Aerodrome Certification – The CAAS Experience
Donny Tan 30 June 2016 Scope
• Before Aerodrome Certification • Aerodrome certification Preparations for certification Separate safety oversight entity Legislation Manual of Aerodrome Standards & Aerodrome Manuals Certification process Lessons from certification • Continuous surveillance • Transition from ASSU to AAR • Corporatisation of Changi Airport & restructuring of CAA • Re-certification
2 Milestones
2002 - Oct 2003: Mar 2007: Aerodrome Standards & Formation of Aerodrome & Safety Unit (ASSU) & ANS Regulation Division Preparation for Aerodrome Certification 1 Jul 2009: Corporatisation of Nov 2003: Changi Airport & 2013 - 2014: Certification of Restructuring of CAA Recertification International Aerodromes Aug 2010: USOAP
2003 2004 - 2006 2007 - 2008 2009 2010 2011 - 2016
3 Before aerodrome certification
• Before 1 Jul 2009, CAAS was a Statutory Board under the Ministry of Transport, and carries out the following roles: Safety regulation of local aviation industry; Operation of Changi and Seletar Airport; Provision of Air Navigation Services within Singapore FIR; Negotiation of ASAs on behalf of Singapore Government.
4 Seletar Airport
Changi Airport
5 Source: Google Maps Before aerodrome certification
• When the requirement for certification of aerodromes was first introduced, CAAS had to:
Establish a separate safety oversight entity and a well-defined safety oversight mechanism to carry out the functions of certification and safety regulation of aerodromes;
Put in place appropriate legislation;
Implement an aerodrome certification procedure
Certify the international civil aerodromes in Singapore through the approval/acceptance of an aerodrome manual submitted by the aerodrome operator.
6 * ICAO Manual on Certification of Aerodromes (Doc. 9774) Preparations for certification
7 2003 2004 - 2006 2007 - 2008 2009 2010 Understanding the requirements
• Attended aerodrome safety certification workshop jointly organized by ICAO and Civil Aviation Safety Authority of Australia in Brisbane (26-30 August 2002).
• Developed a sound understanding of ICAO’s requirements and shared the experience of other participating States.
• Formulated plan to work towards the aerodrome certification deadline of 27 November 2003 stated in ICAO Annex 14 .
8 Understanding the requirements
• Engaging Expert Advice
Aerodrome experts were engaged through the ICAO TCB in November 2002 to conduct an evaluation of the status of compliance of Singapore airports with respect to the SARPs of ICAO Annex 14.
Scope of consultancy included a review of the legislative and organization setup in Singapore so as to recommend how CAAS could implement aerodrome certification in a timely and effective manner.
Provided inputs on proposed set of aerodrome certification legislation drafted by the CAAS legal department, with references to the UK, Australian and NZ legislative models.
9 Separate oversight entity
10 2003 2004 - 2006 2007 - 2008 2009 2010 Separate oversight entity
• Various options of regulatory organization models that have the potential to demonstrate effective compliance with the certification requirements were explored by CAAS and ICAO TCB team.
• These included:
Separate regulatory unit within the current CAA organisation Having the Ministry to be in charge of aerodrome regulation Establishing regional cooperative body with neighbouring States to jointly conduct aerodrome certification
11 Separate oversight entity
• Considerations: Small aerodrome sector in Singapore Limited expertise, staff retention and career prospects Timing and legal issues when collaborating with other States
• After extensive consultation with ICAO and the Ministry, a model whereby the Minister would be empowered by new legislation to grant/refuse an aerodrome certificate through a regulatory framework based on an independent safety assessment of the aerodrome was adopted.
12 Separate oversight entity
• The Aerodrome Standards and Safety Unit (ASSU) was established
• The Minister authorized DGCA to appoint inspectors from within CAAS who are not involved in the design, construction, operations and maintenance activities of aerodromes.
• The Minister also directed that external independent consultants be roped in as advisors for the initial certification audits and at regular intervals for surveillance audits to enhance the quality, objectivity and credibility of the safety oversight.
13 Separate oversight entity
Minister for Transport
Air Accident Investigation Bureau
Director-General of Civil Aviation
Aerodrome Standards and Safety Unit
Legend Private Aerodrome CAAS Divisions involved in the Chain of aerodrome Operators operations of Changi and Seletar regulatory safety oversight (Future) Aerodromes
14 Legislation
15 2003 2004 - 2006 2007 - 2008 2009 2010 Legislative framework
Chicago Convention, & Annexes (SARPs)
CAAS Act Air Navigation Act
Air Navigation Air Navigation Order (Investigation of Accidents & Incidents) Order
Singapore Air Operator’s Singapore Air Singapore Airworthiness Certificate Safety Airworthiness Requirements Requirements Publications Notices (SAR) (AOCR) (SASPs)
SAR 145 SAR 39 SAR 66 SAR 21
Advisory Circulars
16 Legislative framework
• Singapore Air Navigation Act
Promulgated for the control and regulation of aviation
Empowers the Minister for Transport to make Orders to give effect to the Chicago Convention and its Annexes
The Singapore Air Navigation Order had provisions requiring that public transport passenger or flying training aircraft operations be only conducted at a government aerodrome, or at an aerodrome licensed by the Minister
However, the legislation did not provide for the certification of aerodromes as specified in ICAO Annex 14 and Document 9774
17 Legislative framework
• CAAS Act
Establishes and incorporates the CAAS
Provides for its functions and for matters connected therewith, which includes inter alia, maintaining and managing Changi and Seletar airports and to provide services and facilities as are necessary or expedient for their operations
However, there were no separate regulatory and operational setups
Compliance was achieved by referencing the SARPs of Annex 14, through self regulation and internal reviews conducted by the aerodrome operation departments in CAAS
18 Certification legislation
• On 15 September 2003, new legislation was formally enacted in the Singapore ANO to require mandatory certification of aerodromes used for public transport or instruction in flying in Singapore with effect from 27 November 2003.
19 Key aspects of new legislation
ANO Paragraph 67: Criteria for Certification
(1) No person shall operate an aerodrome in Singapore for the take-off and landing of aircraft engaged in flights for the purpose of public transport or instruction in flying unless he is the holder of an aerodrome certificate granted under this Order.
(2) An applicant for an aerodrome certificate shall submit
(a) an application in the form set out in the Manual of Aerodrome Standards ; and
(b) an aerodrome manual for the aerodrome for which the application is made.
20 Key aspects of new legislation
ANO Paragraph 67: Criteria for granting/refusing certificate
(4) The Minister may grant an aerodrome certificate to an applicant if he is satisfied that:
(a) the applicant is competent to operate and maintain his aerodrome properly, having regard to his previous conduct and experience, equipment, organisation, staffing, maintenance and other arrangements;
(b) the aerodrome manual prepared for the applicant’s aerodrome and submitted with his application in accordance with sub-paragraphs (2) and (3) contains accurate information and complies with the requirements specified in the Eighteenth Schedule ; ………………
21 Key aspects of new legislation
ANO Paragraph 67: Criteria for granting/refusing certificate
…………………
(c) the applicant’s aerodrome facilities, equipment and services comply with the standards specified in the Manual of Aerodrome Standards;
(d) the applicant’s aerodrome operating procedures make satisfactory provision for the safety of aircraft; and
(e) for the purpose of any application made on or after 24th November 2005, an acceptable safety management system is in place at the applicant’s aerodrome.
22 Key aspects of new legislation
• The New Legislation also had provisions for:
Validity of Aerodrome Certificate Obligations of Aerodrome Operator in maintaining the Aerodrome Manual and aerodrome operations & services Competence of operational & maintenance personnel Deviations & Exemptions Delegation of Powers
23 The new legislative framework
Chicago Convention, & Annexes (SARPs)
CAAS Act Air Navigation Act
Air Navigation Air Navigation Order (Investigation of Accidents & Incidents) Order
Singapore Air Operator’s Singapore Air Singapore Manual of Airworthiness Certificate Safety Airworthiness Aerodrome Requirements Requirements Publications Notices Standards (SAR) (AOCR) (SASPs)
SAR 145 SAR 39 SAR 66 SAR 21 SAR 147 Aerodrome Notice to Aerodrome Safety Aerodrome Safety Advisory Circulars Directives Operators Publications
24 Manual of Aerodrome Standards & Aerodrome Manual
25 2003 2004 - 2006 2007 - 2008 2009 2010 MOAS & Aerodrome Manual • Preparation of the Singapore Manual of Aerodrome Standards (MOAS) and Changi & Seletar Aerodrome Manuals took place concurrently.
• The MOAS mirrored Annex 14 closely, but had differences such as: Certain Annex 14 RPs assessed to be necessary were upgraded to Standards in the MOAS e.g. certain provisions for ARFF Irrelevant SARPs were omitted e.g. de-icing/anti-icing “Appropriate authorities” were defined
• Preparation of the Aerodrome Manuals followed the ICAO Manual of Certification of Aerodromes (Doc. 9774) closely.
26 Certification process
27 2003 2004 - 2006 2007 - 2008 2009 2010 Certification process
Application → Off-site review of aerodrome manual
exposition → On-site verification audit → Findings and
corrective actions → Verification of corrective action /
Notification of Conditions → Issuance of Aerodrome
Certificates
28 Certification process
• Application for certificate
CAAS, as aerodrome operator, submitted applications for certification to the ASSU in September 2003 with complete sets of aerodrome manuals and supporting documents
• Submission review and certification audit
ASSU reviewed the aerodrome manuals and conducted on-site inspections of the aerodrome facilities and safety procedures from September to October 2003 in accordance with ISO 9000:2000 auditing protocols over a duration of 2 weeks for each aerodrome.
Flight checks were carried out to assess the safety of aircraft operations from the air.
29 Certification process
• Findings and corrective actions
Findings and observations identified during the audit were notified to the respective aerodrome operation departments for corrective action
Completed corrective actions were validated by the ASSU
Corrective actions which require long lead time were assessed for their impact on the safety of aircraft operations, mitigating measures if required, and imposed as conditions of certification to be rectified within a stipulated time frame
Recommendations were then made to the Minister to grant Aerodrome Certificates to these aerodromes
30 Issuance of certificates
• On 27 November 2003, the Minister for Transport signed and issued the Aerodrome Certificates for Changi and Seletar airports, marking a new milestone for the safety regulation of aerodromes in Singapore.
31 Lessons from certification
32 2003 2004 - 2006 2007 - 2008 2009 2010 Lessons learnt • Clear categorization of findings made known before commencement of audit
• Explanation of findings and quote clause that is violated, need for objective evidence
• Daily auditors’ debrief
• Minimum of 3 weeks to certify a large aerodrome such as Changi
• Reasonableness in granting compliance time frame and need for mitigating measures in the meantime
• Need for auditor’s handbook and certification procedure manual
33 Continuous surveillance
34 2003 2004 - 2006 2007 - 2008 2009 2010 Continuous surveillance • Continuous surveillance activities include:
Audits & inspections At least 1 audit per aerodrome per year Typical duration of 1 week on-site (excl. preparation & report writing) Includes a day and night inspection of movement area Audit scope includes changes to infrastructure or procedures and specific theme areas such as SMS, wildlife hazard management, ARFF etc.
Monitoring of safety performance indicators and trending
Hazard reports
Aerodrome aircraft accident/incident investigation
35 Transition from ASSU to AAR
36 2003 2004 - 2006 2007 - 2008 2009 2010 Critical oversight elements
• Problems with part-time arrangement: 1 Lack of development of technical Legislation guidance and tools for personnel 2 3 Operating Organization, involved in safety oversight Regulations SO Functions Inadequate time spent on development of technical guidance ESTABLISH 5 for aerodrome operator and safety 4 Guidance, Technical Procedures promotion activities Experts & Info. Trg. Frequent movement of staff IMPLEMENT resulting in repetitive training, 6 7 inability to develop in-depth Licensing & Surveillance Certification & Inspection knowledge and continuity Obligations 8 Obligations Resolution • Part-time arrangement was not of Safety Concerns sustainable and would not fully meet the State’s safety oversight obligations in the long run.
37 Formation of the AAR • The Aerodromes & ANS Regulation Division took over aerodrome safety regulation from ASSU from 1 March 2007, with the scope of regulation expanded to include regulation of ANS provision.
Division Head
Aerodrome Regulation Deputy Senior Inspector Senior Inspector Division Head (CNS/Met) (ATS)
3 x Aerodrome 2 x ARFF & Support CNS 2 x ATS Inspectors DG inspectors Executive Inspector Inspectors
38 Benefits of current arrangement
• Focused and structured training programme, including OJT • Development of in-depth expertise in subject matter • Opportunity for cross-training • Progressive increase in exposure at international level
Value proposition for inspectors and enhance international standing of CAA
39 Corporatisation of Changi Airport & restructuring of CAA
40 2003 2004 - 2006 2007 - 2008 2009 2010 What changed?
• 2 separate legal entities: Clear separation of Regulator and Operator role
• Reconstitution of the CAAS Act for applicable roles of restructured regulator
• Aerodrome certificate was transferred from CAAS to CAG
• Amendments to ANO for: Aerodrome certificate validity period of 5 years Fee framework to recover cost of safety regulation
41 What changed?
• Reallocation of roles Bird hazard control Height control Disabled aircraft removal
• Formalize industry consultation framework for amendments to aerodrome regulations
• Approval of ARFF training organizations To ensure minimum competency ARFF personnel To prevent deterioration of training standards
42 Re-certification
43 2003 2004 - 2006 2007 - 2008 2009 2010 Recertification Audit
• The re-certification audits were conducted from October 2013 – March 2014 for Seletar and Changi airports
• The objective of the re-certification audits was to ascertain whether the aerodrome operator remained competent to operate and maintain its aerodrome properly.
• The audits also sought to determine whether the aerodrome operator’s facilities, equipment and services comply with our safety requirements.
44 Thank you.
45