Airspace Vision Preliminary Policy Document

Safe, flexible, efficient and cost-effective use of airspace to ensure optimal network quality and competitive and sustainable aviation

April 2011 Content

About this Policy Document 3

1 Introduction 4

2 Current organisation of the Dutch airspace 10

3 Need for modernisation 18

4 Objectives and constraints 24

5 Developments to allow better use of airspace 30

6 What is the Airspace Vision? 36

7 Process, planning and consultation 38

More information 41

Abbreviations, initialisms and acronyms 43

2 | Airspace Vision - Preliminary Policy Document About this Policy Document

This Preliminary Policy Document marks the beginning of a journey which will culminate in a national Airspace Vision by the end of 2011. The Airspace Vision is a policy document produced by the Ministry of Infrastructure and the Environment and the Ministry of Defence. In the same way as a white paper for the spatial planning principles for the Netherlands, the Airspace Vision sets out the broad lines of how the two ministries intend to proceed in the future with the organisation of Dutch airspace.

The government is developing the Airspace Vision with the air traffic control organisations Air Traffic Control the Netherlands (LVNL), the Royal Netherlands Air Force (RNLAF) on behalf of the Minister for Defence, and EUROCONTROL Maastricht Upper Area Control (MUAC), in consul­tation with the various stakeholders.

By drawing up this Preliminary Policy Document, the two ministries intend to give all those with an interest in how Dutch airspace is organised and used an overview of:

• how Dutch airspace is currently organised, used and controlled by air traffic control organisations; • the national and international key developments which will bring about changes for the organisation and use of Dutch airspace; • an initial indication of the national government’s vision of how airspace will be organised and used in the future, the conceptual changes underlying this and the expected benefits; • the purpose and scope of, and procedures associated with the Airspace Vision.

After reading this document: • you will have a better idea of what the Airspace Vision will be, the problems the government intends to resolve, the opportunities anticipated and how the government intends to exploit these opportunities in the forthcoming period; • you will know when and where to voice any opinions and/or suggestions you may have in the consultation process, due to start in the spring of 2011.

Airspace Vision - Preliminary Policy Document | 3 1 Introduction Source: Air Traffic Control the Netherlands (LVNL), Ron Berghege Control the Netherlands Source: Air Traffic

4 | Airspace Vision - Preliminary Policy Document The beginning of the 18th century saw the as the economy recovers from the current recession. birth of a school of artists in the Netherlands The long-term forecast released in January 2011 by EUROCONTROL1 and the short-term forecast of the who sought to capture on canvas in a realistic International Air Transport Association (IATA)2 way the characteristic Dutch landscapes and underline this expectation. Both aviation organisations skies. The paintings of the Hague School are anticipate a steady recovery of and growth in the number of aircraft movements in the short term. known nationally and internationally as the ‘Dutch skies’. It is expected that the current pressure on and scarcity of Dutch airspace will simply continue to increase in the The impressive compositions of ominous but sometimes future. A major challenge in this context is to accommodate also luxuriant clouds still attract admiration today. proportional user needs as far as possible. It is conceivable However, much has changed in the airspace behind these that, at a given time or in certain locations, it will not (or no clouds in recent decades. Today, the airspace constitutes the longer) be possible to meet all the needs of users of Dutch infrastructure which allows aviation to transport people airspace. What is needed is a long-term government vision and cargo, and the Ministry of Defence to safeguard of how to address this challenge. The framework for national security. prioritising airspace users established by the government in the White Paper on Dutch Aviation will play a key role here. Owing to the increasing demand for air travel, the organisa- It forms the core for the future organisation, management tion of Dutch airspace has gradually also developed in and use of Dutch airspace. recent decades. The Netherlands has been successful in accommodating the existing demand for air travel within the relatively small Dutch airspace and in enhancing the White Paper on Dutch Aviation position of Schiphol Airport as one of Europe’s key mainports in the last few years. The government set out its vision for Dutch aviation in the White Paper on Dutch Aviation in April 2009. The ambitions Dutch airspace plays a pivotal role in northern European it spelt out in the document are associated with the airspace between the four largest European airports: following central objective: Schiphol, London Heathrow, Frankfurt and Paris Charles de Gaulle. In particular, because of the geographical location “The further development of optimal network quality in conjunction of Dutch airspace and the position of Schiphol, Dutch with competitive and sustainable aviation”. airspace represents a major gateway for traffic arriving from and departing to destinations world-wide. Dutch airspace is A major precondition for achieving this objective in part of the most crowded airspace in Europe. accordance with the three pillars of the White Paper on Dutch Aviation (compete, accommodate and excel) is good For air traffic control organisations in the Netherlands and airside accessibility. By good airside accessibility, the Europe, the growth of international aviation has had a government means optimal use of Dutch and European tremendous impact on the complexity of their work, the airspace, which increases capacity, reduces emissions, purpose of which is to ensure safe operations in increa- guarantees safety, and helps to ensure and enhance military singly crowded airspace. This crowded airspace and mission effectiveness, and where air traffic control is increasing complexity have created constraints in the provided in a cost-effective manner. availability of (parts of ) the airspace and placed stricter requirements on airspace users. Dutch airspace is also In the White Paper on Dutch Aviation, the government busier and more complex than ever before because of announced a number of measures intended to ensure such constantly increasing demands and changing needs of airside accessibility, including a reorganisation of Dutch airspace users. Airspace can therefore be increasingly seen airspace, closer civil-military cooperation in the areas of as a scarce resource sought after by a large number of airspace and air traffic service provision and the develop- airspace users, where demand exceeds available supply. ment of a new air traffic control concept.

The current global economic downturn has had a signifi- cant impact on demand for air travel, the number of passengers and the number of aircraft movements at Dutch airports. Experience from earlier periods of decline, such as the terrorist attack on 11 September 2001 and the first Gulf 1 EUROCONTROL Long-Term Forecast, Flight Movements 2010-2030. War, suggests that demand for air travel will increase again 2 IATA, February 2011.

Airspace Vision - Preliminary Policy Document | 5 Network quality Targeted accommodation of general aviation

By network quality, we mean the immediate availability of an The government has opted to selectively keep room for general extensive, worldwide, frequently operated route network. This means aviation at the airports of national significance, in particular for public a route network with connections which contribute to the regional and flights (flights for public order or health and safety purposes) and other national economy and the competitive strength of the Netherlands. groups within general aviation, intended to improve air access to the In order to map network quality in the Netherlands, a number of Netherlands and strengthen the network quality of aviation in the indicators are used: Netherlands. The government also intends, where possible, to 1 Direct connectivity, measured using the number of economically continue to provide airspace to users with a more social role, such as relevant destinations served daily from Schiphol Airport in sports and recreational aviation. comparison with the three largest hub airports: London Heathrow, Frankfurt and Paris Charles de Gaulle. 2 Passenger/cargo traffic volume at Schiphol and the totals for the airports of national importance forming part of the system of cooperating airports for the international connections network. Update of the White Paper on Dutch 3 The hub quality of Schiphol measured by using the number of flights of the Skyteam alliance and other network carriers with good Aviation connections at Schiphol. This hub quality is compared with competing hub airports and is a success factor in the size of the Following the appointment of the Rutte government in transfer market as the backbone of Schiphol’s extensive network. October 2010, the Parliament asked it to prepare an 4 Economic analyses, which are linked to the connections network, to update of the policy and its implementation arrangements get an idea of the quality of the network in terms of the connections as set out in the White Paper. The government’s update with the economic centres of the world of most importance for the letter3 of January 2011 explained to the Parliament how it Dutch economy. intended to implement the policy measures announced in the White Paper. In the letter, the government explained that the airport policy for the Netherlands was now ready In its White Paper of April 2009 the government made and that execution and implementation of the policy was pronouncements about the prioritisation of airspace users. thus required. It opted for selectively accommodating mainport-related traffic, which is a major contributor to the enhancement of In this context, achieving good airside accessibility is network quality at Schiphol Airport. Optimal network being prioritised by the government. Together with the quality for the Netherlands means not only the Schiphol growing complexity of traffic handling, the scarcity of Airport network but it also includes the networks of airports airspace is increasingly a challenge and potential problem of national importance (Eindhoven, Lelystad, Rotterdam, for the planned airport developments and noise Maastricht, Eelde and Twente). abatement in the Netherlands.

At Schiphol the Alders Commission (also known as the This is why the government is now dedicating itself to ‘Alders Table’) concluded that the core function of Schiphol developing an Airspace Vision with an associated Airport is the handling of hub and mainport-related traffic. implementation agenda for Dutch airspace. This Airspace The task of the other airports is mainly to accommodate Vision will have to offer solutions for better use of the non-mainport-related traffic, such as point-to-point scarce airspace by defining the contours and criteria for destinations (commercial and non-commercial), since the optimal organisation, management and use of Dutch latter can contribute to the economic and spatial develop- airspace. In addition, it will need to provide a framework ment of these regions. for prioritising the various demands of airspace users, such as the growth in civil traffic and military require- The government has opted to accommodate a market ments. Thereafter, the demands of the general aviation demand of 580,000 aircraft movements by selectively user groups will need to be considered. accommodating Schiphol Airport to cope with 510,000 aircraft movements for the period up to 2020. In addition, This will include finding solutions for the airside deploy- there will be a selective accommodation of 70,000 aircraft ment of planned airport developments (Schiphol, movements at Eindhoven and Lelystad airports. Finally, the Eindhoven, Lelystad and Twente), the implementation of government has stated that it intends to continue offering low-noise approaches, also known as continuous descent airspace to the general aviation user groups on a selective and targeted basis. 3 Letter updating the Aviation Policy Document, 14 January 2010, parliamentary paper 31 936.

6 | Airspace Vision - Preliminary Policy Document approaches (CDA’s), the development of a cross-border The Minister of Infrastructure and the Environment and the military exercise area near Twente (CBA Land) and Minister of Defence are jointly responsible for the policy and improving the airside access to Schiphol Airport from the legislation relating to, and the organisation, management south-east by means of a fourth initial approach fix (IAF). and supervision of the Dutch airspace. The basis for this is enshrined in the Luchtvaartwet [Aviation Act] and the Wet In order to achieve the above, close coordination and Luchtvaart [Law relating to aviation]. In addition, the cooperation is required with neighbouring countries and internationally agreed rules to promote safety and efficient air traffic control organisations concerned in view of the use of airspace are set out in the Air Traffic Regulations and interdependence within the cross-border European specified in various ministerial regulations. network. Airspace is currently allocated partly to civil and partly to Since all of this involves the allocation of scarce Dutch military control organisations. In this context, the ministers airspace, a process has been carefully set up with the various have entrusted three organisations Air Traffic Control the stakeholders for the establishment of the Airspace Vision, in Netherlands (LVNL), Eurocontrol Maastricht Upper Area which the users are central. Control (MUAC) and the Royal Netherlands Air Force (on behalf of the Minister for Defence) with providing air traffic services within controlled airspace to airspace users, airports White Paper on Dutch Aviation and military bases. approved Coordination between the two ministries and the three air traffic control bodies to ensure the safe and efficient use of On 15 February 2011, the Parliament discussed the White airspace by civil and military air traffic is effected via the Air Paper on Dutch Aviation and its update. It welcomed the Traffic Committee. The task of this Committee is to advise document and its update, which resulted in the White Paper the administrators in the Ministry of Infrastructure and the being definitively approved. Following the discussion, the Environment and the Ministry of Defence on the safe and Parliament adopted a number of motions on the White efficient use of Dutch airspace. Paper of relevance to the Airspace Vision. On the basis of their powers and responsibilities, the Minister for Infrastructure and the Environment and the Adopted motions of importance for the Minister for Defence decided to draw up a vision and strategy, Airspace Vision in close cooperation with the air traffic service providers, for the future development, organisation and management of The motion of the members of parliament Huizing/Haverkamp calls for the Dutch airspace. This is closely linked to the ambitions of clarification, by 15 June 2011, regarding a future airspace design and and the 2009 agreements4 between the two ministries thereby consideration of the possibility of a joint terminal manoeuvring regarding enhanced civil-military cooperation on airspace area (TMA) for Schiphol Airport and Lelystad Airport. The Haverkamp management and air traffic service provision. motion also asks for clarification, by 1 May 2011, regarding the further integration of civil-military cooperation in airspace in relation to the Airspace Vision. The State Secretary for Infrastructure and the Airspace Vision Environment has also agreed to forward the Airspace Vision to the Parliament in the course of 2011. In drawing up the Airspace Vision, the intention of the Minister for Infrastructure and the Environment and the Minister for Defence is to have a strategic policy document which makes choices and clear statements about the desired The role of the government future development and strategy regarding the organisa- tion, use and management of Dutch airspace and which in The way in which the Netherlands gives shape to the so doing offers solutions for identified challenges and organisation, management and supervision of airspace is problems. The proportional needs of airspace users and the increasingly determined by Single European Sky legislation. contribution to the social objectives set out in the White The agreements concluded by the Netherlands with Paper on Dutch Aviation are of central importance in this neighbouring countries on the creation of a common respect. airspace also play a central role. The objectives and obligations of the Single European Sky and the so-called 4 Agreements on civil-military cooperation in ATM, Minister for Transport, Public Functional Airspace Block Europe Central (FABEC) steer the Works and Water Management and Minister for Defence letter of 28 June 2010, determination of national policy. 2009-2010 session, parliamentary paper 31936, No. 33.

Airspace Vision - Preliminary Policy Document | 7 It thus provides a framework for addressing the current problems and future challenges in the Dutch airspace. The central question of the Airspace Vision is: How can a change in the organisation, use and management of Dutch airspace contribute to the optimal use of that airspace, in such a way that (current and future) proportional user needs are accommodated as far as possible?

The goal which the government has set itself here is as follows: • achieving an optimal organisation, management and use of Dutch airspace, and thereby improving the utilisation of both the Dutch and European airspace.

• in order to improve network quality and military mission- effectiveness, ensure safety, increase capacity, reduce emissions and the environmental impact, and contribute to cost-effective air traffic control.

In the Airspace Vision, the government sets out the broad lines and general criteria for the optimum organisation, manage- ment and use of the future Dutch airspace and the coordina- tion this requires with neighbouring countries. It also identifies the changes needed to achieve this and the policy measures which need to be adopted to support this. The measures which need to be taken by the government, air traffic control bodies, airspace users and players in the sector are contained in a joint implementation agenda associated with the Airspace Vision.

Preliminary Policy Document

In drawing up this document, the intention of the Minister for Infrastructure and the Environment and the Minister for Defence is to provide airspace stakeholders with an insight into the reasons for, planning of and procedures governing the preparation of the Airspace Vision. The Preliminary Policy Document forms the starting point for the journey culmi- nating in the Airspace Vision at the end of 2011. It provides a basis for consultation with airspace users and stakeholders on the trends, challenges and problems identified by the government for the Dutch airspace and the opportunities which it intends to grasp.

8 | Airspace Vision - Preliminary Policy Document Source: Air Traffic Control the Netherlands(LVNL), Ron Berghege Control the Netherlands(LVNL), Source: Air Traffic Airspace Vision - Preliminary Policy Document | 9 2 Current organisation of the Dutch airspace

10 | Airspace Vision - Preliminary Policy Document The organisation of the Dutch airspace has The resulting changes to airspace were generally made in gradually grown over the past decades with the two ways: by changing the configuration and design of the airspace or by applying new technologies and operational development of Dutch aviation. The signifi- concepts in air traffic control. cance of Dutch aviation has thus grown, while Dutch airspace has remained small.

On 1 November 1918, two military aircraft collided above Soesterberg. This accident prompted the first attempt by the Netherlands to introduce air traffic regulation. This was done from the military radio station at Soesterberg. It constituted the first primary form of air traffic control. A year later the Royal Dutch Airlines (KLM) was set up and opened up its first route in 1920. Also in that year, Schiphol came into operation for civil air traffic. Shortly thereafter in 1922, a radio was installed in a KLM aircraft for the first time. Radio communication was for a long time the main instrument for air traffic controller communication with pilots.

The establishment of the International Civil Aviation Organization (ICAO) and the Chicago Convention in 1944 marked the beginning of international standards and their application to aviation. These standards were the basis for the development of Dutch and international airspace. The present organisation of Dutch airspace is based on a system which has developed since the 1950s. The advent of advanced technologies, radar beacons and navigation equipment meant that the monitoring of air traffic by air traffic controllers was constantly improved and increasingly accurate. This was necessary to be able to accommodate the strong growth in demand for airspace capacity resulting from the advent of commercial aviation and the develop- Figure: Dutch airspace route structure in the 1950s. ment of military aviation. These developments were often reactive and were character- ised by incremental changes at times when user demand Changes over the years was liable to change or new technology became available. The successful accommodation of this demand has often To meet the increasing demand for air travel in recent led to sub-optimisation of the existing airspace design and decades, airspace capacity needed to be increased. This has more complex airspace. led to significant changes in the organisation, structure and use of Dutch airspace. The needs of airspace users and In recent years, the aim has been to accommodate, as far as possibilities of the air traffic control organisations were of possible, the differing needs of airspace users in the key importance in this respect. In this connection, airspace organisation and use of the Dutch airspace. Civil users, developments were mostly focused on: military users and general aviation user groups are increasingly in need of (parts of ) the same scarce Dutch • maintaining a high level of safety; airspace. In some areas and at certain times, the demand for airspace exceeds available supply. In order to be able to • accommodating differing airspace user needs, handle air traffic safely in those areas, it is sometimes where possible; necessary to restrict access, which means that some users experience delays in certain parts of the airspace or are • efficient handling of traffic flows; unable to operate at the desired times or on the desired routes. • reducing the impact of aviation on the environment.

Airspace Vision - Preliminary Policy Document | 11 This problem is found not only at higher altitudes, but also Airspace organisation at lower altitudes, where in general no air traffic services are provided (uncontrolled airspace), and which are often used To safeguard the traffic controlled by the controller, airspace by military and recreational aircrafts. is divided into various levels and areas.

Objectives and tasks of Flight levels air traffic control Within the organisation of airspace and altitudes, there are various flight levels (FLs). A flight level indicates the height at which an aircraft is The general objective of air traffic control is “to safely moving or to which it is climbing or descending with reference to the provide an orderly and expeditious flow of air traffic”. This pressure of the international standard atmosphere. Starting from means that air traffic control has to ensure that the required altitude 0 of this standard, standard flight levels are expressed per 100 separation between aircraft is maintained and that traffic is feet. Thus FL010 means 1,000 feet above the standard, FL100 is 10,000 handled in a smooth and orderly manner. Internationally, a feet, FL460 is 46,000 feet and FL195 is 19,500 feet. The altitude of 3,280 large number of agreements have been established for this feet is equivalent to 1 kilometre. purpose and enshrined in national aviation legislation. Within the airspace assigned to him/her, the controller is Because the standard pressure does not usually correspond with the responsible for achieving this objective. The main tasks are: actual height of the terrain in question, in lower airspace it is preferred to switch to a flight level expressed with reference to barometric • maintaining communication with flights within the area pressure at sea level. The level at which the switch is made to of ​​responsibility; barometric pressure is called the transition altitude (TA).

• maintaining the required separation (i.e. a prescribed minimum horizontal and vertical distance) between This division is based in part on how air traffic service controlled and other notified flights; provision is regulated in Dutch airspace. A distinction is made between the following: • handling flights as efficiently as possible;

• providing flight information and issuing alerts;

• coordinating with other air traffic control (centres) to the extent relevant for handling flights.

12 | Airspace Vision - Preliminary Policy Document Upper airspace Transiting en-route civil traffic is handled in upper airspace, above flight level 245 (approximately 8 km), as is military en-route traffic and military traffic flying to and from exercise areas. In this airspace, the EUROCONTROL Maastricht Upper Area Control Centre (MUAC) is responsible for air traffic service provision to civil traffic and the Air Operation Control Station Nieuw Milligen (AOCS NM) to military traffic. Policy-making, legislation and supervision are regulated in this airspace by agreements between the four MUAC States (the Netherlands, Belgium, Luxembourg and Germany).

Lower airspace Lower airspace, between FL95 and FL245 (approx. 3 to 8 km), has a different dynamic because in this part of the airspace the traffic is ascending from and descending to the various airports.

In lower airspace, Air Traffic Control the Netherlands is designated by the government as the air traffic service provider for civil users within the parts of the airspace it Figure: Allocated upper airspace within which MUAC provides ATC services to users. has been assigned. In military-controlled airspace, the AOCS NM is designated as the air traffic service provider for airside accessibility to military air bases, oversight of (tactical) military missions and control of civil air traffic transiting this part of airspace, such as air traffic departing from and approaching to Eindhoven Airport.

Policy-making, legislation and supervision for this airspace are regulated at national level, but in coordina- tion with the neighbouring countries concerned.

Figure: Current organisation of lower airspace.

Airspace Vision - Preliminary Policy Document | 13 Airspace around the airport (TMA/CTR) The airspace immediately around the airport is complex, and also strongly influenced by local conditions and requirements in terms of safety and avoidance of noise- sensitive areas. This requires customisation when organ- ising air traffic service provision, and is therefore less suitable for a cross-border approach. Air traffic services are provided by the LVNL for civil-controlled airports and by the AOCS NM for military air bases (with possible joint use with civil aviation). Policy-making, legislation and supervision in this airspace are regulated at national level, but with due regard to local conditions.

Control zone (CTR) The control zone (CTR) is designed to protect departing, arriving (and crossing) traffic in the vicinity of an airport (up to about 8 NM, or 15 km) and thus includes at least the final approaches for various take-off and landing runways. For example, the Schiphol CTR is classified as Class C airspace, which means that flights operating under both instrument Figure: Schiphol control zone (CTR) flight rules (IFR) and visual flight rules (VFR) are authorised. Traffic in the CTR is controlled by controllers from the control tower. Depending on the traffic to be controlled, various people may be working in the tower (e.g. air traffic controllers for traffic taking off and taxiing).

Terminal manoeuvring area (TMA) The terminal manoeuvring area (TMA) is designed to protect traffic climbing from an airport and traffic descending to the final approach. This is a part of airspace delineated not only horizontally but also vertically (from 500 m to about 3,000 m). In order to keep aircraft separated, a controller has a number of strategies. For example, to maintain adequate separation of traffic, he/she can tell it to accelerate or slow down or separate it horizontally and vertically by instructing it to fly at different headings or altitudes.

The current Schiphol TMA is classified as Class A airspace, which means that only IFR traffic is allowed. VFR traffic is permitted only with a dispensation. This means that accessibility to this area for general aviation and military Figure: Schiphol terminal manoeuvring area (TMA) activities is not possible, or is very restricted. The other TMAs/CTRs in Dutch airspace are used not only for approach and departure procedures, but also for controlled and uncontrolled general aviation and military activities.

14 | Airspace Vision - Preliminary Policy Document Control area (CTA) The control area (CTA) and upper control area (UTA) are intended to protect overflights along the sky’s “highways”, the so-called ATS routes. Because of the relatively small size of the Schiphol TMA compared to other major airports, Dutch civil CTAs also see a great deal of climbing and descending traffic. Within the CTAs are defined sectors, in which (depending on traffic density, combined or other- wise) a controller is responsible for all approaching and departing traffic.

Special traffic areas In addition, special traffic areas may be established if (temporary) prohibitions or restrictions are necessary to accommodate operations which cannot be combined with civil aviation. A distinction is made here between so-called restricted areas (EHR), danger areas (EHD) and prohibited areas (EHP). Certain restricted areas are sometimes also called temporary reserved airspace (TRA). These (temporarily) prohibited or restricted traffic areas are Figure: Schiphol TMA and CTA sectors. commonly activated in the event of (military) aviation activities which cannot be combined with civil traffic. These are primarily various military exercises with the Royal Netherlands Air Force (fighter) aircraft. These military exercise areas are located above the Waddenzee, Twente and the south-eastern part of the Netherlands.

The so-called danger areas are activated only in the event of military activities which might endanger air traffic. This is done, for example, when the Dutch armed forces are holding ground-to-air or air-to-air gunnery exercises. Prohibited areas are often areas formed around objects which cannot be overflown because of security and/or privacy concerns. These include the royal palaces, but such traffic areas may also be temporarily established during international conferences and special events. These special traffic areas may be activated and deactivated on the basis of the flexible use of airspace.

Figure: Location of military exercise areas.

Airspace Vision - Preliminary Policy Document | 15 Routes These holding areas are used only in situations where more traffic is unexpectedly flying to the airport than can be In order to simplify the work of air traffic controllers, a handled within the available capacity, or where there is route structure is defined so that the relevant routes and disruption caused by extreme weather conditions. In such procedures can be used within the airspace available for it. cases, approaching traffic can be held before it starts its There are several distinct types of route, with the routes for approach. In all other cases, the traffic just flies on without IFR traffic being the most important for the organisation of flying into the holding area. airspace. All approach routes for Schiphol are located in the CTAs, ATS routes and end at the edge of the Schiphol TMA, i.e. at the points These are the “highways” of the skies. These routes are ARTIP (near Lelystad), RIVER (near Rotterdam) and SUGOL partly national, but above all part of a wider international (above the North Sea). route network connecting European and international airports. Approach procedures Approach procedures connect the IAF with the runway in Departure routes use, and as such allowing safe descent to an altitude where These are often standard instrument departures (SIDs), the landing runway is visible and a safe landing can be intended as routes connecting the runway and the ATS made. The approach procedures consist of several routes. For Schiphol, the end points of the SIDs are usually segments (initial, intermediate, final and missed on the edge of the Schiphol TMA. Departure routes are approach). Fixed approach procedures are currently flown generally used to avoid obstacles and noise-sensitive at Schiphol Airport only during the night period (11 p.m. to areas, etc. 6 a.m.) or if no communication with the aircraft is possible. During the daytime (6 a.m. to 11 p.m.) and in all Arrival routes other cases, course instructions are given by the air traffic These are usually standard instrument arrivals (STARs), used controller between the IAF and the final approach to to connect the ATS route and the beginning of the actual ensure that air traffic is handled in a safe and efficient way. approach procedure. This point is also referred to as the The LVNL is currently working on the further application of initial approach fix (IAF). The IAF always has a holding area. fixed approach procedures and continuous descent approaches during the evening and daytime period. This is part of the implementation of a new ATC operational concept for Schiphol Airport.

Figure: Civil route network in Dutch airspace.

16 | Airspace Vision - Preliminary Policy Document Holding areas Traffic supply International rules require a holding area to be available for The geographic spread and distribution of traffic during the an airport. This requirement stems from both operational day or night. The airline schedules are focused on providing considerations (to combat disruption) and procedural connections which meet consumer demand and which are considerations (where there is no radio contact with possible within the available opening hours of airports close the pilot). to those connections. Thus, for Schiphol Airport there are a number of peak times when a large are a number of peak periods when a large amount of approaching and departing traffic wants to use the airspace around the airport at the same time. This is also called the peak-hour capacity.

Traffic mix of aircraft types There are many different types of aircraft which each have specific characteristics in terms of flight performance. The controller must take this into account by safely and expeditiously handling aircraft with different speeds, climb profiles and flight characteristics. A diverse mix of aircraft types in many cases leads to an increase in workload for the controller and hence a negative effect on capacity.

Weather conditions The weather has a significant impact on airspace capacity. Extreme weather conditions such as (wintry) precipitation, wind and poor visibility are aspects affecting the handling of traffic. These also determine the use of routes and runways and must be taken into account by the controller when handling traffic under safe conditions. In order to ensure safety, in these conditions controllers need to take additi- Figure: Location of current Schiphol holding areas. onal measures which impose restrictions on the Wachtgebied = Holding Area available capacity.

Airspace classification Depending on their primary purpose, the various parts of airspace are classified on the basis of ICAO regulations. This classification (A to G) indicates whether or not traffic flying IFR and VFR can be combined, how air traffic services are provided to the two categories and what restrictions apply. In short, the airspace classification can be used to lay down rules regulating air traffic to various degrees.

Airspace capacity The way in which the organisation of airspace contributes to how traffic is handled by the controller is explained above. This is crucial for airspace capacity. In addition to the procedures applicable and the aforementioned specific aspects of available airspace, airspace capacity also depends on:

Airspace Vision - Preliminary Policy Document | 17 3 Need for modernisation Source: Royal Dutch Airlines (KLM)

18 | Airspace Vision - Preliminary Policy Document The government has identified a number of The government has identified various examples of current developments necessitating the modernisa- problems caused by growth and changing needs. For example, the increasing growth in air traffic significantly tion of the organisation, management and affects the workload of air traffic controllers in certain use of Dutch airspace, because failing there sectors where a large number of traffic flows coincide at will give an increasing number of problems certain times. Also, the training of air traffic controllers in order to carry out highly-complex tasks is a problem for air in the airspace. traffic control organisations.

The main developments identified by the government are: Upper airspace • increasing demand, and changing and conflicting needs Users of upper airspace are currently facing the conse- of airspace users; quences of the fragmentation of organisation and service • impact of the future selective development of Schiphol provision in European airspace. For air traffic service Airport and airports of national importance on airside providers such as MUAC, the reorganisation and optimisa- accessibility; tion of upper airspace over the Netherlands, Belgium, • need to mitigate effects of aviation on the environment. Luxembourg and Germany is a significant factor in making it possible to provide users with the most direct routes and These developments are explained in more detail below. optimal flight profiles. Within FABEC, the implementation Examples of challenges and constraints underlining the of a cross-border military exercise area between the need for modernisation are briefly discussed. The following Netherlands and Germany (CBA Land), the subsequent overview of challenges and constraints is not exhaustive. In phasing-out of the existing military exercise area (TRA-12) the next phase of the Airspace Vision, this overview will be over the south-eastern part of the Netherlands and the further analysed and supplemented. optimisation of the adjacent German and Belgian airspace (Central West) constitute important stages in securing improved service provision in upper airspace. Increasing growth and needs Lower airspace Civil aviation The growth and distribution of traffic approaching and Although commercial aviation has only just left behind the departing from Schiphol Airport are characterised by large consequences of the economic crisis, the ash cloud and traffic flows from many directions in a short period of time. wintry weather in 2010, a strong recovery in the number of In particular, the omni-directional network of Schiphol aircraft movements is once again visible in the first months Airport and the KLM hub system experience a very high peak of 2011. Also, during the economic crisis, commercial in demand for airspace capacity at different times of the day. aviation showed itself to be flexible and resilient in At certain times and in certain sectors where these major adapting to changing circumstances. In general, growth in traffic flows coincide over a short period of time, this is demand for air travel is related to economic growth. It is increasingly a challenge for the LVNL service provision. therefore the expectation that in the long term, the number of aircraft movements in Dutch airspace will In order to be able to accommodate, for the period up to increase, although the timing and rate of recovery and 2020 and beyond, the expected increase in the number of growth are still uncertain. The international aviation aircraft movements in a reliable and sustainable way organisation IATA expects a 4.7% increase in passenger through the application of continuous descent approaches, numbers in the short term (2009-2014), and highlights in a new operational concept for Schiphol Airport is necessary particular the 6.5% increase in cargo, in which the to improve service provision. To this end, the LVNL has Netherlands has a leading position within Europe. developed a phased plan in which the implementation of fixed arrival routes and the application of continuous It should be noted in this regard that it is not only the level descent approaches play a key role. An integral part of this of demand, but also the geographical distribution and new operational concept is the implementation of a fourth characteristics of growth which determine the demands IAF and associated holding area and the reorganisation of placed on airspace capacity and performance. existing sectors in order to be able to accommodate the growth in traffic flows approaching and departing from the south-east of the Netherlands.

Airspace Vision - Preliminary Policy Document | 19 Military mission-effectiveness

The operational effectiveness of missions is dependent on accessible, well located and sufficiently available airspace in the Netherlands and the immediately surrounding area. This for the most part concerns the availability of sufficient exercise airspace at a reasonable distance (max. 100 nm) from airbases and at specific times. This enables the air force to train as they would operate in conflict situations.

Although the number of military jet fighters has fallen considerably over the years, the performance and training requirements for modern aircraft and weapons systems have increased. Also, large-scale international exercises are held more frequently, involving cooperation between the international air forces of the NATO Member States. In addition, military helicopter and air transport activities have Figure: Approximate location of the necessary fourth IAF and holding area. further increased in recent times as a result of the replace- wachtgebied = holding area ment and expansion of this fleet. As a consequence of this, the demand for sufficient suitable airspace for exercises has This implementation requires a radical reorganisation of also increased. In this connection, it should be pointed out Dutch airspace and careful coordination with the military that although these changing requirements call for more users and the adjacent (upper) airspace assigned to MUAC airspace, the airspace is required less frequently and for and the German and Belgian air traffic control organisations. shorter periods.

Military users At present, the Netherlands has insufficient military exercise The Ministry of Defence, in particular the Royal Netherlands Air areas or areas of the right size to be able to accommodate Force, has an ongoing need to safeguard and improve military the military effectiveness of current fighters and their future missioneffectiveness. successors or of helicopters and air transport. In the Source: Ministry of Defence, Air to air refuelling F16 by KDC10

20 | Airspace Vision - Preliminary Policy Document framework of European cooperation, this has now led to pilots and balloonists. It serves a very broad range of the further examination and implementation of joint business, recreational and social purposes. exercise areas and of larger cross-border exercise areas (inter alia CBA Land). The implementation of this cross-border General aviation exercise area (“CBA Land”) is an essential precondition to enable the Ministry of Defence to reduce military activity in General aviation comprises a wide variety of aerospace products and the exercise area over the south-east of the Netherlands services. These products and services are classified into the following (TRA12). A reduction in the size of TRA12 allows the LVNL to functional groups: optimise access to Schiphol from the south-east by implementing a fourth IAF and associated holding area, and ∑ Public flights: flights for public order or health and safety purposes. enables MUAC to improve the service to users in the ∑ Business aviation: business flights. upper airspace. ∑ Aerial work (specialist services): test flights, inspection flights, photographic flights. The government has also decided to significantly cut the ∑ Training: pilot training and certificate maintenance. budget of the Ministry of Defence. In the light of all this, it ∑ Sports and recreational flights, glider flights, parachute-drop flights, is a major challenge to increase efficiency and reduce costs private flights, circular flights, ballooning, hang gliding, paragliding, etc. while at the same time safeguarding and if possible improving military mission-effectiveness. An important factor for the Ministry of Defence is access to A large proportion of general aviation activities is per- and availability of efficient exercise areas at specific times in formed in uncontrolled airspace. In recent years, owing to relation to the need of civil users for additional airspace in the growth in civil aviation and to airspace changes, order to be able to fly direct and optimal flight profiles. In airspace for GA has become increasingly limited. In some addition, the increase in civil air traffic at Eindhoven airbase locations in the vicinity of Schiphol Airport, recreational and the adjacent Volkel Royal Netherlands Air Force base, at general aviation activities are preventing Air Traffic Control Weeze Airport (in Germany) and at the Kleine Brogel air the Netherlands from ensuring safety. In addition, the force base in Belgium constitutes a potential problem. transposition of EU directives on the environment (inter alia Natura 2000) into national legislation and regulations General aviation are increasingly having an impact on those areas where General aviation is a diverse sector with various airspace general aviation, on the basis of the current interpretation users, including pilots of business jets, private pilots, glider of these regulations, is excluded. Source: Royal Netherlands Aeronautical Association (KNVvL), Frank Hiemstra Source: Royal Netherlands Aeronautical Association (KNVvL),

Airspace Vision - Preliminary Policy Document | 21 The general aviation sector submitted a strategic vision to capacity, additional infrastructure and mitigation measures the government in February 2011. The sector presents in it with regard to nature and the environment, and the impact the government with specific arguments for a robust policy thereof on the (future) organisation of the airspace. for accessible and available airspace for the diverse users within the general aviation group. As far as Lelystad Airport is concerned, problems were reported to the Lelystad Alders Commission regarding Future development of Dutch airports integration of the airport’s development beyond 2015 in the The White Paper on Dutch Aviation covers the government’s airspace around it. First of all it is therefore necessary to ambition to accommodate the demand for commercial establish an airspace design in which the position of aviation (580,000 aircraft movements) at Schiphol Airport Lelystad Airport is included and which will take as its and the regional airports of national importance. These starting point the fact that capacity and network quality at airport developments cannot be dealt with in isolation, but Schiphol must not be adversely affected and that the call for an integrated approach to the required airspace military functions in the vicinity must be safeguarded. The Source: Air Traffic Control the Netherlands (LVNL), Ron Berghege Control the Netherlands Source: Air Traffic

22 | Airspace Vision - Preliminary Policy Document Lelystad Alders Commission can then provide its final The aviation sector is aware of this impact, and together advice to the Dutch Government. If it emerges that with the various stakeholders is taking initiatives on CO2 Eindhoven and Lelystad airports cannot together guarantee reduction and noise-abatement measures. an additional 70,000 aircraft movements, we will examine whether other airports of national importance can play a At international level, the creation of the Single European role in covering national capacity, as indicated in the White Sky (SES) and the Emissions Trading Scheme (ETS) constitute Paper on Dutch Aviation. important steps which contribute to the reduction of emissions. The SES initiative allows airlines to fly more The agreements reached at the Schiphol and Eindhoven direct routes and optimal flight profiles, with the advantage Alders Commission also place varying demands on airside of reducing emissions and costs. The ETS allows the accessibility owing to the increase in air traffic, the exchange of emission allowances subject to the globally development of a new operational concept and the agreed ceiling for CO2 emissions, thus giving rise to a more implementation of continuous descent approaches. emissions-conscious approach to business.

In addition, since the entry into force of the regulations At national level, agreements have been reached between governing civil and military airports on 1 November 2009, industry, government and the local population at the the provinces are the authorities empowered (or competent Schiphol and Eindhoven Alders Commissions (limits to authority) for the development of regional airports which growth, noise-abatement measures) and on the committees fall outside the system of airports of national importance. for various regional airports and military bases. In addition, In some cases, this has consequences for the continuity of industry is making substantial investments in the use of the activities carried out at these airports, which in many biofuels and the development of quieter and more cases involve general aviation. fuel-efficient engines.

Under the responsibilities assigned to the Alders Government policy is focused on mitigating the impact of Commisions, regional committees and provinces, agree- aviation on nature and the environment, as outlined in the ments are reached on the development of airports and on White Paper on Dutch Aviation. The need to reduce the proposals regarding airside access. These agreements are impact of aviation on nature and the environment therefore accepted by the government and adopted by the calls for a balance between economy and sustainability in parliament. the organisation of the airspace.

It is important for the Airspace Vision not to look at every airport in isolation but to view them from a broader national and international context.

Increasing attention to the impact of air traffic on nature and the environment Efforts to limit the impact of aviation on nature and the environment at national level mainly take the form of policy on noise pollution and air quality. The approach to combating climate change has a social impact at global and European level. All these elements together constitute a determining factor in the way aviation and airspace within the Netherlands have developed in recent decades. This will also continue to be the case in the future, given the ambitions of the government and the European Commission.

Airspace Vision - Preliminary Policy Document | 23 4 Objectives and constraints Source: Ministry of Defence

24 | Airspace Vision - Preliminary Policy Document On the basis of national and international Strengthening network quality policy frameworks, the national government The Netherlands has a public and economic interest in good regards a number of objectives and constraints international accessibility within the context of competitive- as constituting determining factors in the ness and sustainability. If the network quality is good, then preparation and development of a vision and the passenger or carrier has direct access to fast, high-fre- quency connections to many destinations worldwide. strategy for Dutch airspace. The organisation of the airspace must fit in with and support A national policy for aviation, airspace and air traffic service the strengthening of the network quality of the Mainport providers needs to be robust and future-proof. The Airspace Schiphol and the system of associated airports. Optimal Vision takes as its starting point the policy adopted by the network quality means that not only the number of connec- government and the Parliament in the White Paper on tions counts, but also the quality and competitiveness of the Dutch Aviation and subsequent update letter. The White network as a whole. This quality is also determined by a Paper refers to the following objectives and constraints for reliable, robust, resilient and competitive network. Dutch airspace: Changes in the Dutch airspace need to be aimed at measures to strengthen the competitiveness and quality of the network. Network quality Strengthening of network quality via selective accommodation of Mainport-related traffic. National security and military

Military mission-effectiveness mission-effectiveness Maintenance and improvement of military mission-effectiveness, enabling the Royal Netherlands Air Force to train in the manner it The Royal Netherlands Air Force plays an important role in would operate in conflict situations. safeguarding national security and in the surveillance of Dutch airspace. In order for it to be able to perform this task Alignment with European developments in line with both national and international (NATO) Alignment with European developments is of strategic importance for commitments, continuous unlimited access to Dutch the competitive position of Schiphol Airport and the improvement of airspace is required. performance in Dutch airspace.

Safety Maintenance and improvement of the safety level of Dutch aviation.

Capacity Increasing capacity in Dutch airspace and at airports in order to accommodate demand while maintaining the safety level.

Sustainability Lowering emissions and reducing noise pollution caused by aviation.

Competitive cost levels Achieving competitive cost levels for airports and air traffic control organisations.

Image: F16 fighter aircraft deployment The government will assess proposed improvements and possible solutions in the mentioned objectives and For this purpose, the Royal Netherlands Air Force deploys F16 constraints. fighter aircraft for the “Quick Reaction Alert Force” (QRA) if unknown and/or suspicious aircraft are identified within A number of objectives and constraints are briefly Dutch airspace. In addition, deployment of the Ministry of explained: Defence Helicopter Command for search and rescue (SAR) activities and of the National Police Services Agency Aviation Division for police activities make an important contribution towards safeguarding national security.

Airspace Vision - Preliminary Policy Document | 25 Furthermore, the Ministry of Defence uses a number of The airspace structure between the major airports needs to ground-based firing ranges and exercise areas, which also be designed in such a way that it contributes to this network call for a degree of restriction on the use of airspace. Given of connections. the associated ground infrastructure, it would be difficult to move these areas. Single European Sky (SES) The Single European Sky initiative is of great importance for The safeguarding and improvement of military mission- the Netherlands, allowing it to make improvements to effectiveness, following further cuts in the defence budget, airspace and air traffic service provision. At European also constitute a major condition for contributing now and network level, there is currently a high degree of fragmenta- in the future to international peace-keeping operations and tion in the organisation, management and use of the the combating of terrorism and possible future threats. In European airspace. This results in inefficiency and delays for this connection, shifts in geopolitical relations will civil aviation. determine the development of threat levels. In the Defence Strategic Vision1, the Ministry of Defence has provided its Single European Sky vision in this regard. An initiative of the European Commission, divided into work packages I Changes in Dutch airspace for civil aviation purposes and II, under which policy, design and management of the European air therefore need to take into account the implications for traffic management (ATM) system are harmonised within the military users. European Union. With SES, the Commission aims to improve the performance of the ATM system. It lays down requirements for Member State performance in terms of safety, capacity, cost-efficiency Maintenance and improvement and the environment. of the level of safety The European Commission has introduced legislation with The Netherlands has been able, in a small and complex the aim of developing greater harmonisation in the airspace, to keep safety at a high level2. Any lowering of the planning, management and regulation of airspace and air current level of safety is completely unacceptable. In the traffic control. The Single European Sky initiative includes event of any changes in the airspace, safety must be mandatory common rules on how airspace and air traffic improved or at the very least kept at the current level. In this control organisations are to develop as part of the European regard, the European requirements in the field of aviation network. It is important that these obligations and safety and its impact on national policies and regulations developments are fully taken into account in the way in must be taken into account. which national ambitions as regards airspace are achieved. In particular, the development of regulations and require- ments for performance management in the organisation Alignment with European and use of airspace, air traffic service provision and supervision are important conditions in this connection. developments The Netherlands will continue to have to comply with these obligations, and increasingly so. Alignment with European developments is of great importance for the Netherlands. Dutch airspace plays a Functional Airspace Block Europe Central (FABEC) pivotal role in the northern European airspace located Functional airspace blocks or FABs are regarded by the between the four largest European airports: Schiphol, European Commission as essential means of achieving Heathrow, Frankfurt and Paris. In particular, because of the defragmentation and harmonisation of airspace and air geographical location of Dutch airspace and the position of traffic service provision within European airspace. The Schiphol Airport, Dutch airspace represents a major gateway Single European Sky initiative makes provision for several for traffic arriving from and departing to international functional airspace blocks. They are defined on the basis of destinations. connected parts of the European network and are formed through partnerships between Member States of the European Union and neighbouring countries.

1 Defensie Strategische Visie, 2010. 2 In 2008, ICAO carried out an audit in the Netherlands. This audit showed that the Dutch aviation authority scored highly in terms of compliance with international safety requirements.

26 | Airspace Vision - Preliminary Policy Document Within FABEC, the technological innovations and opera- tional developments driven by SESAR will need to make a major contribution to solving the challenges in FABEC airspace. Within FABEC, the main problem areas are referred to as hot spots. In those areas, optimisations and major changes in the organisation of the airspace and the location of air routes and military exercise areas will take place in the coming years. In this connection, the “CBA Land” (a cross-border military exercise area) and “Central West” hot spots are the most relevant for the Netherlands.

Figure: Route structure within SES, focusing on the FABEC functional airspace block highlighted in blue.

Figure: Major hot spot projects in the northern part of FABEC.

For the Netherlands, the establishment of FABEC constitutes a major development for the strengthening of network quality and the competitive position of Schiphol. It also offers opportunities for creating cross-border military exercise areas in order to bring about improved military mission-effectiveness.

For the management of FABEC, a FABEC Council is to be set up, in which the six countries will take joint decisions in Figure: Overview of FAB initiatives within the Single European Sky. many areas. This joint decision-making should provide solutions for cross-border cooperation and contribute to a The Netherlands, in conjunction with Germany, Belgium, broader range of solutions for the FABEC airspace. On the Luxembourg, France and Switzerland, on 2 December 2010 other hand, the Dutch Airspace Vision will obviously need signed a Treaty establishing the Functional Airspace Block to be agreed with the neighbouring countries, and the Europe Central (FABEC). The Treaty is scheduled to come implementation of this Vision will, where necessary, need into force in early 2012. This will represent a significant step to be jointly implemented with the neighbouring countries. towards the further development of the central section of the European airspace. The challenge of optimisation This functional airspace block forms the central section of the European network because of its location between Optimisation of the organisation, management and use of Europe’s major airports. Approximately 55% of European air airspace will require account to be taken as far as possible of traffic makes (partial) use of FABEC airspace. Within FABEC, the objectives and constraints outlined above. The effects of the Member States have set targets for the defragmentation changes in the airspace will in some cases be complemen- of airspace with a view to organising air traffic service tary. Hence flying more direct routes will result not only in provision within the airspace in an integrated manner cost reductions and fuel savings for the airlines, but also in across national borders and contributing to improving the a reduction in greenhouse gasses and emissions. However, performance of the European system. As from 2012, the proposed measures in some cases have opposite effects, and Netherlands will be required to permanently meet the a trade-off is required between objectives and constraints. performance requirements jointly determined by the Optimising the use of airspace will also entail accommo- European Member States. dating as far as possible the proportional current and future

Airspace Vision - Preliminary Policy Document | 27 needs of users. It is, however, conceivable that at any given Airports time or place, this will not (or will no longer) be possible. Airspace changes can affect airside accessibility and capacity In such cases, the framework for prioritising airspace users and hence the competitiveness of airports and airlines. Any set out by the government in the White Paper on Dutch airspace change can thus affect the network of destinations Aviation will be the determining factor. and the business model of an airport and/or airline.

In the decision-making process on the possible solutions Consumers presented in the Airspace Vision, not only the effects on the Airspace changes need to be designed to reduce delays and objectives and constraints but also the impact on various ensure reliable connections in line with the needs of the stakeholders will be taken into account. The figure and consumer. In particular, for the international traveller, a examples of consequences for various stakeholders reliable transfer product with minimal delays is a decisive illustrate this process. factor in the choice of an airline.

Airspace users For the Dutch traveller, a wide range of reliable internati- The exclusion of certain airspace users from areas of onal connections commensurate with the spatial economic controlled airspace (e.g. general aviation and military users) dynamics in the vicinity of an airport constitutes a determi- can have a negative impact on those users. Also, any change ning factor in terms of place of residence. This is especially in the use of airspace may give rise to a change in the use of true of international knowledge-intensive companies and controlled airspace. These impacts can have a direct service providers in the vicinity of Schiphol Mainport and knock-on effect on consumers or passengers, for example in Eindhoven Brainport. terms of fuel consumption, flight times, wear and tear, maintenance, equipment requirements, etc. Residents The use of airspace has consequences for nature and the Air traffic service providers environment in the form of noise pollution, deteriorating Airspace changes are preceded by costs which need to be air quality, disruption of silence, visual pollution and incurred by air traffic control organisations for the climate change. development and implementation of airspace changes and new technologies. In addition, these organisations incur costs in order to guarantee safety, efficiency and airspace capacity for users. These costs translate into tariffs for airspace users.

• Airspace change

Initiative

• Safety • Network quality • Capacity • Cost-effectiveness Analysis • Military mission-effectiveness of effects • The environment

• Airspace users • Air traffic service providers • Airports Distribution • Consumers of effects • Residents Figure: Steps in weighing optimal against efficient use of airspace.

28 | Airspace Vision - Preliminary Policy Document Airspace Vision - Preliminary Policy Document | 29 5 Developments to allow better use of airspace

Source: Air Traffic Control the Netherlands (LVNL), Ron Berghege Control the Netherlands Source: Air Traffic

30 | Airspace Vision - Preliminary Policy Document In order to allow better use of airspace, innovative solutions are called for. A major contribution in the coming years will be provided by technological innovation and operational developments.

The need for innovative solutions is particularly marked for the Netherlands, which is characterised by a small airspace, one of Europe’s largest airports, Schiphol, and a very broad range of airspace users who make demands on the scarce Dutch airspace.

The implementation and application of new technology play an important role in the extent to which the organisa- Figure: Technological infrastructure for air traffic service provision. tion and use of airspace can develop and eventually be better used. The Single European Sky Air Traffic Airspace organisation Management Research (SESAR) Programme is a combina- The airspace is currently characterised by a rigid route tion of current research projects and developments in structure connecting the various volumes of airspace Europe. These are designed to achieve a harmonised and around the major airports with one another. In the near broad-based European system using new technologies. The future, there will greater possibilities for making flexible project is currently in the development phase. From 2013 to and dynamic use of airspace. Examples include the flexible 2025, these developments will gradually be made available use of military exercise areas and dynamic design of for actual application and implementation. airspace sectors. If military exercise areas are made available to other airspace users immediately before and SESAR after exercises, better use can be made of the airspace. Alternatively, the airspace required for a military exercise The Single European Sky Air Traffic Management Research can be made available tailored to need, which could Programme is a research and development programme aimed at improve military mission-effectiveness. This FUA concept developing an interoperable pan-European ATM system which is able developed by EUROCONTROL for the flexible and dynamic to meet future needs. use of airspace has already been implemented on a limited In 2005, the European Commission set political high-level goals for basis in the Netherlands by the Airspace Flow Management SESAR: Unit (AFMU). Through the acquisition of more experience • A tripling of capacity in European airspace which also reduces delays and an improved exchange of information on planning for both the groundside and airside infrastructure for aviation. and use of airspace, specific needs of users in Dutch • A tenfold improvement in safety performance. airspace can be better met. This will allow users to fly more • A 10% reduction in the effects of aircraft movements on the direct routes and optimal flight profiles. In addition, the environment. increase in the transition altitude (TA) will help to fly the • Air traffic service provision to airspace users with a reduction in costs more optimal continuous-descent approach (CDA) flight of at least 50%. profiles and create more space in the sky to accommodate general aviation activities.

This will allow account to be taken of these developments in Communication aids the Airspace Vision. The Netherlands is actively involved in Up to now, information between airspace users and air and committed to this major project. This is necessary if we traffic service providers has been primarily exchanged by are to contribute to the development of technology and means of radio communication. In the future, the align the timing and scale of the developments with the introduction of new technology will make it possible to situation in Dutch airspace in order to allow them to be exchange information in a faster and more reliable implemented in a safe and efficient manner. manner. Data link (a form of electronic data exchange via a wireless connection between users’ and air traffic service Set out below is a brief explanation of the developments providers’ systems) is now being increasingly used in the which the government foresees and the contribution which upper airspace controlled by MUAC. The further applica- these can make to better use of Dutch airspace. tion of data link will thus in the coming years play a major role in the faster and reliable exchange of more informa- tion, thereby reducing dependence on radio communica-

Airspace Vision - Preliminary Policy Document | 31 tion and hence the workload of controllers and pilots, and Air traffic control operational concept lowering the potential for error. The way in which a organisation provides air traffic services to airspace users in controlled airspace is called the Navigational aids operational concept. The operational concept varies in Flights in the airspace are currently planned by means of a different parts of the airspace and depends on the specific structure of ground-based navigational aids. In the future, requirements of airspace users and the geographical the application of space-based aids will increase the location and surroundings of airports. navigational accuracy of aircraft and reduce dependence on The operational concept used in the airspace is determined ground-based navigational aids. These space-based aids by the potential of the air traffic control system on the making use of the Global Positioning System (GPS) will help ground to allow air traffic controllers to safely manage air reduce complexity in a busy airspace, make it easier to avoid traffic flows. overflying noise-sensitive areas, and allow the introduction on a wider scale of continuous-descent approaches over At present, air traffic is controlled by means of a defined fixed approach routes. route structure, with conflicts within this structure being The government has recently drawn up a phased plan for managed by traffic controllers. The position of aircraft is the implementation of these navigational improvements monitored by means of a ground-based radar infrastructure entitled the “Performance Based Navigation (PBN) and information which is exchanged by means of radio Roadmap”1. communication. In the future, the application of techno- logical innovation in air traffic control systems will enable Radar and monitoring aids air traffic controllers to manage greater flows of traffic in a Surveillance and monitoring of airspace and airspace users flexible and efficient manner. For this purpose, advanced is currently based on radar coverage which is independent computer-based tools will be essential in order to help of the information from the aircraft or user. That means controllers better cope with the increasing complexity in a that this information is generated by ground-based radar safe and effective manner and comply with the desiderata of systems. In the future, the application of space-based aids users. The SESAR Programme has introduced the concept of will allow solutions to be found independent of radar, thus flying 4D business trajectories. Under this concept, the user enabling users to exchange more accurate information is allowed to fly an optimum flight profile and the traffic regarding their position with one another and with air controller tries to facilitate this as far as possible. Because traffic control systems. The application of enhanced Mode-S various targets are set at the various waypoints along the is an example of a development which is making a major route of the flight, the air traffic controller is able to handle contribution to the quality of information on the detection, the flight in accordance with the preferences of the user. identification and altitude of aircraft in the airspace. It also This offers opportunities in all phases of the route to allows additional information to be provided to the air optimise the flight from departure to arrival and vice versa. traffic controller. This makes an important contribution to improving the understanding of the situation in the area of ​​ Back in December 2008, MUAC brought into operation a responsibility of both controllers and pilots. This is also new air traffic control system which allows a new opera- referred to as situational awareness. It also helps to reduce tional concept of free-route airspace management to be the workload of air traffic controllers. applied (whereby in principle the most direct route is assigned) and hence traffic flows to be handled more Accurate information helps to increase the level of safety efficiently. The LVNL and the AOCS NM are also currently and allows a reduction in the margins of uncertainty in the preparing to bring new air traffic control systems into information. This could offer opportunities to increase operation in the coming years. This will be a major step capacity. Independent radar monitoring will remain towards implementing the expected technological necessary in certain situations to cover unforeseen innovations and operational developments arising from the circumstances, emergencies, national security and SESAR Programme, making better use of the airspace and police activities. providing a better service to airspace users.

1 Ministry of Infrastructure and the Environment, “Performance Based Navigation Roadmap”, 2010.

32 | Airspace Vision - Preliminary Policy Document Civil-military cooperation Expected benefits of innovative solutions and technological Civil-military cooperation in the field of air traffic service provision and organisation, management and use of development airspace is an important key in applying the above-men- tioned technological innovations. In this regard, the In the next phase of the Airspace Vision, the government strengthening of cooperation on interoperability and will draw up a detailed roadmap of the expected operational harmonisation of technology and service provision is developments and technological innovations and indicate central to making better use of airspace. when these can contribute to better use of Dutch airspace.

Following the recommendations of the Joint ATM System A brief explanation, set out below, provides an initial (JAS) 20202 report in 2008, the Minister for Infrastructure overview: and the Environment and the Minister for Defence took steps to increase civil-military cooperation in the field of air traffic service provision and airspace use. In the autumn of 2009, the two ministers reached agreements with the air traffic control bodies on strengthening Safety cooperation. Following that, Air Traffic Control the Netherlands and the Royal Netherlands Air Force in spring 2010 issued a letter of intent in which both organisations declare their Military intention to strive for further cooperation with the mission-effectiveness Capacity ultimate aim of a single air traffic navigation service provider and a single airspace by 2020, or sooner if possible. This declaration of intend is supported by the competent ministers and serves as an important starting Advantages point for the drafting of the Airspace Vision.

The further steps in civil-military cooperation in the field of air traffic service provision must make an important Network quality The environment contribution to improving network quality and necessary capacity for access to Schiphol Mainport from the south-east, safeguarding and improving military mission- effectiveness and thereby making better use of Dutch Cost-effectiveness airspace. In this regard, the implementation of flexible and dynamic use of airspace will play an important role in balancing airspace users’ needs.

Benefits for network quality • Flying shorter routes and optimal flight profiles results in shorter flight times and thus the possibility of longer transfer times and an increase in the number of transfer connections and city pairs. • Flexible and dynamic use of airspace contributes to shorter routes and the possibility of reducing delays. • An increase in the reliability and flexibility of the operational concept improves the accommodation of peaks in demand for airspace capacity, and the punctu- ality of departures and arrivals, and thus ensures a robust network of connections. • The introduction of optimal flight profiles helps save fuel costs and reduce emissions, and thus contributes to a competitive and sustainable network product. 2 Roland Berger report, 2008: “ Joint ATM System (JAS) 2020, vision of a future ATM system.

Airspace Vision - Preliminary Policy Document | 33 Military mission-effectiveness benefits Capacity benefits • The creation of cross-border military exercise areas which • Improved navigational accuracy makes it possible to can be used flexibly and dynamically contributes to bring routes closer together and to increase airspace improving the combined proficiency of the various capacity. armed forces. • Implementation of free-route airspace, system develop- • Optimisation of the access and availability of military ment and technological aids allow air traffic controllers exercise areas in relation to the location of military bases to manage more traffic more efficiently. contributes to improving effectiveness and cost-efficiency • Flexible and dynamic use of airspace contributes to a and to reducing emissions in military exercises. balancing of supply and demand where it occurs and to • The strengthening of civil-military cooperation in airspace making better use of airspace. management and air traffic service provision contributes • Integration of airspace by means of functional airspace to a cost-effective accommodation of the needs of military blocks leads to simplification and hence more efficient users. use of airspace.

Safety benefits Cost benefits • Performance-based navigation contributes to more • Flying more direct routes and optimal flight profiles accurate and more consistent flying of routes. reduces fuel, maintenance and staff costs. • Flexibility and increased reliability of the ATM system • The development of a flexible and resilient operational reduces the number of incidents and risks. concept reduces costly delays. • New communication, radar and navigation technology • A transition to the use of space-based navigational aids in improves the situational awareness of controllers place of ground-based navigational aids reduces the and pilots. maintenance and replacement costs of this • Simplification and harmonisation of airspace structures infrastructure. and classification reduces controller workload and the • General and joint approaches to the management and chance of errors and incidents. regulation of airspace reduce costs for users and supervisory bodies. Source: Royal Dutch Airlines (KLM)

34 | Airspace Vision - Preliminary Policy Document • Civil-military cooperation in the field of air traffic service provision lead to better use of airspace at lower cost. • Alignment of the investment strategies of air traffic service providers, the aviation industry and airspace users contributes to an effective and seamless implementation and transition of technological innovations.

Environmental benefits • Flying more direct routes and optimal flight profiles leads to a reduction in emissions. • The use of optimal flight profiles through continuous- climb operations (CCOs) and continuous-descent approaches (CDAs) contributes to reducing the number of people who experience nuisance from aircraft noise. • Increased reliability and flexibility of the operational concept reduce delays and hence emissions. • The defragmentation of airspace into functional airspace blocks provides cross-border environmental benefits for Member States.

Airspace Vision - Preliminary Policy Document | 35 6 What is the Airspace Vision?

36 | Airspace Vision - Preliminary Policy Document The strength of the Airspace Vision lies in an In order to put this into effect, the next phase of the integrated approach to current and future Airspace Vision is divided into a number of steps: • Step 1: Mapping the requirements of airspace users and problems but also in opportunities and airports and translating these into capacity tie-up, chances which the national government sees challenges and problems in the airspace. for Dutch and European airspace. The Airspace • Step 2: Identifying the resolving power and timing of technological and operational developments with Vision does not contain an exhaustive list of regard to the problems and challenges. solutions for individual problems. • Step 3: Mapping opportunities and solutions. • Step 4: Analysing the effects and feasibility of solutions. Changes to Dutch airspace cannot be viewed in isolation. • Step 5: Choosing robust solutions in due time. Many airspace changes involve a European or international context. Even if a change is only nationally oriented, it will Given the level of uncertainty of future developments in in many cases affect a broader range of airspace users. aviation and the airspace, the Airspace Vision needs to be Almost any change in the airspace has an effect on one or robust and flexible. It should therefore be seen as a strategic more areas: capacity, the environment, safety, the economy framework which supports the government and air traffic and national security. Changes therefore need to be jointly control organisations in the further development of the planned and implemented. organisation, planning, management and regulation of Dutch airspace and the efforts at international level. In the Airspace Vision, the government outlines the contours and general criteria for the optimal configuration This strategic vision of the airspace must be closely tied in and use of future Dutch airspace and the necessary coordina- with the broader policy on aviation in the Netherlands and tion which this requires with neighbouring countries. Europe, but it must also constitute a concrete translation of the choices of the government regarding the balance It is based on three time horizons: between the needs of airspace users and the associated • the short-term 2011-2015; trade-offs. • the medium-term 2015-2020; • the long-term 2020-2030. The joint drafting of an implementation agenda including a financial section with all the relevant parties is thus The Airspace Vision also includes a strategy for the imple- necessary in order to turn words into action. Close mentation of operational developments and technological cooperation between the national government, users, air innovations, such as those arising from SESAR, and will traffic service providers, industry and the world of science is contribute to resolving the challenges and problems in of crucial importance. Dutch airspace and to integrating Dutch airspace into European airspace.

What IS included in the Airspace Vision What is NOT included in the Airspace Vision

• An assessment framework for balancing the supply of and demand for • A detailed allocation of capacity to users airspace capacity • Guideline choices for the integration of airport policy (in particular for • A government policy for airport development regional airports) • Improved efficiency of airspace use through adaptation of the airspace • Implementation plans for current regional airport problems structure • A long-term vision aimed at specific accommodation general aviation • Efficiency improvements through all parts of the ATM system and airport operations. • Integration with SESII, FABEC and SESAR • Synchronisation of sector/industry investment plans in order to implement operational and technological enablers. • Correlation with operational developments and technological innovation • A detailed design for Dutch airspace: separate airspace designs to resolve problems. • A main structure for the Dutch airspace of the future • A detailed implementation for proposed changes.

• An implementation agenda and financial section for implementation and changes

Airspace Vision - Preliminary Policy Document | 37 7 Process, planning and consultation Source: Royal Netherlands Aeronautical Association (KNVvL), Saskia Zegwaard Source: Royal Netherlands Aeronautical Association (KNVvL),

38 | Airspace Vision - Preliminary Policy Document Developing a robust and future-proof vision Consultation on the Preliminary and strategy for Dutch airspace is both a Policy Document challenging and a complex task, and one which the government cannot and does not This Policy Document marks the start of the project to draw wish to carry out without the stakeholders. up an Airspace Vision.

Your reaction to the Preliminary Policy Document will serve This being the case, two formal consultation rounds are as input into this Airspace Vision. planned for the time being: 1. 1st of April to 30th of April 2011: Consultation on the We therefore invite you to submit general or specific Preliminary Policy Document. comments, in addition to answering the following 2. August to September 2011: Consultation on the draft questions: Airspace Vision. • Do you recognise and support the need for and urgency If necessary and desirable, intermediate contact will be of an Airspace Vision for Dutch airspace? made during the process, for example in order to check facts • To what extent can you identify with the problems and figures or to answer any questions you may have. identified (from your own perspective)? In the autumn of 2011, a definitive version of the Airspace • What opportunities and solutions do you see for the Vision will be drawn up, which will also contain an better use of Dutch airspace? implementation agenda and a financial section. • What else do you wish the government to take into account in the Airspace Vision?

August/ December 2011 April 2011 September 2011 to January 2012 • Finalisation of • Preliminary Airspace Vision • Consultation • Draft • Consultation • Definitive Policy Document • Implementation with stakeholders Airspace Vision with stakeholders decision prepared agenda

March 2011 Early summer Autumn 2011 2011

Formal procedure for airspace changes 1

In parallel with the progress of the Airspace Vision, there are several ongoing initiatives and changes in the airspace. These are being coordinated by the Ministry of Infrastructure and the Environment and the Ministry of Defence. Decisions are taken in accordance with the procedure for airspace changes (Article 5.11 of the Aviation Act), preceded by an opinion from the Air Traffic Committee.

1

1 Work process in accordance with the airspace and procedure design of 3 January 2011. This work process supersedes the procedure under Article 5.11 of the Aviation Act.

Airspace Vision - Preliminary Policy Document | 39 Source: Air Traffic Control the Netherlands (LVNL) Ron Berghege Control the Netherlands Source: Air Traffic 40 | Airspace Vision - Preliminary Policy Document More information

This document is a joint publication of the Ministry of Infrastructure and the Environment and the Ministry of Defence. If you have any questions or comments, you can contact the Airspace Vision project team at the following address:

Project Airspace Vision Ministry of Infrastructure and the Environment Directorate-General for Civil Aviation and Maritime Affairs PO Box 20904 2500 ex The Hague

Email: [email protected] Tel.: 003170-456 6091

If you would like more general information about aviation, airport and airspace policy, consult the government website: http://www.rijksoverheid.nl/onderwerpen/luchtruim

Airspace Vision - Preliminary Policy Document | 41 42 | Airspace Vision - Preliminary Policy Document Abbreviations, initialisms and acronyms

AOSC NM Air Operations Control Station Nieuw Milligen ASM Airspace management ATC Air traffic control ATM Air traffic management ATS Air traffic services CBA Cross-border area CCO Continuous-climb operation CDA Continuous-descent approach CTA Control area CTR Control zone (aerodrome control area)

EHR Restricted airspace in the Dutch FIR EHP Prohibited airspace in the Dutch FIR EHD Danger area in the Dutch FIR ETS Emissions Trading Scheme FAB Functional airspace block FABEC Functional Airspace Block Europe Central FAS Future Airspace Strategy FIR Flight information region FL Flight level FUA Flexible use of airspace GA General aviation GPS Global Positioning System

ICAO International Civil Aviation Organization IATA International Air Transport Association IFR Instrument flight rules JAS Joint ATM System LAS Lower airspace LVNL Air Traffic Control the Netherlands LVR Air Traffic Regulations LVC Air Traffic Committee MiLATCC Military air traffic control centre MUAC Maastricht Upper Area Control Centre

NATO North Atlantic Treaty Organization PBN Performance-based navigation QRA “Quick Reaction Alert Force” RBML regulations governing civil and military airports RNLAF Royal Netherlands Air Force SAR Search and rescue SES Single European Sky SESAR Single European Sky ATM Research (Progamme) SID Standard instrument departure STAR Standard instrument arrival TA Transition altitude TMA Terminal manoeuvring area TRA Temporary reserved airspace UAS Upper airspace UTA Upper control area VFR Visual flight rules

Airspace Vision - Preliminary Policy Document | 43 Colophon

Airspace Vision Preliminary Policy Document is a publication of the Dutch Ministry of Infrastructure and the Environment Directorate-General for Civil Aviation and Maritime Affairs and the Dutch Ministry of Defence.

Published by Ministry of Infrastructure and the Environment

Information www.postbus 51.nl

Design Mijs Cartografie en Vormgeving, Rotterdam

Cover photo Air Traffic Control the Netherlands (LVNL), Ron Berghege

Print Vijfkeerblauw

Date April 2011

44 | Airspace Vision - Preliminary Policy Document