainability Safety, As a contracting State to the Chicago Convention, Ireland is committed to and more complex. A global threat requires implementing the security standards and a global response – no one State can tackle recommended practices developed by ICAO this threat on its own. at a global level. As a member of the EU, Ireland implements EU legislation. These Ireland will continue to play its part at ICAO rules shape the framework within which and in the EU in shaping the global response all entities in the aviation security chain to the threat and seek to ensure that this must operate. The international regulatory global response takes appropriate account framework is also incorporated into Ireland’s of the impact of measures on the industry, National Civil Aviation Security Programme passengers and businesses. (NCASP) which is developed in consultation with the industry and with which all entities Our approach will continue to be one of must comply. partnership with industry and we will support the introduction of a Security Management The role of the State in aviation security is System (SeMS) approach. Allowing industry to ensure that current internationally set greater freedom in how precisely it complies rules and regulations are adhered to. It also with security rules has the potential to requires participation at international level leverage the innovative skills in the sector to ensure that the rules in place are justified, and concentrate resources where the risk aligned with actual needs and proportionate is highest. to the level of risk. We will initiate an outcome-focussed, risk-based approach to the regulation of
A National Aviation Policy For Ireland 19 security in Ireland and encourage the could also have security benefits. An greater use of technological solutions. example of such a programme is the US Our overall aim will be to deliver a more ‘Global Entry’’ program which allows for effective security outcome, with smarter, expedited clearance for pre-approved, low- more efficient systems, that facilitates a risk travellers at Preclearance facilities in smoother experience for both passengers Ireland. Global Entry allows for quick, easy and business. and efficient transit through airport control for travellers, and allows US Customs and The trusted traveller concept, which is Border Patrol officers to focus on travellers primarily a passenger facilitation measure whose identity is unknown to them and who aimed at business or frequent travellers, may pose a higher risk. Safety, Security and Sustainability Safety,
POLICY POSITION Ireland is committed to ensuring that sustainable aviation security solutions are delivered, with due consideration for cost, efficiency and the impact on passengers and air transport operators.
ACTIONS 2.2.1 Ireland will allow greater flexibility to industry through the introduction of an outcome- focussed, risk-based approach to security regulation. 2.2.2 Ireland will introduce a more targeted and comprehensive approach to compliance monitoring and developing requirements for SeMS, similar to the successful approach already implemented in the field of safety. 2.2.3 Ireland will place a risk-based approach to security at the heart of our thinking and of our future research. As a first step in this direction we will initiate a feasibility study in 2015, in conjunction with other key stakeholders, on the concept of a “Trusted Traveller” Programme.
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2.3 Sustainability, Climate those impacts will have a significant role to Change and the play in protecting our assets and helping Environment to future proof the capacity of the aviation sector on a global basis. BACKGROUND ISSUES Debate on aviation sustainability tends to revolve around greenhouse gas (GHG) Emissions emissions from aircraft and the impact on Following the decision by the EU in 2008 to local communities of airport noise. In both include aircraft emissions in the European instances, there have been considerable Safety, Security and Sustainability Safety, Emission Trading Scheme (EU-ETS), with technological advances in recent years. effect from 1 January 2012, EU carriers, New aircraft are 70% more fuel efficient including Irish carriers, are required to than forty years ago and 20% more record emissions (calculated on the basis of efficient than ten years ago. Although the measuring fuel consumed) and to surrender current contribution of aviation to overall certificates allocated to them. The number greenhouse gas emissions is relatively low of certificates is capped, requiring airlines at less than 3%, emissions from aviation to either reduce their emissions or purchase are among the fastest growing sources of certificates on the market. When introduced GHG. By 2020, global international aviation in 2012, the EU-ETS applied to all flights emissions are projected to be around 70% landing at or departing from an EU/EEA higher than in 2005. airport. However, following objections to this EU approach, EU flights to and New aircraft are also much quieter, by as from destinations outside the EU/EEA are much as 75%, compared to thirty years exempt from the EU-ETS until 2016. This ago. It is acknowledged that some of temporary measure is aimed at creating the advances in reducing emissions and the circumstances for the development mitigating noise impacts have been offset of a global scheme and to build on the by the increase in activity over the period. momentum established in ICAO.
However, within the overall context of Recent ICAO Assemblies have recognised sustainability, we also need to consider the the need for global action and at Assembly long-term resilience and adaptive capacity 38 in September 2013, a decision was of our airport infrastructure and aviation taken to develop a global market based services against the likely impacts of measure (GMBM) to limit CO emissions. climate change. Greater understanding of 2 The shaping of the GMBM scheme and the
A National Aviation Policy For Ireland 21 manner of its implementation by the agreed Noise date of 2020 will be a key issue for Ireland Noise-related measures constrain capacity alongside its EU partners. at an airport but also through the network due to knock-on effects. EU Regulation (EC) Ireland will play an active and constructive No. 598 of 2014 sets out the procedures role in the ICAO negotiations process. and processes to ensure effective noise Contributing effectively to the ICAO management. Its provisions are centred on negotiations over the coming years will the ICAO Balanced Approach. require a concerted and coordinated effort by all stakeholders and will be considered The Balanced Approach comprises four by the National Aviation Development Forum principal elements: Safety, Security and Sustainability Safety, (Chapter 9). l making aeroplanes quieter, by setting noise standards; In addition to MBMs, other measures such l managing the land around airports in as technology improvements in aircraft a sustainable way; and engine design will continue to play l adapting operational procedures to an important role in combatting aviation reduce noise impact on the ground; emissions. Incentivising “cleaner” aircraft and through non-financial instruments is a l if required, introducing operating potential measure. Improving operational restrictions. procedures driven by Functional Airspace The proposal in the draft policy to support Blocks (FABs) and the setting of environment and implement this Balanced Approach to targets in the EU Performance Scheme noise management at Irish airports was under the SES initiative are also expected welcomed in the consultation process. to make a contribution. Effective land-use planning has been and The relevance of research and development will continue to be important. This needs to has been highlighted in the consultation balance the operational needs of airports process. There are benefits to be gained and those using the airports with protection from increased research capacity in areas for local residents and amenities. such as clean engine technologies and sustainable fuels. Building a national research Adaptation and development capability through, for In relation to the projected impacts of climate example, a greater uptake in available EU change on Ireland, we can expect increasing funding streams (HORIZON 2020, Clean Sky average temperatures, more extreme 2 and SESAR) will be encouraged. weather conditions such as storms and
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rainfall events and an increased likelihood and Local Government in December 2012. of river and coastal flooding. These types The Framework brings a strategic policy of events will have some adverse impact on focus to climate change adaptation both at the operational performance of the aviation local and national level. Legislation is being sector. developed to underpin this policy.
An overarching policy to build resilience to the impacts of climate change is being led by the EU Commission through an EU Adaptation Strategy. In Ireland, in anticipation of this Strategy, a National Climate Change
Safety, Security and Sustainability Safety, Adaptation Framework was published by the Department of Environment, Community
POLICY POSITION Ireland is committed to working with its EU and international partners to mitigate the impacts of aviation on the environment and facilitate the sustainable growth of the sector.
ACTIONS 2.3.1 Ireland will work with European partners to achieve the development of global international standards for market based measures on aircraft emissions. 2.3.2 Ireland will develop its aviation emissions reporting capability in support of ICAO’s evolving environmental policies. 2.3.3 Ireland will, in consultation with interested parties, update its National Action Plan for Emissions Reductions in 2015 in line with the ICAO 2013 Resolution on Climate Change. 2.3.4 Ireland will encourage research and development in Ireland of clean engine technologies and sustainable fuels. 2.3.5 Ireland will implement a “Balanced Approach” to noise management at Irish airports in accordance with Regulation (EC) No.598 of 2014 on the establishment of rules and procedures with regard to the introduction of noise-related operating restrictions at Union airports. 2.3.6 Ireland will develop an Adaptation Plan for the Transport Sector, which will include adaptation options for airports and aviation services in line with national legislative obligations and the EU Adaptation Strategy.
A National Aviation Policy For Ireland I T a C E N N O C Chapter three v N O I T A I
R E S v T I & y v S E C I A National Aviation Policy For Ireland 23 Introduction Connectivity & Aviation Services
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3.1 Access to the Air third countries. Under this process, so Transport Market called “Open Skies” agreements have been negotiated, removing restrictions on BACKGROUND capacity, routing and other limits, creating a free market for services between the The creation of the EU single market for parties to that agreement. aviation in the 1990s removed all commercial restrictions on airlines flying within the EU. Most bilateral air transport agreements Under the single market, all EU carriers can require that substantial ownership and operate services on any intra-EU route. The effective control be maintained by nationals single market has transformed air travel of each party to the agreement. Within the Connectivity & Aviation Services in Europe reducing prices while increasing EU, community airlines are required to be consumer choice and connectivity. at least 50% owned by EU nationals (US law requires that US airlines are at least Outside the EU single market, access to 75% owned by US nationals). The EU has the air transport market is still heavily indicated its willingness to negotiate these regulated under the framework set down current ownership and control limitations in the Chicago Convention. Under the with States prepared to similarly waive the Chicago Convention, Ireland has negotiated requirement on a reciprocal basis. However, bilaterally with a wide range of States progress on this matter has been slow. to agree market access rights for both passenger and cargo services. A list of The relaxation of current ownership and States with which Ireland has a bilateral control limitations would help to increase air transport agreement is available on access to capital markets for airlines the Department’s website www.dttas.ie. and to facilitate consolidation in the air Following the “Open Skies” judgment in transport market. It is also likely to see the the European Court of Justice in 2002, all development of further services between market access rights negotiated by each these like-minded States. of the EU member States in their bilateral agreements, must be equally available to all The Minister for Transport, Tourism and Sport EU carriers. is a member of the Export Trade Council (ETC), chaired by the Minister for Foreign Furthermore, under the EU’s external Affairs and Trade, which is responsible for aviation policy, the European Commission the coordination of the Government Trade, has been mandated to negotiate air Tourism and Investment Strategy. The ETC transport agreements on behalf of the regularly discusses issues relating to air EU and its member States with certain market access.
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Through its network of 80 Embassies and air transport agreements. However, non-EU missions, the Department of Foreign Affairs countries will often seek fifth freedom rights and Trade, in close cooperation with other for their airlines. Departments and State agencies, actively promotes an Irish aviation policy which On some long-haul routes, aircraft still need encourages greater connectivity and access to make refuelling stops. The granting of to our major trade partners, for the purposes fifth freedom rights on such routes will make of both business and tourism-related travel. Ireland a more attractive stop off point. Such The Embassy network in particular plays a routes will increase choice and connectivity key role in lobbying for greater air access for travellers to and from Ireland and through developing and maintaining a increase the number of transit passengers supportive environment for enhancing air using Irish airports. Although fifth freedom Connectivity & Aviation Services links. Direct routes between Ireland and rights often feature in the market access international markets are centrally important rights agreed between States in bilateral air to the achievement of the numerical targets transport agreements, the exercise of such set out in the Government Trade, Tourism rights is often limited and in the past they and Investment Strategy, as reviewed in have tended to be exercised mainly on long- February 2014. The Embassy network will haul routes. play a role in implementing this policy. In the consultation process leading to this ISSUES National Aviation Policy, strong views were expressed both for and against Ireland For countries with which Ireland continues granting such rights. to negotiate on a bilateral basis, the general policy will be guided by free By allowing fifth freedom rights at airports market principles. One key issue in such in Ireland, it is argued that the State will: negotiations is the extent to which Ireland l become a more attractive should grant “fifth freedom” rights which destination for air passenger would allow airlines pick up and drop off services with increased benefits passengers in Ireland, en route to other for the Irish economy; destinations (for instance an airline with a l enable maximum access and route from east or south of Europe stopping assist route development; off in Ireland en route to North America). l complement the preclearance Irish airlines do not tend to and have not facilities already available at Dublin sought to operate on any routes using fifth and Shannon; and freedom rights although such rights are l assist the development of our available under some of Ireland’s bilateral airports as hubs.
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Many stakeholders considered that because transparency in financial reporting, can Ireland is an island nation with a significant distort competition. The issues raised by tourism industry and a large number of high- fair competition concerns are recognised at value, time sensitive export industries which EU level. depend on these links, a liberal policy on fifth freedom rights should be pursued. The most liberal approach to granting fifth freedom rights is to grant full rights in the On the other hand, it is argued that allowing bilateral agreement itself. Alternatively, fifth fifth freedom rights at Irish airports would freedom rights can be provided for under a have significant negative impacts including: bilateral agreement, but with a subsequent l a potential reduction in the case-by-case approval required for any Connectivity & Aviation Services existing high level of competition such services. Most of Ireland’s existing in the market (in particular on agreements fall into the latter category. An transatlantic routes); advantage of this approach is that it allows l the threat to airlines already changing circumstances to be taken into operating in this market; and account over time and allows any approved l potential negative effects for fifth freedom routes to be re-evaluated inbound tourism, employment should concerns arise. and on Irish and EU airlines and airports if significant market share Ireland traditionally has a liberal aviation was lost to non-EU carriers. policy, and it remains positively disposed towards approval of fifth freedoms in Furthermore, airlines in other countries bilateral agreements. It is recognised may operate in a different competitive that within EU countries approval of fifth environment. For example, subsidies, freedoms can take account of criteria unfair practices, inconsistent application including, economic costs and benefits and of regulatory frameworks and lack of aspects of fair competition.
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POLICY POSITION Ireland’s ultimate objective in bilateral negotiations will be to reach agreement on the basis of fifth freedom rights on a reciprocal basis. In doing so, account will be taken of objective criteria, particularly any developed by the EU on fair competition. Initially such freedoms will be for routes where identified services are to be provided and will be subject to specific approval by both States.
ACTIONS 3.1.1 The Department will increase and extend Ireland’s bilateral agreements with other States.
3.1.2 Ireland will continue to actively support EU efforts to negotiate full Open Skies Connectivity & Aviation Services agreements with third countries.
3.2 Irish Airlines Competition has helped ensure the resilience of Irish airlines in the face of Ireland is well served by indigenous and volatile industry conditions, in particular international airlines. Since the 1980s, since the downturn in 2008. Irish airlines Ireland’s aviation policy has favoured are in a better financial position than competition by having at least two major many of their overseas counterparts and airlines competing in the Irish market. In are competitively placed to contend with 2014, the two largest Irish airlines, Aer fluctuating market challenges and demands. Lingus and Ryanair, provided over 80% of the seat capacity in the Irish market, Since the Aer Lingus Initial Public Offering making the competitive dynamic between (IPO) in 2006 Ryanair has made three them particularly important. takeover bids for Aer Lingus. Successive Governments have opposed these bids Competition between Ryanair and Aer primarily on competition grounds. The Lingus has been good for Irish consumers bids were also subject to approval by the and connectivity. Most of the stakeholders European Commission under the EU Merger who commented on this issue during Regulation. On two occasions, in 2007 and consultation on this Policy were in favour of 2013, the European Commission concluded a continued policy that supported at least that a merger between the two airlines two major airlines with bases in Ireland. would have harmed consumers because of the high level of competition between them on a significant number of routes to/from Ireland.
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The maintenance of effective competition in 3.3 Air Cargo Services the air transport market was an important consideration in the Government’s recent BACKGROUND decision to support the offer made by International Consolidated Airlines Group The global financial crisis has impacted on (IAG) for Aer Lingus. the growth of air-cargo in the short-term but, as economic conditions improve, long- Among the guarantees that the Government term global forecasts for international air- has secured from IAG in the context of cargo point to continued strong growth this offer is a guarantee that Aer Lingus over the coming decades. While only 1% of will maintain its head office in Ireland and cargo tonnage is moved by air, it represents Connectivity & Aviation Services that it will continue to operate under the about 35% of the value of all freight into and Aer Lingus brand. Important guarantees out of Ireland - mainly seasonal foodstuffs, were also secured in respect of Ireland’s pharmaceuticals, medical devices and IT future connectivity, particularly to London components. Approximately 84% of all Heathrow. IAG has set out ambitious growth Irish air-cargo and mail is handled at Dublin plans for the company and the Government Airport and the remaining 16% is handled at is confident that supporting IAG’s offer for Shannon Airport. Very limited volumes are Aer Lingus is the best way of ensuring a currently handled at Cork Airport. Most of competitive and vibrant air transport market Ireland’s international air-cargo is carried in in Ireland for the benefit of consumers. the hold of passenger aircraft. However, not all carriers provide a cargo service, which means that there is less choice in terms of frequency and range of locations POLICY POSITION served for cargo services than is the Ireland will continue to pursue an airline case for passenger services. Dedicated policy based on competition between at air freighters are, therefore, an important least two airlines with significant home and growing part of the international cargo bases in the Irish market and Ireland will business. facilitate a market which is open to new entrants in order to maximise connectivity ISSUES and competition. What we export is changing (more low volume, high value products) and the destination of Irish exports has become more diverse. Ireland is generally well- served for air-cargo connectivity, with
A National Aviation Policy For Ireland 29 good access to world-wide destinations a more detailed and complete picture primarily through major hubs in the UK or of freight movements across all modes mainland Europe. There is nonetheless of transport in Ireland. In that context, considerable scope to enhance Ireland’s an overall freight policy for Ireland to be export competiveness through better air- developed by the Department, with a view cargo provision, shortening supply chains to ensuring the continued competitiveness and reducing time to market. Access to a of the freight sector generally, will include choice of competitively priced and frequent consideration of the role of air cargo. air-cargo services to a range of short-haul and long-haul destinations in existing and In parallel, the Department will also request emerging markets is important. In particular, Dublin and Shannon Airports, in partnership there is potential to grow air-cargo to long- with the other players in the air-cargo industry Connectivity & Aviation Services haul destinations. “Open-cargo” policies, (including airlines, industry representative improved facilities at airports and more bodies and some State agencies), to competitive groundhandling operations develop and publish strategies on air- are important conditions for growth in this cargo. These strategies will examine the regard. costs and benefits involved, and consider how cargo can be facilitated in terms Currently, significant volumes of cargo of infrastructure, services and charging are being transported by truck and ship regimes. It is considered that Shannon to the UK or mainland European airports Airport has the capacity to become an air- where they are loaded on to freighter cargo hub between Europe (and beyond) aircraft. The development plans of the main and the US. The development of an Irish ports of Dublin, Cork and Shannon- International Aviation Services Centre (IASC) Foynes will increase the attractiveness of and other commercial developments at the transporting goods by truck and sea to airport campus in Shannon, as referenced a major hub airport. On the other hand, in Chapter 6 of this Policy, will complement capacity constraints for air-cargo at major the airport’s ambition to become a cargo- European hubs may present opportunities hub. While acknowledging the stringent for selective expansion of air-cargo services requirements inherent to the US customs at Irish airports, for example, by exploiting and security regimes, as well as those of new and expanded long-haul routes and by the US Food and Drugs Administration identifying specific gaps in supply chain (FDA), it is recognised that the introduction performance relevant for Irish exporters. of US cargo preclearance could enhance Shannon Airport’s potential as a recognised In order to identify and exploit such cargo transhipment point. opportunities, it will be important to build
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Responses received in the consultation efficient facilitation must take account of process suggested that the State should security requirements, the principle of an ensure that air-cargo handling and custom outcome-focussed, risk-based approach facilities at Irish airports minimise delays outlined in Section 2.2 of this Policy will be and facilitate efficient and timely freight applied specifically to the air-cargo sector in movements. The Department will engage the framework of the National Civil Aviation with the relevant stakeholders on these Security Programme (NCASP). issues under the auspices of the National Facilitation Committee (see Section 4.6). Ireland will continue to pursue an “open- The individual airport strategies should cargo” policy for dedicated air-cargo include the introduction of arrangements services. In this regard, it will seek the
Connectivity & Aviation Services for benchmarking the facilitation of freight removal of limits on all cargo capacity in our through the airports, similar to those bilateral agreements to support our export which aid passenger facilitation. Insofar as industries which rely on air-cargo.
POLICY POSITION Ireland’s export competitiveness should be enhanced through improved air-cargo provision to existing and emerging markets.
ACTIONS 3.3.1 An overall freight policy for Ireland, covering all modes, will be developed with a view to ensuring the continued competitiveness of the freight sector, and will include consideration of the role of air-cargo. 3.3.2 The Department will seek to remove limits on all air-cargo capacity in Ireland’s bilateral air transport agreements. 3.3.3 The Department will engage with the relevant stakeholders under the auspices of the National Facilitation Committee on air-cargo. (See Section 4.6). 3.3.4 Dublin and Shannon Airports, in partnership with the other players in the air-cargo industry, will be mandated to develop and publish strategies on air-cargo. 3.3.5 The development of Shannon Airport as an air-cargo hub will be supported. 3.3.6 The Department will continue to liaise with other Government bodies and the US authorities on the regime for exports to the US in order to facilitate efficient freight operations at airports.
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3.4 US Preclearance as the potential for lower groundhandling Service and repatriation costs. Consequently, for airports offering preclearance facilities, BACKGROUND there are clear advantages in terms of attracting new air services and growing Ireland has an aviation preclearance passenger numbers. agreement with the US since November 2008. Under the agreement, passengers The commercial and economic benefits of all US bound flights from Dublin and of preclearance, from the passenger, Shannon Airports are fully cleared for US airport and airline perspectives have immigration, customs, agriculture and already been demonstrated in Ireland and security controls before leaving Ireland. it is recognised that preclearance is a key Connectivity & Aviation Services This means that passengers travelling to the contributing factor to the growth of US US are treated as domestic passengers on connecting traffic at Dublin and Shannon in arrival in the US and do not face any further recent years. Similarly, the US authorities US entry controls. The preclearance process have acknowledged that the process has ensures that passengers are screened, significant benefits for them. inspected and precleared for entry into the US, in accordance with the relevant US ISSUES standards, within the designated, controlled- access areas for preclearance in Dublin and US preclearance is an asset that has further Shannon Airports. potential to contribute to development at Dublin and Shannon Airports. There From the passenger’s perspective, the is also potential to open up new routes preclearance process allows for more to US domestic airports. An adequately efficient use of pre-boarding time at Dublin resourced preclearance facility is critical and Shannon Airports; their experience on to Dublin Airport’s development as a arrival in the US is greatly improved as it secondary hub. The Department will work avoids a lengthy entry process and can with the relevant US authorities and, allow transit passengers to remain airside in particular, the Customs and Border for connecting flights. From the airline’s Protection (CBP) and the Transportation perspective, aircraft arriving from Ireland Security Administration (TSA), to ensure the can now terminate their flights at domestic appropriate legal and framework conditions airports or at domestic terminals of for preclearance facilities are maintained international airports in the US. Preclearance in Ireland. It is essential, however, that facilitates new route options, improved Dublin and Shannon Airports commit to fully aircraft utilisation at US airports as well exploiting the potential that these facilities
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offer. The relevant enterprise, tourism and Because the preclearance service is not regional development agencies also have a currently provided elsewhere in Europe, role to play in growing existing markets and Dublin and Shannon Airports have a developing new markets. significant advantage over other European airports. However, the US has indicated In addition to commercial aviation, the its intention to expand preclearance 2008 Preclearance Agreement with the US operations to new locations. In this context, covers preclearance for general aviation/ Ireland will build on the experience gained private aircraft flights (GA) and this has been in preclearance since 2008, to ensure available at Shannon since 2009. Given the service offered has sufficient capacity the high number of GA aircraft that land to accommodate the projected growth in
Connectivity & Aviation Services there for refuelling en route to the US, it is demand for transatlantic services. In that disappointing that a very low percentage of context, potential to expand the operational business jet operators avail of the facility. hours of the service, and to avail of new Shannon Airport should be encouraged to technology innovations in passenger increase the preclearance take-up rate by processing and baggage handling, will be GA aircraft. encouraged.
POLICY POSITION US preclearance is an asset that has further potential to contribute to the development of Dublin and Shannon Airports. The Department’s objective is that all US bound flights from Dublin and Shannon wishing to do so can be precleared.
ACTIONS 3.4.1 The Department will maintain close formal links with the US authorities to ensure the continued delivery and development of US Preclearance facilities at Dublin and Shannon Airports. 3.4.2 The Department will encourage Dublin and Shannon Airports and airlines to maximise the benefits to Ireland of preclearance facilities and will promote the development of those airports as preclearance centres. 3.4.3 The Department will support Shannon Airport in seeking to increase the number of GA aircraft utilising preclearance.
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3.5 Air Traffic Management The provision of high-quality air navigation (ATM) services and the maintenance of a modern aviation infrastructure on a sustainable on- BACKGROUND going basis is a major challenge for Ireland and other EU member States under the Air Traffic Management (ATM) is a key legislative provisions of the SES. The ultimate component underpinning the global air objective of the SES is to increase the safety, transport market. In Ireland, the Irish Aviation economic, financial and environmental Authority (IAA) has statutory responsibility, performance of the provision of air navigation under the Irish Aviation Authority Act 1993, services in Europe. Continuing progress will to provide certain ATM services in relation remain a significant planning challenge for to civil aviation. The IAA is a profitable, ANSPs such as the IAA. Connectivity & Aviation Services commercial State-owned company with three main functions: (i) the provision of ISSUES ATM and related services in Irish controlled airspace and on the North Atlantic; (ii) The longer-term plan for the IAA in the ATM the safety regulation of the civil aviation field is linked to the evolution of the SES. The industry in Ireland and (iii) the oversight of SES plan to integrate airspace management civil aviation security in Ireland (the latter across Europe has implications for all two regulatory functions are considered existing 28 EU ANSPs and the primary further in Chapters 2 and 5). guiding principles for the achievement of future airspace management integration The commercial development and must be service quality and efficiency. modernisation of ATM is recognised as a priority at both the global level in ICAO Because of its geographical location, and at the regional level in Europe where it Ireland will continue to have strong interests has inspired the Single European Sky (SES) in North Atlantic ATM. Ireland’s geographic initiative. Ireland’s geographical location position and interest in North Atlantic gives it a strategic prominence in the North airspace is recognised by the delegation Atlantic in ATM terms. The IAA is highly by ICAO of service delivery in this area to regarded domestically and internationally as Ireland and the UK jointly. The evolution an efficient air navigation service provider of new global, satellite-based surveillance (ANSP) being responsible, inter alia, for the technologies for ATM on the North Atlantic, in control of a large tract of sovereign and which the IAA has invested on a commercial assigned airspace and also terminal airport basis, has potential implications for current movements at the three State-owned arrangements there. airports.
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New technology has enabled a space-based it among the most efficient of its peers. air traffic surveillance system to track Retention of this position in the longer-term flights in emergency situations to be offered and thus underpinning Ireland’s long-term from Ireland as a free, public service to strategic interests in the North Atlantic will the global aviation community. Known as be challenging and will require sustained Aircraft Locating and Emergency Response modernisation investment. (ALERT), the system will allow rescue agencies around the globe to request the Functional Airspace Blocks (FABs) are a location and last flight track of any suitably key part of the SES objective to reduce equipped aircraft flying in airspace currently the current fragmentation of ANSPs across without surveillance. Europe. The UK-Ireland FAB was the first
Connectivity & Aviation Services in Europe. It is Europe’s North Atlantic The IAA is planning other ATM modernisation gateway and is important in integrating investments, on a similarly commercial airspace between North America and basis, to deliver necessary operational Europe. No other FAB or European ANSP enhancements in line with SES requirements. has a similar role on this scale. The Other developments such as remote necessity for increased co-operation across tower technology also offer potential Europe will become stronger over the next cost efficiency improvements and greater decade. This evolution will require the IAA contingency to the smaller State airports as and NATS (the UK ANSP) to intensify their well as regional airports. current close level of cooperation. The case for pursuing operational synergies in As an ANSP, the IAA has built up a reservoir technology and training areas with other of experience and expertise that places FABs is likely to increase.
POLICY POSITION Ireland supports the continued development of the Single European Sky initiative, including the progressive achievement of airspace management integration throughout Europe in accordance with performance quality and efficiency principles and appropriate organisation of regulatory oversight.
ACTION 3.5.1 Ireland will continue to encourage investments in modern, technologically advanced, cost-efficient aviation infrastructure, including those that underpin Ireland’s interest in the North Atlantic and the future traffic growth at our airports.
A National Aviation Policy For Ireland S T R O P R I A Chapter four A National Aviation Policy For Ireland 35 Introduction Airports
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4.1 The Irish Airport has a thriving tourist industry as well as Network good framework conditions for multinational business and Foreign Direct Investment BACKGROUND (FDI) with global export markets – these factors are major contributors in driving As an island nation, with a peripheral demand at Irish airports and are reinforced location, aviation access infrastructure is of by a well-established preclearance facility strategic importance to Ireland. Over 80% benefitting air passenger movements from of all passenger movements into and out of Ireland to the US. All airports have access Ireland are by air. to a well-developed network of regional and national development bodies with mandates Airports Ireland currently has twenty eight licensed to promote the development of the regions. aerodromes which include the three The availability of land with investment/ State-owned airports at Cork, Dublin and development potential within and around Shannon, twelve aerodromes licensed for our airports presents possibilities for the public use and thirteen licensed for private creation of new business activities to use. A full list can be found in Appendix 2. underpin the core airport business. These aerodromes provide different types of services, ranging from leisure orientated On the other hand, the airport network general aviation to full international is extensive for a small country with a scheduled passenger and cargo services. population of less than 5 million, albeit with This section of the Policy is focussed on the a relatively high propensity to travel by air, State and regional airports that underpin and this presents challenges for airport economic activity in Ireland. operators. While regional airports retain a role in enabling international access, the Despite our peripheral, island status, Ireland development of the interurban road/rail enjoys a strategic “gateway” geographic network has reduced their importance for position in relation to Europe and North connectivity within Ireland. As a small, open America. The designation of Dublin and Cork economy, vulnerable to global economic as core airports within the Trans-European and political shocks, traffic at our airports Network, and specifically on the North Sea is prone to fluctuations, and forecasts must – Mediterranean Core Corridor, ensures incorporate robust sensitivity analysis. strong legal and development frameworks Airports are also likely to be impacted by at EU level. Connectivity potential of all any measures that may be imposed on our airports is enhanced by the expanding airlines in the context of initiatives aimed range of bilateral “Open Skies” agreements at reducing our overall level of transport between the EU and third countries. Ireland emissions.
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Against this background, the Department ISSUES is confident that the Irish airport network is well placed to grow its share of global A number of responses received during the passenger traffic over the next decade. consultation process questioned the need By 2020, the Department expects that for the high number of airports in Ireland, Irish airports will handle in the region of 33 remarking on the competitive pressures million passengers per annum, up from 25 brought to bear on individual airports, million passengers in 2013. highlighting the commercial risks faced by smaller airports and challenging State Traffic growth is critical to the aviation funding for regional airports. Several industry and, given the well-established other submissions, reflecting the interests strong positive relationship with GDP of individual airports, advocated exclusive Airports growth, the economic objectives of - and sometimes conflicting - designations airports and society are closely aligned. In for those airports, for example as particular, airports are incentivised to seek “gateways” to particular regions. Some of out high-value traffic enabling access to new those submissions expressed the concern destinations and increasing connectivity to that developments in one airport would a region or country. New long-haul services prejudice the interests of another. With are particularly valued by airport authorities our low population base, and considering and the markets they serve, as they open the improvements made to the surface up new tourism and trade opportunities transport network that have reduced travel while increasing aeronautical revenues and times between our airports, as well as airport retail opportunities. the proximity of other airports in Northern Ireland, the Department recognises the In the process of enabling growth in challenges for individual airports in a limited passenger numbers and in high-value traffic, market. Irish airports will strive for excellence in the delivery of services and value for passengers Outside the Greater Dublin Area, however, and airlines such that the Irish airport our population is very dispersed and performance and experience becomes a our economy relies to a critical level on world benchmark. The airports will make a inbound tourism and on FDI business. In strong contribution to the local economies that context, the economic sustainability of and communities they support, and the airports must be considered by reference aviation connectivity needs of Ireland will to high-level and regional-level economic be secured for the next generation and for and social policy goals and the needs of the Ireland’s full participation in global society. hinterlands served by the airports.
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It is recognised that the regional airports, as access to Ireland from high-potential currently supported by Exchequer funding, overseas tourism markets. Inbound tourism have an important role to play. The future and the export earnings and employment of these airports – Donegal, Ireland West it supports are profoundly dependent on Airport Knock (IWAK), Kerry and Waterford - the volume, affordability and range of air will be impacted by EU Guidelines on State access. Airports are core elements of the Aid to airports and airlines. tourism infrastructure. In turn, tourism is an important source of traffic and Recent restructuring of the State airports customers for airports. In that context, the sector – to which Exchequer funding is tourism policy focus on developing tourism not provided - under the State Airports experiences of significant scale, particularly
Airports (Shannon Group) Act 2014 provides for the the Wild Atlantic Way and Ireland’s Ancient establishment of the three State airports East, as well as the renewed focus on on a sound footing with clear corporate growing tourism in Dublin with the Grow structures that allow for, at a minimum, Dublin Tourism Alliance, provides significant sustainable operation of those airports in opportunities for airports, particularly those the short to medium term. which are positioned as gateways to those propositions. By working together with It is a matter for all airports to identify the tourism industry, the tourism agencies and to market opportunities for attracting and carriers, airports can grow traffic and new business within their niche markets, inbound tourism over the next decade. in partnership with the relevant regional, tourism and industry bodies. As reflected The Department will continue to carefully in the Department’s Tourism Policy (People, monitor the business development of all Place and Policy: Growing Tourism to airports for evidence that the network is 2025), the State, using the resources of the operating efficiently. tourism agencies, will promote increased
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POLICY POSITION The Department will encourage airports to attract new business, to achieve excellence in the delivery of service and value for passengers and airlines, and to make a sustainable contribution to their respective local economies and communities.
ACTIONS 4.1.1 The Department will monitor the business development of all airports for evidence that the prevailing network is operating at an optimum level. Monitoring will occur within the framework of developments under EU rules and the structural and capacity reviews referred to in Section 4.4. 4.1.2 The Department, the airports and the tourism agencies will continue to work together to increase access to Ireland from high-potential overseas tourism Airports markets.
4.2 Regional Airports Support under the CAPEX Scheme is only paid to the regional airports for essential BACKGROUND safety and security work. OPEX subvention is paid to compensate the regional airports Exchequer support relating to Ireland’s for costs incurred in providing core airport regional airports (Donegal, Ireland West services, insofar as these costs cannot Airport Knock (IWAK), Kerry and Waterford) be fully met by prudent commercial is provided through a Regional Airports management and from any surpluses Programme. That financial support is generated by non-core activities such as administered by the Department through car parking and catering. Two services three separate schemes – operate from regional airports under the Public Service Obligation (PSO) Air Services l A Regional Airports Capital Expenditure Grant (CAPEX) Scheme Scheme – Kerry/Dublin and Donegal/Dublin. l A Core Airport Management Operational Expenditure Subvention ISSUES (OPEX) Scheme Regional airports in Ireland were developed in l A Public Service Obligation (PSO) Air the 1980s to provide improved connectivity Services Scheme both nationally and internationally and significant social and economic benefits to All funding of regional airports by the State the regions that they served, particularly at must comply with EU Guidelines on State a time when rail and road connections were Aid to airports and airlines. poor.
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However, as mentioned, improvements to be considered as the priority area for to the surface transport network in the support. Extensions to capacity at regional intervening period have impacted on airports should only be undertaken if they regional airports’ role as regards domestic can be financed commercially. connectivity. Today, regional airports continue to be important because of a Under the 2014 EU Guidelines a distinction level of international connectivity that they must be made between capital projects bring to a region for tourism and business. at airports with an associated economic Donegal, Waterford and Kerry airports are activity (e.g. apron extensions, runway important to the area in which they are overlays, etc.) from those with no located. IWAK plays a more regional role in associated economic activity (e.g. air traffic
Airports terms of access than other airports given its control, police, firefighting etc.). Exchequer location in the North West. These airports supports in respect of the latter fall within should be given the opportunity to grow to the category of ‘Public Policy Remit’ and are a viable, self-sustaining position, particularly outside of the scope of State aid rules. considering the contribution that they make to their regional and local economies. Similarly, core operational expenditure costs at airports must also be distinguished The 2014 EU Guidelines on State Aid to between those with an associated economic airports and airlines set out the criteria activity and those with no associated for future CAPEX and OPEX supports, with economic activity. a maximum intensity level of 75% being provided for CAPEX projects at airports with The 2014 Guidelines, in recognition of less than 1 million passengers per annum. prevailing market conditions, provide a On a case by case and exceptional basis maximum transitional period of 10 years for the 75% limit may be exceeded subject to airports in receipt of State aid supports for specific Commission approval. core operational costs (OPEX) to become self-sufficient. Accordingly, clear business The EU Guidelines specifically exclude car plans will be required from the airports parks, along with shops and restaurants, demonstrating that path towards viability. from the definition of airport infrastructure Ireland is required to submit annual progress investments as such development is seen reports to the EU Commission in respect of as outside core aeronautical activity. In airports in receipt of State aid. addition, Ireland restricts Exchequer CAPEX funding to safety and security related There are many demands on the funding expenditure which, in making best use of available to the Department and maintaining limited Exchequer resources, continues an attractive Regional Airports Programme
A National Aviation Policy For Ireland 41 will be challenging over the lifetime of that OPEX and PSO) to the regional airports Programme, particularly with competing and airlines over that period. The allocation financial requirements for public transport of any funding made available from 2015 provision and road maintenance. Ireland’s onwards will be critically examined with a policy on financial supports for the Regional particular focus on maintaining and working Airports Programme, in recognition of the towards improving necessary international 2014 Guidelines, will continue in a downward connectivity services. The need for regional trajectory over the lifetime of this National and local business investment will be a key Aviation Policy. consideration in this regard.
As the first phase of this Policy, the It will be essential that the regional
Regional Airports Programme for 2015 airports work together to develop greater Airports to 2019 reflects the criteria set out in the operational efficiencies and to promote the 2014 EU Guidelines on State Aid to airports overall role of regional airports as access and airlines and represents Ireland’s points for both tourism and business. Framework for funding supports (CAPEX,
POLICY POSITION Ireland recognises the important role that regional airports play in their areas and in regional development.
ACTIONS 4.2.1 Ireland will implement an EU approved Framework (Regional Airports Programme 2015 - 2019) of supports for regional airports. 4.2.2 Exchequer support for operational expenditure at regional airports will be phased out over a maximum period of 10 years, in accordance with EU Guidelines. 4.2.3 Exchequer support for capital expenditure will be limited to safety and security related expenditure. 4.2.4 Clear business plans will be required from the airports seeking supports. In considering funding to regional airports, the Department will take account of the level of regional involvement, including investment by local authorities and/or business. 4.2.5 From 2015, PSO contracts, for Donegal/Dublin and Kerry/Dublin air services will run for two years initially and, subject to a satisfactory review after 18 months, may be extended by a maximum of one year.
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4.3 State Airports and passengers. For each of these airports, their potential as tourism and business BACKGROUND “gateways” for their respective regions will be supported by the relevant tourism and The State airports provide essential strategic trade promotion bodies, at regional and at transport infrastructure and services that national level. support the economic and social activities of the State. The ownership of these airports Dublin Airport and their management by commercial State bodies is primarily designed to guarantee The size and location of Dublin Airport the use of this strategic infrastructure for distinguishes it from the other State airports. Airports the overall benefit of the State. The three Dublin Airport has seen a major increase State airports each have a critical role in in the numbers of transfer passengers in supporting our citizens’ participation in an recent years with significant benefits to the increasingly global society, and in facilitating broader economy. economic development by enabling trade, tourism and inward investment. The daa An opportunity now exists to develop Dublin in respect of Cork and Dublin Airports, as a vibrant secondary hub, competing and Shannon Group in respect of Shannon effectively with the UK and other European Airport, operate on a commercial basis airports for the expanding global aviation but under a mandate from the Minister to services market. A hub combines local ensure that decisions take account of the passengers with transfer passengers wider national interest. enabling airlines to operate services to more destinations and more frequently than ISSUES could be supported by local demand alone.
Each of the three State airports has distinct This allows airport operators to utilise geographic, demographic and infrastructure airport assets more efficiently, to exploit characteristics that differentiate their economies of scale and to drive down per- respective roles as well as the challenges passenger airport charges to the benefit and opportunities they face. Individually of airport users and passengers. In this and collectively, they serve the connectivity context, the support and promotion of Dublin needs of their respective hinterland as a hub airport is an important means of populations but, as this is a relatively low maximising air access for the Irish economy. base in aviation terms, their on-going Dublin Airport is currently (summer 2015) operational viability is critically dependant ranked fifth in Europe in terms of weekly on their ability to attract inward air services transatlantic seats, and is therefore well-
A National Aviation Policy For Ireland 43 placed for further development as a hub for Cork Airport global business. Economic activity in the Cork region is Dublin Airport has a number of features second only to that of Dublin and, as which makes it attractive to air carriers, Ireland’s second largest city, the airport has including its geographic location on the a strategic role in serving the connectivity North Atlantic Trans-Continental route, US needs of the city and its hinterland. The Preclearance, single terminal transfers, and industrial services sector is well developed its location near the national capital city and the region has benefitted from FDI with its significant catchment area. These in life sciences, ICT and pharmaceutical features offer passengers who need to industries. The wider region also offers a make a connection a unique opportunity to vibrant leisure catchment. In submissions Airports avail of a transfer product that reduces the to this Policy, further opportunities for overall elapsed journey time compared with Cork were identified in association with other connecting opportunities. the development of the Cork Convention Centre and with Fáilte Ireland’s emerging The objective to develop Dublin Airport as initiatives (at that time) for South-East a secondary hub will require support from tourism products. The British, French and relevant Government Departments and the German markets were also proposed for State agencies involved in tourism marketing targeted marketing strategies by tourism and trade development. The key national and enterprise agencies. industry development agencies supported the proposal in submissions to this Policy Indeed, Cork Airport’s unique position as a and the Department considers that these “gateway” to each of the two main tourism bodies could make a useful contribution to policy propositions included in People, the secondary hub development through Place and Policy: Growing Tourism to 2025 their expertise and marketing activities. The - the Wild Atlantic Way and Ireland’s Ancient Department will work with daa and with all East – is an advantage and a platform for relevant bodies to establish a framework to growing inbound tourism traffic. Tourism ensure all relevant State agencies engage Ireland’s current co-operative marketing with the secondary hub project. In addition, investment initiative, which combines it will be important that Dublin Airport has destination marketing with specific offers sufficient capacity, including a second, by carriers to encourage travel, offers an parallel runway, to facilitate its development important support to the airport in this as a hub (see Section 4.5). regard.
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Cork Airport, working with local stakeholders advantage of full US Preclearance as well and with the necessary local and hinterland as the longest runway in Ireland and the support, is encouraged to exploit all ability to handle all aircraft types. These opportunities for growth, and to continue to features underpin the airport’s ambitions to develop its network of services. expand existing operations and to develop new routes and niche opportunities in Shannon Airport aeronautical and aerospace engineering. In this respect also, the airport will benefit Shannon holds a strategic importance for from synergies with the International connectivity of the mid-West region and Aviation Services Centre (IASC), a business also serves as a “gateway” to the Wild unit of the Shannon Group. It is intended
Airports Atlantic Way. The airport is important that IASC will build on the aviation related for connecting traffic facilitated by the activities already located at the airport and convenience of Shannon’s single-terminal the Shannon Free Zone area to become an transfer capacity. The airport enjoys the aerospace industry cluster.
POLICY POSITION The three State airports will continue to provide essential strategic infrastructure and services that support the economic and social objectives of the State.
ACTIONS 4.3.1 Dublin Airport will be promoted as a secondary hub airport. 4.3.2 The roles of the Cork and Shannon airports as key tourism and business gateways for their regions, and particularly with regard to the development of key niche markets, will be supported.
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4.4 Ownership and In particular, the strategic importance Operation of State Airports of Dublin Airport extends far beyond its geographic catchment area and its future BACKGROUND is critically bound up with the Irish economy e.g. inward investment, tourism, trade etc. Around the world, airports are owned and This strategic importance is also reflected operated under different models, including in the nature and extent of the competition fully private (e.g. Heathrow), operating that Dublin Airport faces internationally. under long-term leases such as airports in Australia, a mix of State and private ISSUES ownership as in Paris, and those such as the three Irish State airports that are fully In developing this Policy, it was considered Airports owned by the State. In the US, there are appropriate to discuss again the ownership instances where terminals are privately and operation issue given the medium to owned or operated with a public authority long-term horizon of the Policy. retaining ownership of the runway and airfield. There is broad agreement, in the submissions received, on the strategic The future ownership and governance role of Dublin Airport in relation to Ireland’s arrangements for the State airports have been business and tourism needs and, with few considered on a number of occasions over exceptions, that the current ownership and the years, and fundamental changes have operational arrangements are appropriate recently been introduced by the Government. for the present. Since 31 December 2012, Shannon Airport has been separated from the daa and at the Airport operators are increasingly same time the Government decided that Cork commercially-focused and profit driven and Airport should remain within the daa. The this has led to considerable improvements three State airports, owned and operated by in performance, efficiency and innovation. daa and SAA, play a critical role in supporting These improvements can be advanced economic development by facilitating trade, by ensuring that the airport operator is tourism and inward investment. These State enabled to operate at arms-length from the companies, while operating to a commercial Government, is incentivised to make a profit, mandate, ensure that airport investment operates within an appropriate regulatory decisions take account of the wider national framework and has the freedom to make all interest in a way that could not readily be necessary commercial decisions. guaranteed were they owned by private shareholders. The revised arrangements for the three State airports under the State Airports (Shannon
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Group) Act 2014 provide the certainty for achieving the required economic outcomes the airports that has been lacking since the for the State. adoption of the State Airports Act 2004. The separation of Shannon Airport from the Government policy is that Cork Airport daa has introduced a healthy element of could separate from the remainder of the competition to the sector generally, but this daa should this make financial sense for is balanced by recognition of the continued the airport and for the daa. The 2004 Act strategic importance of each State airport. provides the legal mechanism under which this would occur. This position will be In this context, the ownership and reviewed in 2019 in the context of the overall operational structure of all State airports review. In the meantime, Cork Airport will
Airports will be reviewed in 2019 and, subsequently, remain within daa ownership and will continue at five-year intervals, to ensure they are to be represented on the daa Board.
POLICY POSITION The three State airports will remain in public ownership.
ACTION 4.4.1 The Department will review the ownership and operational structure of the State airports in 2019 (and subsequently at 5-year intervals). The initial review will incorporate a fresh consideration of the feasibility of establishing Cork as an independent airport.
4.5 The Future Capacity Their optimal strategy therefore is to Needs of the State make long-term commitments and to work Airports towards outcomes that strengthen the economic potential of the areas they serve. BACKGROUND It is recognised that European airports are Unlike some other aviation stakeholders, currently facing capacity constraints and airports generally cannot reduce or change that this situation will worsen in the context capacity during difficult times. As businesses of expanding aviation services markets. that incur significant sunk costs in terms While existing capacity at Irish State of infrastructure investment, airports by airports is adequate for current demands, necessity must focus on the longer term. it is essential that Ireland is equipped to
A National Aviation Policy For Ireland 47 exploit emerging opportunities to expand air main airports will carefully consider the service connections for business, tourism, implications of global developments in cultural and educational purposes, and thus aircraft size and landing requirements. to deliver economic benefits at the national They will seek to maximise efficiencies level. These opportunities exist not just for of existing runway infrastructure and to new emerging markets in the Asia Pacific determine the appropriate timing of new region, but also with our traditional trading runway developments in order to facilitate partners in Europe and North America. increased connectivity to international markets. The reviews should also consider Air transport requires a specific level other infrastructure developments required of airport infrastructure, both in terms to accommodate the new generation of of quantity and quality, to facilitate the long distance wide-body aircraft in terms Airports optimum level of air services for Ireland. of aircraft size and landing requirements, This includes terminal and runway capacity and to accommodate changing passenger, as well as surface access to airports, and is freight and airline needs. particularly relevant to the development of Dublin Airport as a secondary hub. The capacity reviews will be conducted every 5 years unless, for reasons of unexpected ISSUES or accelerated developments in the market, a more frequent review is considered To ensure future connectivity and to deliver essential. In any event, but without prejudice growth, it will be important that the State to the outcome of the Review of Airport airports, and Dublin Airport in particular, Charges Regulation outlined in Chapter 5 of have sufficient capacity and runways of this Policy, the Dublin Airport review should sufficient length to enable services to be aligned with the timeline and process operate to global emerging markets without for determining maximum airport charges weight restriction. It is important that at Dublin Airport. Hence, the first round of regular reviews are conducted to ensure such capacity reviews should be finalised that all of the main airports are well placed to before the end of 2018. accommodate passenger growth, changing passenger and air-cargo needs and carrier The capacity reviews should also take needs. into account higher-level enterprise and tourism policy objectives and targets. With Given the ever-increasing importance of this objective in mind, the Department will direct access to long haul destinations commission a strategic-level review of for enterprise development, the periodic aviation capacity and infrastructure needs, reviews of capacity requirements at the to be conducted in conjunction with the
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individual airport reviews. The views of secondary hub. Using current aircraft fleets, airport users will be sought as part of the it is currently not possible to reach many review process. emerging markets and new city destinations from the existing runway at Dublin Airport. In a number of submissions to this Policy, In addition, there are peak periods of the concerns were expressed that the legislative day, particularly in the early morning and planning process involves an inordinate time late afternoon, when operational capacity at for public infrastructure developments. For Dublin Airport is constrained as a result of it future airport developments, it is expected not having a parallel runway. that local planning authorities will take this Policy into account when considering Submissions received in the consultation
Airports relevant planning applications. The strategic- phase of this Policy ranged from supporting level capacity review should also assist in the immediate construction of a second runway, identification of projects that are considered to advocating the situation be kept under to be critical for the achievement of this review, to asserting such a runway will not Policy. This should assist airports in any be necessary. The Department’s position is applications to have those developments that the airport should be developed into designated as strategic projects under the a secondary hub over a period of time, scope of the Planning and Development and that this will involve the construction (Strategic Infrastructure) Act of 2006. of a second runway as well as other infrastructure developments. Dublin Airport At the time of finalising this Policy, it is has already secured the land needed, as considered that both Shannon and Cork well as planning permission for a second Airports currently have scope to increase runway; however, the project may need to be passenger numbers with their existing revisited to take account of developments infrastructure and, while some small project in the industry. The CAR determination for investments may be necessary, this is 2015 – 2019 makes certain provisions for likely to be sufficient for their medium term airport investments at Dublin Airport to be development. The framework of capacity accommodated within the airport business reviews outlined above should identify any development plans, including an allowance changes necessary to this position. for the construction of the second runway when passenger numbers exceed 25 million The situation at Dublin Airport differs per year. In this overall context, the process however, particularly in the context of the to develop the second runway should strategic importance of Dublin Airport to commence, in order to ensure adequate national social and economic policy and infrastructure is available when needed. the objective to develop Dublin Airport as a
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A number of submissions received in the access capacity will come under increasing consultation phase addressed the question pressure. The Department’s Strategic of the funding for airport developments Framework for Investment in Land Transport generally and/or specifically for a second proposed the prioritisation of improved runway for Dublin Airport. These submissions connections to key seaports and airports. suggest that capital investments could be made or facilitated by the State. It was Insofar as Dublin Airport is concerned, the also proposed that private funding should National Transport Authority (NTA), as part be considered for the development of a of its planning, is reviewing capacity across second runway at Dublin Airport, in order the Greater Dublin Area (GDA), including the to allow more equitable allocation of the Swords corridor. The Authority will put its cost to users over the lifetime of the asset. Draft Transport Strategy for the GDA out Airports The Department recognises the challenges for public consultation by the end of 2015. for airports in financing “lumpy” capital A high capacity solution for the medium to expenditure needs. Given the fact that State long term for the Swords corridor was the airports have no recourse to Exchequer subject of the Fingal - North Dublin Transport funds, there is a need to consider innovative Study carried out by the NTA. That study, financing instruments, including those including recommendations, is currently available at the EU level and/or involving (August 2015) under consideration by the private funding. Department.
Some submissions received highlighted In relation to Cork and Shannon, there are the need to improve surface-access for no plans for major, new public access both private and public transport to the infrastructure. State airports, as well as the importance of access for enterprise development in the Mindful of the objective to ensure a positive vicinity of the airport. Such access is critical passenger experience and the importance for arriving and departing passengers, as of this to overall tourism policy in pursuit well as for employees of the airport and the of broader economic goals, the Department businesses located there. Notwithstanding will review surface access to airports in the the improvements made to the inter-urban context of developing surface transport motorway providing access to Dublin, programmes. This work will be informed Shannon and Cork Airports, as well as the by outputs of the stakeholder coordination relatively high share of public transport activities of the National Facilitation provision already provided to Dublin Airport Committee (see Section 4.6). (including taxis), economic and traffic growth forecasts suggest that current
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POLICY POSITION Existing capacity at State airports should be optimised in conjunction with timely planning to enable expansion of air service connections in all relevant markets delivering wider economic benefits for Ireland.
ACTIONS 4.5.1 The process to develop the second runway at Dublin Airport will commence, to ensure the infrastructure necessary for the airport’s position as a secondary hub and operate to global markets without weight restrictions is available when needed. 4.5.2 The Department will commission a high-level, strategic capacity review in 2018, taking into account wider government objectives and policies for enterprise and Airports tourism as well as developments in the global market. The views of airport users will be taken into account during the capacity review process. 4.5.3 Taking account of the high-level, strategic capacity review, Dublin, Cork and Shannon Airports will be mandated to carry out reviews of capacity constraints and infrastructure needs at five yearly intervals, the first reviews to be completed before the end of 2018. 4.5.4 Access to the airports will be taken into account during the development of surface transport programmes, in line with the Department’s Strategic Framework for Investment in Land Transport which proposed the prioritisation of improved connections to key seaports and airports.
4.6 Passenger Facilitation ISSUES
BACKGROUND Facilitation requires a high level of interaction and coordination with partners and ‘Facilitation’ refers to the efficient stakeholders responsible for the different management of the flow of passengers, steps of the end-to-end engagement with baggage, cargo and mail through airports, passengers, from flight booking to arrival at while ensuring that services are delivered in the final destination. a healthy, safe and secure environment while meeting, and exceeding when possible, the The Department established a National needs and expectations of customers. Facilitation (FAL) Committee in 2012, bringing together the main stakeholders
A National Aviation Policy For Ireland 51 operating at Irish airports, to identify and 2014, to be implemented over the three year resolve operational issues with a view to period 2015 to 2017. The FAL Committee improving airport operational efficiencies will review and renew this Programme at and thereby improving the passenger the end of this three-year period. The main experience. This committee meets twice issues to be addressed in the Programme yearly and further ad-hoc meetings may be include consideration of best practice in convened for the purposes of addressing deployment of new technologies, queue specific facilitation-related difficulties should management in passport and immigration they arise. control and compliance with international rules on facilitation. Other coordination Quality facilitation requires a high degree activities of the FAL Committee will address of cooperation among airline operators, issues highlighted in this Policy such as Airports service providers, airport authorities and facilitation of air-cargo and surface access inspection agencies. Accordingly, the main to airports. aims of the National FAL Committee are: l to provide a forum for issues to The Committee also provides support to be raised and to identify ways of Ireland’s participation in the facilitation addressing or resolving them; activities of international institutions, such l to promote the sharing of information as ICAO and ECAC, thereby ensuring the and best practices; adoption of best practice. l to provide a useful platform for informing stakeholders of relevant While the National FAL Committee fulfils developments at international level, certain international legal requirements particularly at EU, ECAC and ICAO; and has a distinct role in this regard, its and membership will overlap somewhat with that l to provide a forum where responses to of the National Aviation Development Forum changes in facilitation recommended (see Chapter 9). Care will be taken not to practices can be discussed. duplicate work and to ensure an appropriate level of dialogue between both groups. The work of the Committee is complementary to the proposal in the Department’s Tourism Policy to encourage airports to create a welcoming environment for visitors. The Department published a National Air Transport Facilitation Programme in late
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POLICY POSITION The National FAL Committee, chaired by the Department, will facilitate collaboration of relevant stakeholders and coordination of their activities to ensure the efficient flow of passengers, baggage and cargo through airports. This process will involve all partners and stakeholders with a responsibility for aspects of facilitation and it will maintain a particular focus on improving the passenger experience.
ACTIONS 4.6.1 The Department will continue to host the National FAL Committee meetings with a view to better coordination of facilitation activities between Government Departments
Airports and relevant stakeholders. 4.6.2 The Department will facilitate implementation of the National Air Transport Facilitation Programme 2015 - 2017, and ensure it is reviewed by the FAL Committee every three years. 4.6.3 In line with the Department’s Tourism Policy, airports will be encouraged to prioritise investment in visitor reception facilities in order to remove bottlenecks and to create a welcoming environment for visitors.
4.7 Visas continue to work to maximise the efficiencies that can be gained in the processing of visas, As reflected in the Department’s Tourism in order to maximise the attractiveness of Policy (People, Place and Policy: Growing Ireland as a destination for visitors from these Tourism to 2025), ease of access extends to regions. border controls as well as transport routes. Such controls can be a constraint on the A short-stay visa waiver programme launched growth of aviation business and on tourism. in 2011, allows visitors or business people from 18 countries (including China, India and Given that the UK is likely to remain outside Russia) who have lawfully entered the UK on the Schengen area, it is unrealistic to a valid visa, to travel on to Ireland without the consider that Ireland would become a requirement to obtain an Irish visa. The twelve member of Schengen. That would require the month period (1 July 2013 to 30 June 2014) re-introduction of border controls between showed an increase of 57% in visit numbers Ireland and the UK, including between Ireland from Visa Waiver countries when compared and Northern Ireland. Therefore, the goal is to with the twelve month period immediately prior to the introduction of the Visa Waiver
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Scheme (1 July 2010 to 30 June 2011). a short-stay visa to travel freely within the The Government decided to extend the Visa Common Travel Area between Ireland and Waiver Programme beyond its original finish the UK using a single visa issued by either date of 31 October 2012 until the end of Ireland or the UK. This means that tourists, October 2016. business visitors and other eligible visitors are able, for the first time, to visit both the Building on the success of the Irish Visa UK and Ireland on a single visa. The scheme Waiver Programme, the British-Irish Visa has already been initially launched in respect Scheme was launched in October 2014. of China and India, and is expected to be The Visa Scheme allows nationals requiring rolled out in other markets in the future. Airports
POLICY POSITION The Department recognises the valuable contribution that the visa system can make in promoting growth in tourism and business travel to Ireland and as a means of supporting passenger facilitation
ACTIONS 4.7.1 The Department will support the further development of the British Irish Visa Scheme and other enhancements of the visa system to promote growth in tourism and business visits to Ireland. 4.7.2 The Department, in conjunction with the Department of Justice and Equality, will encourage airports to streamline passenger flows taking full advantage of the Common Travel Area.
A National Aviation Policy For Ireland Introduction 54 A National Aviation Policy For Ireland U G E R Chapter five D N A
O G l N O I T A v R E N E C N A A National Aviation Policy For Ireland 55 Introduction Regulation and Governance
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5.1 Economic Regulation Terminal Charges Economic regulation of aviation terminal BACKGROUND services charges levied by the Irish Aviation Authority (IAA) at Dublin, Cork and Shannon Airport Charges Airports has also been carried out statutorily Dublin Airport is the only Irish airport currently by CAR since 2001 under the Aviation subject to economic regulation of its airport Regulation Act 2001. This regime is being charges, due to its dominant position in the replaced by an EU regulatory regime. Under Irish air transport market. While the airport the Single European Sky (SES) initiative, accounts for around 80% of international air economic regulation of en-route over-flights traffic to/from the island of Ireland, it is in was introduced in 2012. The extension of Regulation and Governance competition with other Irish and European this EU regulatory regime to include aviation airports to attract new routes and services. terminal services charges commenced in In addition, two airlines account for over January 2015 and is planned to be fully 80% of traffic volumes, thereby exerting implemented from 2017. considerable buyer power. These factors provide significant checks and balances to ISSUES its market position. Economic regulation of airport charges at Dublin Airport is based The subject of airport charges regulation on the Aviation Regulation Act 2001 and featured in many of the submissions is implemented by the Commission for received. Issues raised ranged from whether Aviation Regulation (CAR). there is a need for regulation of airport charges to how regulation should be funded It should be noted that the approach to and who should bear the cost. The current economic regulation of airport charges regulatory regime for airport charges dates in Ireland involves heavier regulatory from 2001 and, since that time, difficulties intervention than required by the 2009 EU with the regime and its operation have been Airport Charges Directive. The core model identified on a consistent basis. Successive provided for in the Directive is for direct Ministers have considered it necessary to consultation between airports and airlines issue Policy Directions to CAR in relation on airport charges with disputes being to its airport charges determinations and referred to the independent supervisory these have given rise to objections from body for decision. The Irish model goes airport users. Each of the airport charges further in that the independent supervisory determinations made by CAR has been body approves the maximum level of airport subject to appeals and/or legal challenge. charges, supervises the consultation process A number of the submissions to this policy engaged by the airport, and is also subject reflected those difficulties and issues that to specific statutory appeal procedures. arose during the various challenges to
A National Aviation Policy For Ireland 57 charges determinations. Accordingly, of the three State airports and recent the Department considered it appropriate developments in airline business models and timely to carry out a comprehensive impacting on market power of airports. The review of the airport charges regulatory appropriate scope and degree of intervention regime. Independent consultants were in the market, if any, will be examined by commissioned and the review commenced reference to latest economic analyses and in May 2015. to relevant examples of available models worldwide, including the current Irish model. The review is to take account of the general The examination will also take account of principles, concerning effectiveness, the potential to optimise the competitive predictability, accountability and relationship between Irish airports and the transparency, for economic regulation airlines and to incentivise traffic growth. Regulation and Governance contained in the Government Policy Statement of July 2013 on Sectoral The review will be completed before the Economic Regulation. The review will also end of 2015. Arising from the review and have regard to this Policy in relation to the from consultation with impacted parties, a future capacity requirements of the State clear statement of policy, with a timeframe airports, as well as the requirements of and milestones for implementation, will the 2009 EU Airport Charges Directive in be published at the latest by mid-2016. relation to consultation, transparency, non- Preparations for any necessary changes to discrimination and differentiated services. legislation will be expedited in tandem with the finalisation of the policy. This timeframe The review will be based on an initial will allow for appropriate and timely assessment of current airport market alignment with the CAR’s current airport dynamics, including relative market power charges regulatory period 2015 – 2019.
POLICY POSITION The system of airport charging for Ireland should be fit-for-purpose and appropriate to the Irish aviation market and allow that market to develop in line with the objectives of this Policy, while also taking into account the Government’s statement of general principles for sectoral economic regulation and requirements of the EU Airport Charges Directive.
ACTIONS 5.1.1 An independent review of airport charges regulation will be completed by end-2015. The review will deliver options and recommendations for a future regulatory system for airport charges. The process will involve full consultation with impacted parties. 5.1.2 The Department will finalise and publish its policy on airport charges regulation, and make preparations for any necessary changes to legislation, by mid-2016.
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5.2 Aviation Regulatory sets the maximum level of airport charges Bodies at Dublin Airport. Up to 2015, it regulated Aviation Terminal Services Charges (ATSC) BACKGROUND at Dublin, Cork and Shannon Airports. CAR is the designated independent supervisory In continuing to seek the optimum means of body for the purposes of the 2009 EU delivering public services, the Government Airport Charges Directive, with a duty has committed to restructuring the functions to ensure the correct application of the of the IAA and the CAR. Directive regarding consultation of airport users by the daa. It is also responsible, under IAA EU legislation, for discharging Ireland’s Regulation and Governance The IAA is a profitable, commercial State- responsibilities for schedule coordination/ owned company with three main functions: slot allocation at Dublin Airport, licensing (i) the provision of air traffic management airlines and approving groundhandling and related services in Irish controlled services providers under regulations airspace and on the North Atlantic (dealt implementing EU legislation. In addition, it with in Chapter 3); (ii) the safety regulation has a significant consumer protection role of the civil aviation industry in Ireland; and under EU legislation covering Air Passenger (iii) the oversight of civil aviation security in Rights and the provision of assistance to Ireland. These commercial and regulatory Passengers with Reduced Mobility (PRM). functions give it a critical role in a key area of economic activity in Ireland. In addition, The Government’s overall objective of the Safety Regulation Division (SRD) of the restructuring the functions of the aviation IAA has been designated as the National regulatory bodies is twofold. Firstly, to Supervisory Authority (NSA) for Ireland under put in place appropriate organisational the EU SES legislation, responsible, inter arrangements to provide for effective and alia, for the certification and supervision of efficient safety and economic regulation all Air Navigation Service Providers (ANSPs) of the sector and secondly to ensure the in Ireland. effective and efficient provision of air navigation services. These arrangements CAR should reflect best practice internationally The CAR is a non-commercial, public body and developments in EU SES legislation. which regulates certain aspects of the aviation and travel trade sectors in Ireland. ISSUES The CAR was established under the Aviation Regulation Act 2001 and its principal function Proposals in relation to the regulation of as set down in the Act is price regulation. It airport charges are set out in Section 5.1
A National Aviation Policy For Ireland 59 above. The outcome of the planned review are appropriately distinct and independent of airport charges regulation will have a of ANSPs. Ireland supports the measures significant bearing on how the restructuring to strengthen national regulatory authorities of the functions of the IAA and CAR should and will make the necessary legislative proceed. Developments at an EU level will changes to support any SES requirement also have an important impact on the nature to separate out the functions of the NSA and scope of the restructuring options. The concerning regulatory oversight of ANSPs. development of the EU regulatory regime for air navigation services (en route and In the course of any separation exercise, terminal) under the SES framework, notably care will be taken to ensure effective through the establishment of a performance business continuity and to maintain scheme, is a significant regulatory consistency in aviation safety. It will also Regulation and Governance development. The immediate focus will be necessary to ensure durability in NSA therefore be on ensuring an efficient and funding streams, avoid duplication of effective transition from the national to the functions and the imposition of unwarranted EU regulatory regime for aviation terminal additional costs to airspace users. In this services charges. context, experience elsewhere and input from institutions such as EUROCONTROL In its safety regulation role, the IAA also will be important. has responsibility for regulating the safety of air navigation services. It is structured In the consultation process, comments along the lines of the US Federal Aviation generally supported the principle of Administration (FAA). The alternative model independent regulation. At one extreme, in Europe includes institutional separation the abolition of CAR and privatisation of between service provision and regulation. the commercial (ANSP) function of the IAA EU developments are also likely to have was suggested. However, there was also an impact on the NSA role currently recognition of the quality of the work done discharged by the Air Navigation Standards by the IAA and of Ireland’s excellent safety Department of the IAA’s Safety Regulation record, and a concern at the risks involved Division. The tabling of the European in institutional change. Commentators Commission proposals for SESII+ (COM urged that care should be taken to minimise 2013 410 final,11 June 2013) has resulted any risk to aviation safety in any transition in ongoing debate at an EU level on the process. The need for adequate resourcing requirements needed to ensure that NSAs for the regulator was emphasised.
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POLICY POSITION The Department will ensure that the organisational arrangements and structures for economic and safety regulation of the Irish aviation sector are effective and appropriate.
ACTION 5.2.1 The organisational arrangements for provision of safety and economic regulatory oversight will be restructured taking account of the review of the appropriate model for airport charges regulation (see Action 5.1.1) and of developments and timelines under the SES legislation. In advance of any restructuring options being pursued, there will be full consultation with impacted parties.
Regulation and Governance 5.3 Corporate Governance shareholder are embedded within all levels of corporate and commercial development. BACKGROUND ISSUES The three main international airports and the Irish Aviation Authority are State- To fulfil their important role these State- owned commercial companies. The State- owned aviation companies require an active owned companies are valuable assets with board with the appropriate balance of skills. important economic and social functions. In particular, each board should contain It is incumbent on those entrusted with the members with appropriate accounting, management of these assets that they fulfil legal, commercial and aviation experience. the expectations of the shareholder, the public interest and the economy at large. To The Code of Practice for the Governance do so, these companies require direction and of State Bodies states that boards should clarity as to what those expectations are. regularly review their operation and seek to identify ways to improve effectiveness. The Government’s Public Sector Reform Where gaps are identified, chairpersons Plan, published in November 2011, contains should advise the Minister in due time ahead a number of commitments in relation to of any vacancies arising. improving the performance of State bodies. The Department is committed to ensuring In line with the Government’s commitment that regular meetings at both Ministerial to ensure greater transparency in the State and official levels occur with the boards board appointment process, since 2011 and executives of these companies to the Department has advertised publicly ensure that the expectations of the State as for expressions of interest from suitably
A National Aviation Policy For Ireland 61 qualified members of the public to serve on The Report of the Review Group on State the boards of bodies under the Department’s Assets and Liabilities stated that, in respect remit. In 2014, the Government published of cash dividends from the commercial new Guidelines for Appointments to State State bodies generally, financial returns Boards and future appointments to the were “low and reliability is patchy” (Review State aviation bodies will be governed by Group, 2011). these guidelines. The State-owned aviation companies are a It is important that all board members be diverse group, with companies of differing aware that they are Ministerial appointees capabilities and financial performance. It who, in addition to their legal and fiduciary should also be acknowledged that these responsibilities, must ensure that due regard companies return a non-financial dividend Regulation and Governance is given to Government policy in decision- to the State in the form of the wider socio- making. With this in mind, each board member economic benefits that they provide through on their appointment will receive a letter of trade and tourism facilitation, regional mandate from the Minister outlining matters development, aviation safety etc. additional to their fiduciary duties that they should be aware of during their term. It is Government policy that profitable commercial State companies should In relation to chairpersons, all new and re- pay a financial dividend to the State. The appointed chairpersons will be required guideline figure is 30% of after-tax profits. to appear before the relevant Oireachtas The Government expects the State aviation Committee before their appointment is companies to have a clearly stated dividend made. The only exception to this will be short policy to take account of their current temporary re-appointments. The system financial circumstances and plans for the of board appointments will continue to be future. Depending on circumstances, the informed by developments at Government dividend paid may be more or less than level and the current system may be refined the 30% guideline. Dividend policy should further in the future. take account of issues such as current and projected profitability, capital investment plans and pension funding.
POLICY POSITION The State’s shareholdings in commercial aviation companies will continue to be actively managed with a view to maximising financial and other returns, improving services and supporting economic development. The Department will ensure that the commercial State- owned aviation companies follow best practice corporate governance standards, including the Code of Practice for the Governance of State Bodies.
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5.4 Evolving Business and directly employ staff themselves. In other Employment Models in cases, airlines can sell/offer services that Aviation are delivered by other operators that are contracted-in (aircraft and employees), not BACKGROUND by the airline selling the tickets. In turn, those contractors could be using agency Since the EU internal market in aviation was pilots. This is part of a trend in the EU labour established in the early 1990s, the structure market generally towards more atypical of the air transport market has continued employment arrangements. As things stand to evolve and this has seen steady growth the level of such employment arrangements in the market share of low-cost carriers, in aviation is still significantly lower than the Regulation and Governance intensified competition, continued industry labour market as a whole. consolidation and some airline bankruptcies. The structure of the airline business itself There is a wide range of Irish and EU law has also changed such that the traditional governing employment rights generally, model of an airline buying or leasing an which also apply to employees in the aircraft and operating all or nearly all the aviation sector in Ireland. In addition, the services itself is no longer the norm. EU internal aviation market has had a social dimension from the outset in recognition of Those working in the aviation sector, the inherently mobile nature of the industry. particularly in the airline industry, tend to Sector-specific legislation has also been be highly mobile compared to the general adopted and progressively harmonised workforce. For instance, in the EU it is at EU level creating a framework for the not unusual for an airline employee to be transnational aspects of employment working in many countries from a base in which has become an increasing feature one country, while living in another country of the sector, e.g. working hours for flying altogether. personnel, pilots licensing rules, air traffic controller licensing rules etc. ISSUES The European Commission, in liaison The evolution of the EU internal aviation with member States, regularly monitors market, and developments in the structure the impact of the internal market on of the airline industry have resulted in employment and working conditions. Ireland the creation of increasingly atypical recognises the importance of this work and employment arrangements in the industry. fully supports it as an important element of For example, it is not unusual for airlines the EU internal aviation market. to hire crew from agencies and no longer
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POLICY POSITION Ireland supports the development of a social dimension of the EU internal aviation market, and in other relevant international fora with a view to ensuring that labour rights are not eroded and with appropriate regard to the competitiveness of EU and Irish aviation.
ACTION 5.4.1 Ireland will support the EU’s work in examining the implications arising from the growth in new business models and more complex commercial arrangements for employment in the aviation sector and, in particular, the human factors implications of such arrangements. Regulation and Governance
A National Aviation Policy For Ireland Introduction 64 A National Aviation Policy For Ireland G N I C N A N I F T F A R C R I A Chapter six l
G N I S A E D N A
O R M , A National Aviation Policy For Ireland 65 Introduction Aircraft Leasing, Financing and Mro 66
BACKGROUND The International Interests in Mobile Equipment (Cape Town Convention) Act, Ireland has a very strong tradition and 2005 also provided for State participation reputation in the aerospace sphere. Our in a joint venture that was established to geographical location has given Ireland bid to operate the computerised registry many advantages in aviation, including of financial interests in aircraft (the Maintenance, Repair and Overhaul (MRO). International Registry) that was established Transatlantic aircraft stopping over at under the Convention. The Minister for Shannon boosted the business there and Transport, Tourism and Sport holds a 20% facilitated the development of a significant shareholding in Aviareto, the SPV that was skills base in MRO activity there. The MRO established for this purpose. Aviareto was Aircraft L easing, Financing and MRO Aircraft industry plays an important supporting selected by the International Civil Aviation role in the wider aviation sector in Ireland Organisation (ICAO) to set up and run the supporting airline and airport activity, International Registry. Its initial five year aircraft leasing and finance activity and term was renewed by the ICAO Council in manufacturing. 2011 and the Council recently decided to renew its contract for a third five year term Ireland is considered the birthplace of ensuring that the Registry will remain based aircraft leasing and today it is one of the in Ireland and operated by Aviareto until at main industries in which Ireland is a global least 2021. leader. Aircraft leasing and finance employs approximately 1,000 people directly and The growth of aircraft leasing was also 2,000 indirectly in highly paid professional greatly facilitated by targeted tax rates and positions. The total annual tax contribution rulings as well as the development of a to the Irish Exchequer from aircraft leasing comprehensive network of tax treaties. is over €300 million per annum. In addition, total expenditure by aircraft lessors on Irish The industry was further facilitated by the professional services and infrastructure is IAA’s decision to support the registration on estimated to be in excess of €135 million the Irish Aircraft Register of aircraft based per annum. off-shore pursuant to Article 83bis of the Chicago Convention. The State has taken a number of steps in The Embassy network plays an important recent years to bolster Ireland’s preeminent role in facilitating the development of the position in aircraft leasing. Ireland was one international aircraft leasing industry in of the first countries to sign and ratify the Ireland. Cape Town Convention and its associated Aircraft Protocol.
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ISSUES and now includes most of the world’s major economies, accounting in aggregate for Global air transport is growing at a more than 80% of world GDP. The number phenomenal rate, outstripping economic of tax treaties has doubled in recent years; growth globally by three to four-fold. The Ireland now has signed comprehensive International Air Transport Association’s double taxation agreements with 72 (IATA) Airline Industry Forecast 2013-2017 countries, of which 68 are in effect. In shows that airlines expect to see a 31% order to maintain Ireland’s status as the increase in passenger numbers between preeminent global centre for aircraft 2012 and 2017. By 2017 total passenger leasing, this policy will be continued and numbers are expected to rise to 3.91 billion developed. There are already plans in the - an increase of 930 million passengers pipeline for further agreements. In this L easing, Financing and MRO Aircraft over 2012. A very significant amount of context, there will be a particular focus on the forecast growth will be in Asia-Pacific emerging markets with which Ireland does and in the Middle East indicating that not currently have tax treaties. the centre of global aviation is gradually shifting eastwards. This growth and shifting Attracting key personnel in the industry emphasis presents both an opportunity to Ireland presents a challenge as other and challenge to established industries in jurisdictions, particularly in Asia, are the sector including those in Ireland and, in actively pursuing this internationally mobile particular, MRO and aircraft leasing. The business. Personal taxation initiatives Government is committed to continuing have been introduced in recent Budgets, to support the industries to sustain and including significantly, the Special Assignee develop their position. Relief Programme (SARP) which is aimed at attracting senior overseas executives There are significant opportunities for to take up assignments here by offering a continued growth and employment in reduction in their overall income tax liability. aircraft leasing and appropriate policies will Following a review of the programme, in be pursued to facilitate this. Budget 2015, the Government announced the extension of the programme for a further Taxation three years and a number of changes to it It is generally accepted that we have to improve its attractiveness, including the developed an excellent tax treaty network removal of the upper salary threshold. Such which greatly facilitates aircraft leasing initiatives will help to maintain and increase activities from Ireland. Our tax treaty Ireland’s attractiveness for key executives in network compares very favourably with the the leasing industry. networks of other larger OECD countries
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Aviation Finance another, substantial work is required in the In spite of Ireland’s strengths in the aviation transition to meet company and regulator’s and financial services sectors, aviation requirements. Ireland is well placed to finance is not well developed in Ireland develop as an aircraft transitioning centre, and there is an opportunity for Ireland to to underpin the success of the aircraft leverage its strengths in aircraft leasing to leasing and MRO sectors and to support establish itself as a global hub for aircraft their future growth. financing. Currently, transitioning occurs on a highly One of the actions committed to in the Action fragmented basis across numerous sites Plan for Jobs 2013 was to facilitate aircraft and jurisdictions. Creating a system of Aircraft L easing, Financing and MRO Aircraft financing in Ireland, in particular, enhanced excellence around the various service equipment trust certificates (EETCs) and professionals capable of addressing all enabling asset backed securities (ABS) of the tasks in Ireland could capture this debt financing. In the Finance Act 2013, activity and help underpin Ireland’s existing stamp duty exemption was introduced for success in aircraft leasing and MRO. EETCs. To facilitate the issuance of EETCs, it is considered necessary to implement the One of the key differentiators between the insolvency regime known as ‘Alternative A’ Irish aviation system and other competitor under the Cape Town Convention, in Irish countries is the high level of collaboration law. This was facilitated through provisions and supportive competition that exists in the State Airports (Shannon Group) Act, within the aviation community – for example, 2014. The ‘Alternative A’ regime enables lending of equipment and knowledge financiers to get access to their aircraft transfer. In addition, there is recognition assets in the event of default or insolvency across the sector of the inter-dependence of more speedily than they would under national the different service providers in completing insolvency law as it stands. Adoption of specialist tasks (e.g. maintenance and these arrangements will improve Ireland’s transitioning of aircraft). Such collaborations attractiveness as a jurisdiction for aviation should be encouraged and facilitated to finance. allow the Irish aviation sector to offer a total package of service solutions across the Ireland as an Aviation aviation sector. Transitioning Centre Each year, about 2,000 commercial aircraft Aviation Business Development are moved globally by leasing companies – International Aviation Services from one airline to another. When an Centre (IASC) aircraft changes from one company to Many issues related to aircraft leasing
A National Aviation Policy For Ireland 69 and aviation finance were examined by the entered into force in 1997. This Article Shannon Aviation Business Development permits certain state of registry functions Task Force whose report of November 2012 (e.g. flight operations) to be partially is available on the Department’s website. transferred to another State and provides The Task Force pointed to the opportunities for the international legal recognition of such to develop and expand the range of a transfer. ICAO guidance on the operation aviation services available in and around of Article 83bis is contained in ICAO Circular the airport campus in Shannon, drawing 295 published in 2003. on its geographical location (uncongested airspace), good airfield facilities, ample The capability of EU member States to adjacent land, an existing foothold in aircraft use Article 83bis was preserved in the leasing and maintenance operations with a EU Regulation establishing the European L easing, Financing and MRO Aircraft skilled, English-speaking workforce and US Aviation Safety Agency (EASA) and in preclearance facilities. its successor (Regulations 1592/2002 and 216/2008 respectively). The EU is Following the enactment of the State reviewing Article 83bis applicability to Airports (Shannon Group) Act 2014, the Member States in the context of the EASA International Aviation Services Centre (IASC) Regulations. Ireland is advocating for the was established as a strategic business continued applicability of Article 83bis to unit within the newly-created, commercial intra-EU leases and extra-EU leases, and will State company, Shannon Group. Through continue to do so. the activities of IASC, Shannon Group will seek to maximise the synergy between the Article 83bis has also been the subject of Group’s functions in Shannon, including the renewed discussion at ICAO level in recent airport business, the property business years in the context of the safety aspects of Shannon Commercial Enterprises, and of economic liberalisation in the global the tourism operator business of Shannon air transport market. In July 2014 ICAO Heritage. In this way, IASC will act as a established a dedicated Task Force on catalyst for the development of strategic Article 83bis with the principal objective of sectoral opportunities, with a particular updating ICAO guidance circular 295. Due focus on the development of Shannon as an to Ireland’s extensive experience in the use Irish aerospace hub. of Article 83bis agreements, Ireland was invited to participate on the Task Force. Article 83bis Arrangements This will provide an opportunity to bring our The practice of placing aircraft on the Irish national expertise in this area to bear on the Register for lease to foreign airlines for use future development of the ICAO guidance abroad is based on the provisions of Article material. 83bis of the Chicago Convention which
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POLICY POSITION Ireland recognises the valuable contribution that the aircraft leasing, finance and MRO industries make in their own right and in supporting other activities in the wider aviation sector. We are committed to maintaining and building Ireland’s attractiveness as a base for these activities and particularly to creating the conditions to grow employment in these industries.
ACTIONS 6.1 Ireland will fully adopt the Cape Town ‘Alternative A’ insolvency arrangements, and will promote this benefit for aviation finance.
Aircraft L easing, Financing and MRO Aircraft 6.2 Ireland will advocate for the continued applicability of Article 83bis arrangements at EU level and will actively participate in work on developing ICAO guidance on Article 83bis through participation in the ICAO Task Force established in 2014. 6.3 Ireland will encourage the development of the International Aviation Services Centre (IASC) at Shannon.
A National Aviation Policy For Ireland N O I T A C U D A E R E N E G Chapter seven l a v
D N A N O I T A I
G N I N I A R T , A National Aviation Policy For Ireland 71 Introduction General Aviation, Education and Training 72
BACKGROUND very high economic value, both direct and indirect. In addition, GA has wider economic The International Civil Aviation Organisation benefits through the impact it has on other (ICAO) defines ‘general aviation’ as “all civil sectors of the economy, including GA’s role aviation operations other than scheduled air in the training of airline pilots and its role in services and non-scheduled air transport air transport. This role also raises issues for operations for remuneration or hire”. For pilot training and education generally. ICAO statistical purposes, general aviation (GA) activities are classified into “instructional 7.1 Corporate Aviation flying, business flying, pleasure flying, aerial work and other flying.”
General Aviation, Education and Training and Education Aviation, General ISSUES
In Ireland, GA activities include aero- In general, corporate aviation is not medical, flight training and aerial work such recognised as a separate sector in Europe as agricultural aviation, aerial photography although it is within the US. The rules and and surveying. It also includes corporate, regulations associated with this sector private recreational, sports aviation and are those of general aviation, even though parachuting. Remotely Piloted Aircraft many of the aircraft involved are large and Systems (RPAS) are a significant growth complex. As a result, corporate aviation area in GA and are referenced in Chapter 2. lies between but is distinct from both commercial air transport operations and GA supports businesses such as airfields, general aviation. Regulatory initiatives at hangar provision and maintenance providers. EU level to establish a separate corporate A broad spectrum of aircraft types is aviation sector are supported. involved. These include large corporate jets, corporate and private helicopters, light The recent establishment by the IAA of aeroplanes, microlights, sailplanes (gliders), an ‘Executive Jet Register’ in Ireland will gyroplanes and balloons. The scope of generate various downstream activities at GA activities ranges from intercontinental State and regional aerodromes. business travel to local flying out of private fields. US preclearance of corporate GA flights has been available at Shannon since 2009. As GA covers a very wide range of activities Because of its geographical location, and has many participants, its economic Shannon is well positioned to serve value is equally varied. Recreational flying is, corporate GA flights between Europe and in general, likely to have considerable social North America. Shannon has also been or utility value. Corporate GA may have
A National Aviation Policy For Ireland 73 actively engaged in developing a cluster of cluster of corporate aviation companies. In business aviation companies, with a focus relation to the new Executive Jet Register, on developing a ‘Centre of Excellence for for example, Shannon is an approved Business Aviation’. This can represent a marketing partner for the Register and significant business opportunity to grow the offers a one-stop-shop for business aircraft corporate GA base by using Shannon as the owners wishing to use this and other GA location for new foreign direct investments related services located in the airport. (FDI) which will be enhanced by the existing
POLICY POSITION
The role of GA and corporate aviation in supporting specific businesses in the aviation sector, Training and Education Aviation, General particularly in a regional context, is recognised and will be supported.
ACTIONS 7.1.1 Ireland will support any regulatory initiatives at EU level to establish a separate corporate aviation sector. 7.1.2 Ireland will promote the use of US preclearance facilities and of the Executive Jet Register, particularly at Shannon, by the general aviation sector. 7.1.3 Shannon will be designated as a ‘Centre of Excellence’ for Business Aviation.
7.2 Flight Training and Third hundreds of pilots for domestic and foreign Level Education airlines since the early 1990s. This training has traditionally been completed on a ISSUES modular basis, with training tailored to meet the needs of an individual. More recently, Training and education need to be developed airlines have looked more to graduates to support the future demands of aviation from flight schools that provide a full time services and the aviation industry in Ireland. approved integrated course of flight training such as is required for a European Pilot The rapid growth of commercial airline Licence. Currently there are a number of activity worldwide and the consequent IAA approved Aviation Training Organisations demand for airline pilots has created (ATOs) in Ireland that provide these courses. opportunities for flight training schools in Ireland. Irish flight training schools engaged Difficulties have been experienced in Ireland, in professional pilot training have trained as in some other EU member States, with
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the demise of a number of flight training aspects of aviation, including aeronautical schools and this has led to calls for a engineering, aviation technology, aircraft bonding scheme or other form of insurance systems and aviation management. Often for them. However, it is considered that such degree courses will combine with other this would increase costs in the sector and professional training and development, such dissuade organisations from remaining or as flight training and pilot studies. Third establishing themselves in Ireland. While level courses are graded on the National the training requirements for pilots will be Framework of Qualifications (NFQ). All such driven by the future needs of the aviation initiatives are to be encouraged, including industry, there is also a need for continued those involving collaboration between third emphasis on the delivery of safe and level institutions, industry partners and/or
General Aviation, Education and Training and Education Aviation, General competent trained pilots and for training airports. that is consistent with European standards of technical competence and quality control. Skillnets, which was established in 1999 and In order to maintain competitiveness in funded from the National Training Fund (NTF) this sector, training provision must keep through the Department of Education and pace with wider industry requirements and Skills, supports and works with businesses developments in international standards. to address their current and future skills needs, including opportunities for training There are a range of third level courses in the aviation leasing and financing sector. in Ireland focussing on many different
ACTIONS 7.2.1 Ireland will support the continued development of flight training. 7.2.2 Ireland will, through the National Aviation Development Forum, continue to identify courses and post-qualification certification requirements, in the development of technical and business degrees, to meet the needs of the Irish aviation industry. 7.2.3 Initiatives between education, industry and/or airport partners will also continue to be encouraged and supported.
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7.3 Maintenance Licensing FÁS / Solas also supports a number of traineeships in aircraft mechanic. These ISSUES traineeships are of shorter duration than the apprenticeship but they also provide the Aviation maintenance requires a growing trainee with the opportunity to attain a task number of licensed aircraft maintenance limited maintenance licence. engineers to meet the demands from the Irish aviation industry and maintenance repair and overhaul organisations (MROs). Given the importance of having a good supply Ireland currently has four approved of qualified personnel, it is necessary that the maintenance training organisations that availability of aviation engineering courses, provide basic training to qualify for an aligned with industry needs, is maintained. Training and Education Aviation, General aircraft maintenance licence. In addition, skilled engineers from aviation and other relevant backgrounds can benefit FÁS / Solas has statutory responsibility from the opportunity to take up employment for the national apprenticeship of ‘Aircraft in the aerospace sector, in particular in Mechanic’. The trade of aircraft mechanic areas relating to research, technology has remained consistently strong even and innovation now delivering enhanced during the recession and is one of the competitive advantage and job creation. best performing of the 26 approved trade apprenticeships. In August 2013, FÁS in A skilled workforce of mechanics, engineers conjunction with the IAA and other aviation and other qualified personnel in the MRO industry partners launched the revised sector is also a core supporting element curriculum for the aircraft mechanic toward the overall policy as set out under apprenticeship. The apprenticeship now Chapter 6 - Aircraft Leasing Financing includes all the training necessary for the and MRO, for future aviation business apprentice to attain a European aircraft development and the development of the maintenance licence. International Aviation Services Centre (IASC) at Shannon.
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ACTIONS 7.3.1 Ireland will support the development of opportunities for work placement programmes for aviation industry students and for professionals from aviation and other relevant backgrounds to take up employment in the aerospace sector. 7.3.2 Ireland will support the continued development of aircraft maintenance training. The IAA will continue to work closely with airlines, MROs and FÁS / Solas to develop and improve the aircraft mechanic apprenticeship and traineeships, to meet the changing requirements of the aviation maintenance sector. 7.3.3 Ireland, through the IAA, will continue to work with other European member States and EASA with a view to developing appropriate maintenance licence requirements
General Aviation, Education and Training and Education Aviation, General for light aeroplanes, balloons and sailplanes.
7.4 Pilot Licensing and these licences are recognised EU- wide. Aircraft falling within the Annex II ISSUES category under the principal EU Regulation 216/2008 governing this area, are exempt Under the new European regulatory regime from the EASA licensing regime. Therefore, and the European Aviation Safety Agency the pilot licence for operating these Annex (EASA), the majority of the functions within II aircraft is administered by the IAA and the GA sector will come under the scope of recognised nationally. However, under an common European and EASA Regulations, implementing EU Regulation concerning with only a few remaining the sole flight crew licensing, which came into effect responsibility of national aviation authorities in 2012, the new rules have resulted in (the IAA in Ireland’s case). The IAA will, aircraft under Annex II, which are engaged however, continue to have responsibility for in specific activities such as aerobatic oversight of EASA regulated activities within flying, sailplane towing, mountain flying the State. and banner towing, to now require an EU licence. This has created anomalies that Pilot licensing is governed by EU Regulation need to be addressed.
ACTION 7.4.1 The Department and the IAA will continue to work closely with EASA towards the elimination of anomalies in the requirements for pilot licences, including the potential extension of the mutual recognition of licences in EU States.
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7.5 Recreational and Sport In Ireland the safety regulation of the use Flying and operation of aircraft falling within Annex II of the EU Regulation 216/2008, which ISSUES are exempt from its requirements, is within national competence of the IAA. Some There is a significant amount of recreational elements of safety regulation concerning and sport flying activity in Ireland. It is the airworthiness requirements, where important to ensure that these activities appropriate, are carried out by voluntary are carried out safely, for the benefit of organisations in this sector which meet IAA those directly involved with GA and for the standards and checks. general public. The General Aviation Safety Training and Education Aviation, General Council of Ireland (GASCI), is focused on With planned developments at EU level it improving the standards of safety within GA is likely that, over time, EU regulation will operations. move towards even greater harmonisation of the administration of licencing across Under the new EU regulatory regime there the commercial and general aviation is central safety oversight by EASA and the sectors. The fragmented and limited size majority of the safety functions within the GA of the GA community in Ireland may create sector will fall under the scope of common challenges in this regard. However, it is also European Regulations. The IAA will continue possible that EU proposals could involve a to have a responsibility for oversight of less prescriptive regulatory approach with EASA regulated activities within the State. regard to Annex II aircraft.
ACTION 7.5.1 The IAA will work closely with EASA regarding future developments in the EU regulatory regime affecting the GA sector.
A National Aviation Policy For Ireland Introduction 78 A National Aviation Policy For Ireland photo t t a t s chapter eight i s i c s A National Aviation Policy For Ireland 79 Introduction Statistics
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BACKGROUND Some airports also conduct passenger surveys which are not made generally The importance of collecting statistical available. It is considered that results of information on the aviation sector into a such surveys at Irish airports showing, for central repository, including statistics on example, passenger behaviour, duration passenger numbers and air traffic movement of stay, journey start, destination, journey at our airports, and having such information purpose, etc., would be beneficial to readily available to industry stakeholders, all industry stakeholders. Commercial was raised during the consultation process. sensitivities would have to be protected.
ISSUES The gaps in the availability of reliable data Statistics for Irish air-cargo, particularly in relation to The Department believes that access to the level of air-trucking, as mentioned in such information is important in informing, Section 3.3 of this Policy, also need to be developing and monitoring aviation policy. addressed as such data also plays a key Having such information readily available role in evidence based policy making. and accessible will improve the relevance, efficiency and effectiveness of policy In the UK, a large amount of data on the reforms. aviation industry has been collected for many years by the Civil Aviation Authority Currently, in Ireland, responsibility for the (CAA). It publishes much of this information, collection of passenger statistics falls to the such as punctuality data, airline charges and Central Statistics Office (CSO). The CSO’s ATOL licence holders, to help consumers website contains statistics on international make an informed decision on air travel. movement of passengers, passenger Information is also recorded on other areas movements by Irish airports, direction, such as the profile of passengers, the level foreign airport and month. of air traffic at airports and the most popular The Irish Aviation Authority (IAA) also destinations served by UK airports. In its publishes statistical information on its role as a safety regulator, the CAA records website. Information on en-route and airport significant levels of safety data from the UK commercial movements, flight statistics and industry, ranging from aircraft accident and key business statistics including turnover, incident data to air proximity reports and profit and air traffic activity are readily long-term worldwide safety trends. Such available. The Authority does not, however, statistical information is published on the keep passenger statistics. gov.uk website.
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It is recognised that there is a need in Ireland A review of the data collected and how that to collect relevant industry data into a single data is being disseminated will be carried location where it can be accessed by the out no later than five years following the relevant stakeholders. appointment of the central body responsible for collecting the data. The Department will engage with the various stakeholders to identify what statistical In the interim and alongside the above information needs to be collected, who process, the Department’s Economic will have responsibility for ensuring the Evaluation Unit will publish annually its accuracy of such information and keeping “Transport Trends” document. The contents it up to date, who will have responsibility for of that publication will be based on data carrying out and reporting on passenger obtained from various official sources and Statistics surveys and most importantly, where that internal data. It will give a concise overview information will be located. In designing of the key developments that are evident the collection and repository processes, from the latest Irish transport data and current practices in the UK and across the feature key data specific to the aviation EU will be examined. sector.
POLICY POSITION A central repository of relevant statistical information on the aviation sector will be put in place to assist policy formulation.
ACTIONS 8.1 The Department will publish basic statistical information on its website, including passenger numbers (international, transit, domestic, etc.), new routes, cargo carried and airport commercial movements by end 2015. 8.2 The Department will develop this dataset in 2016 following engagement with key stakeholders to identify and prioritise additional statistical information required by the industry. 8.3 As part of that process, a decision will be made before end 2016 on optimal organisational arrangements for the collection and dissemination of the agreed dataset. 8.4 A review of the range and relevancy of the data published will be carried out by the Department in 2020, with further reviews being carried out every 5 years thereafter.
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BACKGROUND Development Forum’ to be established to unify the efforts of all of the relevant State The Department of Transport Tourism and agencies and to secure the benefit of the Sport recognises the important contribution expertise and insight of industry participants that industry and other parties can make and others. in the development and implementation of policy, both at a national and international The Civil Service Renewal Plan launched by level. That recognition was a key driver the Taoiseach and the Minister for Public behind the level of consultation undertaken Expenditure and Reform in October 2014 in the development of this policy including commits to a more open approach to policy a day-long conference in the Convention making and the proposal for the creation Consultation Centre Dublin and the subsequent of a National Aviation Development Forum publication of an Issues Paper, followed by responds to the specific commitment to a draft of this Policy in May 2014. “host regular, open policy debates involving networks of practitioners, academics and ISSUES experts in developing and debating policy options at an early stage”. The Department consults stakeholders on developments in the sector on a regular Eighteen bodies submitted observations basis both directly and through structures on the proposals on consultation and all such as the National Civil Aviation Security supported the establishment of a National Committee and the National Facilitation Aviation Development Forum. All of those Committee. In addition, the Department that expressed support also expressed routinely invites stakeholders to provide an interest in participating on the Forum. views on legislative proposals published Agreeing to participation by all of these by the European Commission in order to entities would likely result in an unwieldy inform the position to be adopted by Ireland Forum which would not be as effective as a in negotiations in the Council. However, the more focused body. Department recognises that there is scope to improve and supplement these formal At its core the Forum will include the and informal consultation arrangements. Department of Transport Tourism and Sport, representatives of the main airports In the consultation process, strong support and airlines, the finance and leasing sector was expressed for a ‘National Aviation and the IAA.
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Those that will also be invited to participate the Forum will be a means of brain-storming as necessary will include other Government strategic proposals to further advance the Departments whose work impinges on aviation sector in Ireland and an opportunity the sector, representatives of third-level for dialogue on significant issues among the institutions, representatives of the MRO participants. industry, Enterprise Ireland, IDA, and users of aviation services. It is particularly encouraging that a number The National Aviation Development Forum of specific projects were proposed by will co-ordinate the promotion of the aviation respondents to the consultation process industry in Ireland, with job creation as the and these can be developed within the underlying key driver. The National Aviation Forum. Specifically, these include evaluating
Development Forum will also consider the the potential to establish an aircraft cabin Consultation position to be adopted by Ireland on key configuration service to support the leasing issues of relevance to the sector that are industry. Another suggestion that will be being discussed in international fora including developed is a proposal for a strategy to the European Union, EUROCONTROL and establish Ireland as a training, conventions ICAO. Sub-groups will be established and conference centre of excellence for the where considered necessary to focus on international aviation sector. particular issues or proposals. In summary
POLICY POSITION The Department will enhance its arrangements for consulting with the industry on the development of national policy and on influencing the development of the EU and international policy affecting aviation in Ireland.
ACTION 9.1 Ireland will establish a National Aviation Development Forum led by the Department of Transport Tourism and Sport and with appropriate representation from across Government and the industry.
A National Aviation Policy For Ireland IntroductionGeneral Aviation, Education and Training 86 A National Aviation Policy For Ireland photo A : 3 A : 2 A : 1 APPENDIces N O R C R E S N O I T C O S E M O R D y S M A National Aviation Policy For Ireland 87 IntroductionGeneral Aviation, Education and Training Appendix 1
88 ACTIONS
1.1 Ireland, as part of the ABIS Group, will seek nomination for election to the ICAO Council for the period 2016-2019. 1.2 The Department of Transport, Tourism and Sport will consult with the National Aviation Development Forum (see Chapter 9) on the development of the international legislative and regulatory agendas 1.3 Ireland will input to the proposed EU Aviation Package at an early stage to influence the development of proposed measures 2.1.1 Ireland, through the Department and the IAA, will play an active role in the development of aviation safety regulations at an EU level and in ICAO. 2.1.2 Ireland will continue to maintain an independent safety investigation authority for the investigation of aviation occurrences. 2.1.3 The Department and the IAA will coordinate the State Safety Programme, including risk management. 2.1.4 Ireland will continue to facilitate and promote occurrence reporting in accordance with EU
Appendix 1 law and ICAO requirements and to meet the highest standards of independent accident investigation. 2.1.5 The IAA will establish and monitor appropriate key aviation safety indicators based on the EASA system 2.1.6 The IAA and AAIU will monitor aviation safety trends through ECCAIRS analysis. 2.1.7 Ireland will contribute to work at EU level to develop and implement an appropriate EU- wide safety regulatory framework for the operation of Remotely Piloted Aviation Systems in civilian airspace. 2.2.1 Ireland will allow greater flexibility to industry through the introduction of an outcome- focussed, risk-based approach to security regulation. 2.2.2 Ireland will introduce a more targeted and comprehensive approach to compliance monitoring and developing requirements for SeMS, similar to the successful approach already implemented in the field of safety. 2.2.3 Ireland will place a risk-based approach to security at the heart of our thinking and of our future research. As a first step in this direction we will initiate a feasibility study in 2015, in conjunction with other key stakeholders, on the concept of a “Trusted Traveller” Programme. 2.3.1 Ireland will work with European partners to achieve the development of global international standards for market based measures on aircraft emissions 2.3.2 Ireland will develop its aviation emissions reporting capability in support of ICAO’s evolving environmental policies 2.3.3 Ireland will, in consultation with interested parties, update its National Action Plan for Emissions Reductions in 2015 in line with the ICAO 2013 Resolution on Climate Change. 2.3.4 Ireland will encourage research and development in Ireland of clean engine technologies and sustainable fuels. 2.3.5 Ireland will implement a “Balanced Approach” to noise management at Irish airports in accordance with Regulation (EC) No.598 of 2014 on the establishment of rules and procedures with regard to the introduction of noise-related operating restrictions at Union airports. 2.3.6 Ireland will develop an Adaptation Plan for the Transport Sector, which will include adaptation options for airports and aviation services in line with national legislative obligations and the EU Adaptation Strategy 3.1.1 The Department will increase and extend Ireland’s bilateral agreements with other States.
A National Aviation Policy For Ireland 3.1.2 Ireland will continue to actively support EU efforts to negotiate full Open Skies agreements 89 with third countries. 3.3.1 An overall freight policy for Ireland, covering all modes, will be developed with a view to ensuring the continued competitiveness of the freight sector, and will include consideration of the role of air-cargo. 3.3.2 The Department will seek to remove limits on all air-cargo capacity in Ireland’s bilateral air transport agreements. 3.3.3 The Department will engage with the relevant stakeholders under the auspices of the National Facilitation Committee on air-cargo. (See Section 4.6). 3.3.4 Dublin and Shannon Airports, in partnership with the other players in the air-cargo industry, will be mandated to develop and publish strategies on air-cargo
3.3.5 The development of Shannon Airport as an air-cargo hub will be supported. 3.3.6 The Department will continue to liaise with other Government bodies and the US authorities on the regime for exports to the US in order to facilitate efficient freight
operations at airports Appendix 1 3.4.1 The Department will maintain close formal links with the US authorities to ensure the continued delivery and development of US Preclearance facilities at Dublin and Shannon Airports. 3.4.2 The Department will encourage Dublin and Shannon Airports and airlines to maximise the benefits to Ireland of preclearance facilities and will promote the development of those airports as preclearance centres. 3.4.3 The Department will support Shannon Airport in seeking to increase the number of GA aircraft utilising preclearance. 3.5.1 Ireland will continue to encourage investments in modern, technologically advanced, cost-efficient aviation infrastructure, including those that underpin Ireland’s interest in the North Atlantic and the future traffic growth at our airports 4.1.1 The Department will monitor the business development of all airports for evidence that the prevailing network is operating at an optimum level. Monitoring will occur within the framework of developments under EU rules and the structural and capacity reviews referred to in Section 4.4. 4.1.2 The Department, the airports and the tourism agencies will continue to work together to increase access to Ireland from high-potential overseas tourism markets. 4.2.1 Ireland will implement an EU approved Framework (Regional Airports Programme 2015 - 2019) of supports for regional airports. 4.2.2 Exchequer support for operational expenditure at regional airports will be phased out over a maximum period of 10 years, in accordance with EU Guidelines 4.2.3 Exchequer support for capital expenditure will be limited to safety and security related expenditure. 4.2.4 Clear business plans will be required from the airports seeking supports. In considering funding to regional airports, the Department will take account of the level of regional involvement, including investment by local authorities and/or business. 4.2.5 From 2015, PSO contracts, for Donegal/Dublin and Kerry/Dublin air services will run for two years initially and, subject to a satisfactory review after 18 months, may be extended by a maximum of one year. 4.3.1 Dublin Airport will be promoted as a secondary hub airport.
A National Aviation Policy For Ireland 90 4.3.2 The roles of the Cork and Shannon airports as key tourism and business gateways for their regions, and particularly with regard to the development of key niche markets, will be supported 4.4.1 The Department will review the ownership and operational structure of the State airports in 2019 (and subsequently at 5-year intervals). The initial review will incorporate a fresh consideration of the feasibility of establishing Cork as an independent airport. 4.5.1 The process to develop the second runway at Dublin Airport will commence, to ensure the infrastructure necessary for the airport’s position as a secondary hub and operate to global markets without weight restrictions is available when needed 4.5.2 The Department will commission a high-level, strategic capacity review in 2018, taking into account wider government objectives and policies for enterprise and tourism as well as developments in the global market. The views of airport users will be taken into account during the capacity review process. 4.5.3 Taking account of the high-level, strategic capacity review, Dublin, Cork and Shannon Airports will be mandated to carry out reviews of capacity constraints and infrastructure needs at five yearly intervals, the first reviews to be completed before theendof
Appendix 1 2018. 4.5.4 Access to the airports will be taken into account during the development of surface transport programmes, in line with the Department’s Strategic Framework for Investment in Land Transport which proposed the prioritisation of improved connections to key seaports and airports. 4.6.1 The Department will continue to host the National FAL Committee meetings with a view to better coordination of facilitation activities between Government Departments and relevant stakeholders 4.6.2 The Department will facilitate implementation of the National Air Transport Facilitation Programme 2015 - 2017, and ensure it is reviewed by the FAL Committee every three years. 4.6.3 In line with the Department’s Tourism Policy, airports will be encouraged to prioritise investment in visitor reception facilities in order to remove bottlenecks and to create a welcoming environment for visitors 4.7.1 The Department will support the further development of the British Irish Visa Scheme and other enhancements of the visa system to promote growth in tourism and business visits to Ireland. 4.7.2 The Department, in conjunction with the Department of Justice and Equality, will encourage airports to streamline passenger flows taking full advantage of the Common Travel Area. 5.1.1 An independent review of airport charges regulation will be completed by end-2015. The review will deliver options and recommendations for a future regulatory system for airport charges. The process will involve full consultation with impacted parties 5.1.2 The Department will finalise and publish its policy on airport charges regulation, and make preparations for any necessary changes to legislation, by mid-2016 5.2.1 The organisational arrangements for provision of safety and economic regulatory oversight will be restructured taking account of the review of the appropriate model for airport charges regulation (see Proposal 5.1.1) and of developments and timelines under the SES legislation. In advance of any restructuring options being pursued, there will be full consultation with impacted parties. 5.4.1 Ireland will support the EU’s work in examining the implications arising from the growth in new business models and more complex commercial arrangements for employment in the aviation sector and, in particular, the human factors implications of such arrangements 6.1 Ireland will fully adopt the Cape Town ‘Alternative A’ insolvency arrangements, and will promote this benefit for aviation finance.
A National Aviation Policy For Ireland 6.2 Ireland will advocate for the continued applicability of Article 83bis arrangements at EU 91 level and will actively participate in work on developing ICAO guidance on Article 83bis through participation in the ICAO Task Force established in 2014. 6.3 Ireland will encourage the development of the International Aviation Services Centre (IASC) at Shannon. 7.1.1 Ireland will support any regulatory initiatives at EU level to establish a separate corporate aviation sector. 7.1.2 Ireland will promote the use of US preclearance facilities and of the Executive Jet Register, particularly at Shannon, by the general aviation sector 7.1.3 Shannon will be designated as a ‘Centre of Excellence’ for Business Aviation. 7.2.1 Ireland will support the continued development of flight training. 7.2.2 Ireland will, through the National Aviation Development Forum, continue to identify courses and post-qualification certification requirements, in the development of technical and business degrees, to meet the needs of the Irish aviation industry 7.2.3 Initiatives between education and industry, industry and/or airport partners will also continue to be encouraged and supported 7.3.1 Ireland will support the development of opportunities for work placement programmes Appendix 1 for aviation industry students and for professionals from aviation and other relevant backgrounds to take up employment in the aerospace sector. 7.3.2 Ireland will support the continued development of aircraft maintenance training. The IAA will continue to work closely with airlines, MROs and FÁS / Solas to develop and improve the aircraft mechanic apprenticeship and traineeships, to meet the changing requirements of the aviation maintenance sector 7.3.3 Ireland, through the IAA, will continue to work with other European member States and EASA with a view to developing appropriate maintenance licence requirements for light aeroplanes, balloons and sailplanes. 7.4.1 The Department and the IAA will continue to work closely with EASA towards the elimination of anomalies in the requirements for pilot licences, including the potential extension of the mutual recognition of licences in EU States. 7.5.1 The IAA will work closely with EASA regarding future developments in the EU regulatory regime affecting the GA sector. 8.1 The Department will publish basic statistical information on its website, including passenger numbers (international, transit, domestic, etc.), new routes, cargo carried and airport commercial movements by end 2015. 8.2 The Department will develop this dataset in 2016 following engagement with key stakeholders to identify and prioritise additional statistical information required by the industry. 8.3 As part of that process, a decision will be made before end 2016 on optimal organisational arrangements for the collection and dissemination of the agreed dataset. 8.4 A review of the range and relevancy of the data published will be carried out by the Department in 2020, with further reviews being carried out every 5 years thereafter. 9.1 Ireland will establish a National Aviation Development Forum led by the Department of Transport Tourism and Sport and with appropriate representation from across Government and the industry.
A National Aviation Policy For Ireland Appendix 2
92 INDEX TO AERODROMES AND HELIPORTS Aerodrome/Heliport name Type of traffic permitted to use the aerodrome/heliport Location indicator International- National IFR-VFR S = Scheduled (INTL - NTL) NS = Nonscheduled P = Private MIL = Military
1 2 3 4 CORK International EICK INTL - NTL IFR - VFR S - NS - P DUBLIN International EIDW INTL - NTL IFR - VFR S - NS - P SHANNON International EINN INTL - NTL IFR - VFR S - NS - P DONEGAL EIDL INTL - NTL IFR - VFR S - NS - P GALWAY EICM INTL - NTL IFR - VFR S - NS - P IRELAND WEST EIKN INTL - NTL IFR - VFR S - NS - P KERRY EIKY INTL - NTL IFR - VFR S - NS - P SLIGO EISG INTL - NTL IFR - VFR S - NS - P
Appendix 2 WATERFORD EIWF INTL - NTL IFR - VFR S - NS - P WESTON EIWT INTL - NTL IFR - VFR P ABBEYSHRULE EIAB NTL VFR P ATHBOY EIMH NTL VFR P BELMULLET EIBT NTL VFR P BIRR EIBR NTL VFR P BANTRY EIBN NTL VFR P CLONBULLOGUE EICL NTL VFR P CONNEMARA EICA NTL VFR P COONAGH EICN NTL VFR P INISHEER EIIR NTL VFR P INISHMAAN EIMN NTL VFR P INISHMORE EIIM NTL VFR P RATHCOOLE EIRT NTL VFR P KILKENNY EIKK NTL VFR P
Aerodrome/Heliport name Type of traffic permitted to use the aerodrome/heliport Reference to AD Section Location indicator and Remarks International- IFR-VFR S = Scheduled National (INTL - NTL) NS = Nonscheduled P = Private MIL = Military 1 2 3 4 5 KILRUSH EIKH NTL VFR P EIKH AD 2 NEWCASTLE EINC NTL VFR P EINC AD 2 MOUNTSHANNON EIMS NTL VFR P EIMS AD 2 TREVET EITT NTL VFR P EITT AD 2 TRIM EITM NTL VFR P EITM AD 2 ABBEYFEALE EIRE NTL VFR P No Information Published CASEMENT EIME - - MIL No Information Published FINNER EIFR - - MIL No Information Published NAVAN EIHH NTL VFR P No Information Published
A National Aviation Policy For Ireland 93 Appendix 2
A National Aviation Policy For Ireland Appendix 3
94 Acronym Title AAIU Air Accident Investigation Unit ABIS Group Austria, Belgium, Ireland, Luxembourg, The Netherlands, Portugal and Switzerland ALERT Aircraft Locating Emergency Response ANC Air Navigation Commission ANSP Air Navigation Service Provider ATM Air Traffic Management BRT Bus Rapid Transport CAPEX Capital Expenditure CBP Customs and Border Protection (US) DTTAS Department of Transport, Tourism and Sport EASA European Aviation Safety Agency ECAC European Civil Aviation Conference ECCAIRS European Centrally Coordinated Accident and Incident Reporting System
Appendix 3 EEA European Economic Area EoSM Effectiveness of Safety Management EU European Union EU-ETS European Union - Emissions Trading Scheme FAB Functional Airspace Block FDA Food and Drugs Administration (US) FDI Foreign Direct Investment GA General Aviation GDP Gross Domestic Product GHG Greenhouse Gas GMBM Global Market Based Measure IAA Irish Aviation Authority IASC Irish Aviation Services Centre ICAO International Civil Aviation Organisation ICT Information and Communications Technology MBM Market Based Measures MORs Mandatory Occurrence Reporting System NAT SPG North Atlantic Systems Planning Group NCASP National Civil Aviation Security Programme NTA National Transport Authority OPEX Operating Expenditure PRB Performance Review Body PSO Public Service Obligation RPAS Remotely Piloted Aircraft Systems SeMS Security Management System SES Single European Sky SESAR Single European Sky ATM Research SMS Safety Management System SRD Safety Regulation Directorate SSP State Safety Plan TSA Transportation Security Administration (US)
A National Aviation Policy For Ireland A National Aviation Policy For Ireland Design &Print ModernPrinters 0567721739 Introduction 96 A National Aviation Policy For Ireland