Aerodrome Certification – The CAAS Experience Donny Tan 30 June 2016 Scope • Before Aerodrome Certification • Aerodrome certification Preparations for certification Separate safety oversight entity Legislation Manual of Aerodrome Standards & Aerodrome Manuals Certification process Lessons from certification • Continuous surveillance • Transition from ASSU to AAR • Corporatisation of Changi Airport & restructuring of CAA • Re-certification 2 Milestones 2002 - Oct 2003: Mar 2007: Aerodrome Standards & Formation of Aerodrome & Safety Unit (ASSU) & ANS Regulation Division Preparation for Aerodrome Certification 1 Jul 2009: Corporatisation of Nov 2003: Changi Airport & 2013 - 2014: Certification of Restructuring of CAA Recertification International Aerodromes Aug 2010: USOAP 2003 2004 - 2006 2007 - 2008 2009 2010 2011 - 2016 3 Before aerodrome certification • Before 1 Jul 2009, CAAS was a Statutory Board under the Ministry of Transport, and carries out the following roles: Safety regulation of local aviation industry; Operation of Changi and Seletar Airport; Provision of Air Navigation Services within Singapore FIR; Negotiation of ASAs on behalf of Singapore Government. 4 Seletar Airport Changi Airport 5 Source: Google Maps Before aerodrome certification • When the requirement for certification of aerodromes was first introduced, CAAS had to: Establish a separate safety oversight entity and a well-defined safety oversight mechanism to carry out the functions of certification and safety regulation of aerodromes; Put in place appropriate legislation; Implement an aerodrome certification procedure Certify the international civil aerodromes in Singapore through the approval/acceptance of an aerodrome manual submitted by the aerodrome operator. 6 * ICAO Manual on Certification of Aerodromes (Doc. 9774) Preparations for certification 7 2003 2004 - 2006 2007 - 2008 2009 2010 Understanding the requirements • Attended aerodrome safety certification workshop jointly organized by ICAO and Civil Aviation Safety Authority of Australia in Brisbane (26-30 August 2002). • Developed a sound understanding of ICAO’s requirements and shared the experience of other participating States. • Formulated plan to work towards the aerodrome certification deadline of 27 November 2003 stated in ICAO Annex 14 . 8 Understanding the requirements • Engaging Expert Advice Aerodrome experts were engaged through the ICAO TCB in November 2002 to conduct an evaluation of the status of compliance of Singapore airports with respect to the SARPs of ICAO Annex 14. Scope of consultancy included a review of the legislative and organization setup in Singapore so as to recommend how CAAS could implement aerodrome certification in a timely and effective manner. Provided inputs on proposed set of aerodrome certification legislation drafted by the CAAS legal department, with references to the UK, Australian and NZ legislative models. 9 Separate oversight entity 10 2003 2004 - 2006 2007 - 2008 2009 2010 Separate oversight entity • Various options of regulatory organization models that have the potential to demonstrate effective compliance with the certification requirements were explored by CAAS and ICAO TCB team. • These included: Separate regulatory unit within the current CAA organisation Having the Ministry to be in charge of aerodrome regulation Establishing regional cooperative body with neighbouring States to jointly conduct aerodrome certification 11 Separate oversight entity • Considerations: Small aerodrome sector in Singapore Limited expertise, staff retention and career prospects Timing and legal issues when collaborating with other States • After extensive consultation with ICAO and the Ministry, a model whereby the Minister would be empowered by new legislation to grant/refuse an aerodrome certificate through a regulatory framework based on an independent safety assessment of the aerodrome was adopted. 12 Separate oversight entity • The Aerodrome Standards and Safety Unit (ASSU) was established • The Minister authorized DGCA to appoint inspectors from within CAAS who are not involved in the design, construction, operations and maintenance activities of aerodromes. • The Minister also directed that external independent consultants be roped in as advisors for the initial certification audits and at regular intervals for surveillance audits to enhance the quality, objectivity and credibility of the safety oversight. 13 Separate oversight entity Minister for Transport Air Accident Investigation Bureau Director-General of Civil Aviation Aerodrome Standards and Safety Unit Legend Private Aerodrome CAAS Divisions involved in the Chain of aerodrome Operators operations of Changi and Seletar regulatory safety oversight (Future) Aerodromes 14 Legislation 15 2003 2004 - 2006 2007 - 2008 2009 2010 Legislative framework Chicago Convention, & Annexes (SARPs) CAAS Act Air Navigation Act Air Navigation Air Navigation Order (Investigation of Accidents & Incidents) Order Singapore Air Operator’s Singapore Air Singapore Airworthiness Certificate Safety Airworthiness Requirements Requirements Publications Notices (SAR) (AOCR) (SASPs) SAR 145 SAR 39 SAR 66 SAR 21 Advisory Circulars 16 Legislative framework • Singapore Air Navigation Act Promulgated for the control and regulation of aviation Empowers the Minister for Transport to make Orders to give effect to the Chicago Convention and its Annexes The Singapore Air Navigation Order had provisions requiring that public transport passenger or flying training aircraft operations be only conducted at a government aerodrome, or at an aerodrome licensed by the Minister However, the legislation did not provide for the certification of aerodromes as specified in ICAO Annex 14 and Document 9774 17 Legislative framework • CAAS Act Establishes and incorporates the CAAS Provides for its functions and for matters connected therewith, which includes inter alia, maintaining and managing Changi and Seletar airports and to provide services and facilities as are necessary or expedient for their operations However, there were no separate regulatory and operational setups Compliance was achieved by referencing the SARPs of Annex 14, through self regulation and internal reviews conducted by the aerodrome operation departments in CAAS 18 Certification legislation • On 15 September 2003, new legislation was formally enacted in the Singapore ANO to require mandatory certification of aerodromes used for public transport or instruction in flying in Singapore with effect from 27 November 2003. 19 Key aspects of new legislation ANO Paragraph 67: Criteria for Certification (1) No person shall operate an aerodrome in Singapore for the take-off and landing of aircraft engaged in flights for the purpose of public transport or instruction in flying unless he is the holder of an aerodrome certificate granted under this Order. (2) An applicant for an aerodrome certificate shall submit (a) an application in the form set out in the Manual of Aerodrome Standards ; and (b) an aerodrome manual for the aerodrome for which the application is made. 20 Key aspects of new legislation ANO Paragraph 67: Criteria for granting/refusing certificate (4) The Minister may grant an aerodrome certificate to an applicant if he is satisfied that: (a) the applicant is competent to operate and maintain his aerodrome properly, having regard to his previous conduct and experience, equipment, organisation, staffing, maintenance and other arrangements; (b) the aerodrome manual prepared for the applicant’s aerodrome and submitted with his application in accordance with sub-paragraphs (2) and (3) contains accurate information and complies with the requirements specified in the Eighteenth Schedule ; ……………… 21 Key aspects of new legislation ANO Paragraph 67: Criteria for granting/refusing certificate ………………… (c) the applicant’s aerodrome facilities, equipment and services comply with the standards specified in the Manual of Aerodrome Standards; (d) the applicant’s aerodrome operating procedures make satisfactory provision for the safety of aircraft; and (e) for the purpose of any application made on or after 24th November 2005, an acceptable safety management system is in place at the applicant’s aerodrome. 22 Key aspects of new legislation • The New Legislation also had provisions for: Validity of Aerodrome Certificate Obligations of Aerodrome Operator in maintaining the Aerodrome Manual and aerodrome operations & services Competence of operational & maintenance personnel Deviations & Exemptions Delegation of Powers 23 The new legislative framework Chicago Convention, & Annexes (SARPs) CAAS Act Air Navigation Act Air Navigation Air Navigation Order (Investigation of Accidents & Incidents) Order Singapore Air Operator’s Singapore Air Singapore Manual of Airworthiness Certificate Safety Airworthiness Aerodrome Requirements Requirements Publications Notices Standards (SAR) (AOCR) (SASPs) SAR 145 SAR 39 SAR 66 SAR 21 SAR 147 Aerodrome Notice to Aerodrome Safety Aerodrome Safety Advisory Circulars Directives Operators Publications 24 Manual of Aerodrome Standards & Aerodrome Manual 25 2003 2004 - 2006 2007 - 2008 2009 2010 MOAS & Aerodrome Manual • Preparation of the Singapore Manual of Aerodrome Standards (MOAS) and Changi & Seletar Aerodrome Manuals took place concurrently. • The MOAS mirrored Annex 14 closely, but had differences such as: Certain Annex 14 RPs assessed to be necessary were upgraded to Standards in the MOAS e.g. certain provisions for ARFF Irrelevant