A Blueprint for the Single European Sky - Delivering on safety, environment, capacity and cost-effectiveness
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A Blueprint for
the Single European Sky
Delivering on safety, environment, capacity and cost-effectiveness
A Blueprint for the Single European Sky 1CONTENTS 1 – EXECUTIVE SUMMARY 02 SES Blueprint 02 Key Reforms 03 Performance 03 Rationalization 03 Modernization 03 2 – PRESENT STATUS OF THE SINGLE EUROPEAN SKY 05 Technology 05 Safety 06 Legislative 06 Performance Scheme 06 Functional Airspace Blocks 06 Network Manager 07 Airports 07 Human factors 07 3 – KEY CONSIDERATIONS TO DELIVER SES 08 Economic and Social Opportunity 08 Environmental Opportunity 08 Key Reforms 09 4 – A BINDING PERFORMANCE SYSTEM 10 Performance: Key Challenges 10 Performance: Key Reforms 10 Performance: Key Benefits 11 5 – RATIONALIZATION 12 Consolidation: Key Challenges 12 Consolidation: Key Reforms 12 Reducing support costs of Air Navigation Services 12 Reducing the number of Air Traffic Control Centers 13 Regrouping en route air navigation services at FAB level 13 Rationalizing the ATM infrastructure 14 Unbundling the CNS, AIM and MET services 14 Clarifying the role of EASA 14 Expanding the role for the Network Manager 15 Reform of Eurocontrol 16 Civil-Military Alignment 16 Human Factor 16 Consolidation: Key Benefits 16 6 – MODERNIZING THE ATM SYSTEM 17 Modernizing: Key Challenges 17 Modernizing: Key Reforms 17 SESAR governance 17 Funding and incentives mechanisms 18 Human factors 18 Modernizing: Key Benefits 19 7 – CONCLUSION 20 SUMMARY OF THE KEY REFORM MEASURES REQUIRED 21 SUMMARY OF THE NEW ATM ENVIRONMENT BENEFITS 22
1 – EXECUTIVE SUMMARY
The European aviation sector is The current ATM structure and
a major driver of economic growth performance is a genuine threat to
for the European Union (EU). More on-going growth and viability of the
than 800 million passengers1 were European air transport sector and
transported by air in Europe during unless appropriately addressed will
2011. It is estimated that the air impair European competitiveness
transport sector provides 7.8 and restrict economic growth and
million jobs and contributes €475 job creation.
billion in Gross Domestic Product With fewer air traffic
(GDP) across the European Union2. This report integrates many of the controllers the United States
With economic globalization and existing “silo approach” analyses such
FAA is able to deliver 70%
increasing travel demand, up to as the ATM Master Plan to provide an
a two-fold increase in air traffic is overall vision of the Single European more controlled flight hours
projected within the next 20 years3. Sky and the necessary reforms to than Europe.
realize the anticipated benefits.
To support the expected growth
in a safe and sustainable manner, a
seamless and modern air transport SES Blueprint
system is required for Europe. This is
the objective of the Single European When fully realized, the Single
Sky (SES) initiative which carries European Sky will handle more than
high-level goals to achieve by 2020 20 million flights per year with the
relative to 20054: highest level of safety in the world.
Aircraft will arrive within one minute
• A three-fold increase in capacity of the planned arrival time regardless
where needed; of weather conditions. Travel will be
reduced by 10 minutes on average.
• Improve safety performance by a A total cost reduction across Euro-
factor of 10; pean ATM of €9 billion per annum
will be achieved through structural
• A 10% reduction in the effects
and operational improvements. The
flights have on the environment; and
institutional and technical reforms will
• Reduce the cost of ATM services to reduce the additional costs caused
airspace users by at least 50%. by fragmentation and inadequate A new approach is required
service quality across Europe by over to increase the performance
€3 billion per annum. Better proce- and efficiency of the air
However the current approach to dures and flight profiles will provide
the SES has not accelerated the €6 billion of fuel savings and 18 mil-
transport system while
evolution of a Single European Sky lion tonnes of CO2 emissions savings decreasing environmental
to the extent anticipated. Progress every year. Additional capacity, more impact and overall cost.
has been painfully slow and the efficient routes, fewer delays, less
inefficiencies of the European Air cancelled flights, and lower fuel burn
Traffic Management (ATM) system are will considerably increase the efficien-
still generating more than €5 billion of cy and economy of air transport while
direct additional costs and 8.1 million reducing costs and generating €419
tonnes of additional CO2 emission billion additional GDP for the Euro-
every year5. pean economy and 320,000 jobs7.
The slow progress continues to
cause passenger flight delays of more
than 100 million hours annually6. The
incentives of a competitive market are
absent, and the coordination required
across borders makes national
oversight inadequate.
1
From European Commission statistics (Eurostat): http://epp.eurostat.ec.europa.eu/portal/page/portal/transport/data/main_tables
2
From ATAG: www.aviationbenefitsbeyondborders.org/around-the-world/eu27-nations
3
From EUROCONTROL Long-Term Forecast - Flight movements 2010-2030
4
From European ATM Master Plan Edition 1 2009
5
Performance Review Report (PRR) 2011
6
800 million passengers have suffered from an average 10 minutes delay (PRR report 2011)
7
From SESAR JU “Assessing the macroeconomic impact of SESAR” 2011 A Blueprint for the Single European Sky 02Key Reforms Rationalization Modernization
To achieve the future European air The rationalization of ATM institutional The modernization of airborne
transport environment and realize structures includes a range of reforms systems and ground infrastructure
these economic gains, three key to better clarify and streamline both and procedures will ensure that
reforms are necessary: regulatory and service provision the forecast of increased traffic can
across European skies. be safely managed through better
• The creation of a mature situational awareness for both
performance system; The expansion of EASA scope is not pilots and air traffic controllers.
supported as this time. Instead the Simultaneously, the deployment of
• The rationalization of air traffic
focus on addressing potential over- advanced decision support tools will
management institutional
laps between the EASA and SES enable the rationalization process
structures; and
frameworks should be addressed through increased system efficiency
• The modernization of the ATM through coordination mechanisms. allowing the same number of air
system. The activities of National Supervisory traffic controllers to safely handle
Authorities (NSAs) relating to FAB a doubling of traffic.
level activities should be centralized
Performance in regional offices under the supervi- The new generation of systems
sion of EASA. will use open architecture allowing
The establishment of an independent much greater flexibility, innovation
European economic regulator for air The grouping of en route air and interoperability ultimately leading
navigation charges to define the targets navigation services provision at to significant efficiencies and further
to be achieved, oversee progress and Functional Airspace Block (FAB) supporting rationalization activities.
determine binding financial corrective levels with no more than 40 Air
action is fundamental to the success Traffic Control Centers (ATCC) across These systems also facilitate the
of SES. Consideration should be Europe and the centralization of efficient routes and flight profiles
given to evolving the role of the operational management, training, that result in 300kg8 of fuel savings
Performance Review Body into such procurement and support functions per flight; €6 billion of fuel cost
a body given it present function and would be a primary driver for cost- savings and 18 million tonnes of
capability. effective services and reducing the CO2 emissions savings per annum.
cost of fragmentation by €3 billion
The targets and financial incentives per annum (improved service through These new sophisticated tools
set must cascade through the entire reduced delay in all phases of flight necessitate an upgrade of skills
ATM supply chain with binding and reduced number of support for the traditional role of air traffic
mechanisms between the states professionals). The rationalization controllers as they become air traffic
and their various air navigation process also enhances safety and managers. This evolution, much
services providers issued on a environmental outcomes through like the transition pilots experienced
limited and regularly reviewed term reduced interface and transfer points, with modern airliners, will support a
with binding performance obligations. improved information sharing and system requiring no increase in ATC
better matching of resource to staffing levels beyond today. The new
The approach to operational demand. technologies also offer a broadening
performance improvement must of skills for the technical workforce
enhance service quality on a gate- A reorganization of supporting as they will have to manage new and
to-gate basis. ATM infrastructure at a European more automated systems in larger air
or FAB-level, provided by the best traffic control facilities.
To support these activities, the value operator and subject to a
European Commission needs to periodic tendering process, will The modernization and rationalization
develop a clear, integrated roadmap deliver better value services and of the ATM supply chain ultimately
for the 5 Pillars (Technology, Safety, reduce the waste from infrastructure results in a need for fewer support
Legislative, Airport and Human Factor) duplication designed along national professionals in air navigation
of SES including the expected borders rather than European air services but will generate more than
performance contribution from each transport network need. 300,000 additional jobs across the
pillar to achieve the high-level goals. European aviation sector.
A Network Manager taking
accountability for the central
functions of flight information,
demand and capacity management,
as well as implementation of new
ATM infrastructures to ensure common
standards and interoperable rules
will ensure that European airspace
is managed as a community resource.
8
2010 US/Europe comparison of ATM related Operational
Performance commissioned by Eurocontrol and the FAAKey Benefits
A Blueprint for the Single European Sky 042 – PRESENT STATUS OF
THE SINGLE EUROPEAN SKY
The EU launched the SES To achieve these goals the European The SESAR Joint Undertaking (JU)
initiative more than ten years ago. Parliament established a framework has been tasked to manage the
The objective was to reduce the of five pillars based on technology, update of the European ATM Master
fragmentation of air navigation safety, performance, airports and Plan, but if the document defines a
services in Europe and to improve human factors. clear technology roadmap for SESAR
the performance of the ATM system. deployment, it still lacks the broader
The EU has played an important and ambitious targets which the
This initiative was largely based on leadership role in the establishment SES promised and air transport
a white paper9 issued by the Com- and implementation of the SES stakeholders had anticipated. This
mission in 1996, which warned that pillars; however, various initiatives is an opportune time to consider
lack of capacity of the existing system are in differing stages of development the next steps as the governance
was a risk to the future growth of air and have not been brought together structure for SESAR deployment is
transport in Europe. The inefficiencies into a comprehensive, integrated still under discussion, the longevity
of air navigation services were re- and action-orientated roadmap. of the SESAR JU is currently being
sponsible for approximately €4 billion considered, and most important, the
per annum of extra costs for the air- business case for SESAR deployment
lines in delays (€2 billion), extensions Technology has yet to be consolidated. The
of route (€1.2 billion) and additional level of EU funding to mobilize
air navigation charges (€0.6 billion). The Single European Sky ATM and support SESAR deployment
Research (SESAR) program has is also uncertain, as the €3 billion
The EU adopted two SES packages been a strong focus for many budget proposed by the European
in 2004 and in 2009 in order to stakeholders across the industry. Commission (EC) for the period 2014
reduce this fragmentation, to better More than €2 billion has been to 2020 is not approved. Issues also
define the responsibilities of regula- committed to the development phase remain unanswered regarding the
tors and operators, enhance the and is estimated that around 3,000 harmonization of SESAR and Next
performance of air navigation ser- people are currently engaged in Generation Air Transportation
vices and reduce the cost of these this unprecedented research and System (NextGen) programs.
services. The second package was development effort to improve ATM Specifically, concerns exist in
intended to accelerate the realiza- efficiency. The encouraging results relation to standardization,
tion of the SES and its benefits with of this development phase have certification and aligned
high-level goals to achieve by 2020 demonstrated that new concepts are regulation.
relative to 2005. feasible however the benefits will be
much delayed and at a reduced level
Enabling EU Improving than originally planned. Importantly,
skies to handle safety by a SESAR deployment will only deliver
3 times more factor of 10 a portion of the SES high-level goals.
traffic If the technology component is not
deployed in synchronization with the
Reducing the Cutting ATM other pillars, it will lead to further
environmental Unit costs by waste and non-delivery of benefits.
impact per 50%
flight by 10%
Figure 1: SES implementation five pillars
TECHNOLOGY LEGISLATIVE SAFETY AIRPORT HUMAN FACTOR
PILLAR PILLAR PILLAR PILLAR PILLAR
SESAR FABs EASA
Network Manager
Perform. Scheme
Safety, Environment, Cost Effectiveness and Capacity
9
ATM White Paper: COM(96)57 finalSafety Functional Airspace Blocks
To date the SES I and II packages (Performance Review Report (PRR)
focused on making progress in 2011) shows that the inefficiencies
areas of safety and clarified the of air navigation services were still
respective roles of regulators, generating more than € 5 billion NEFAB
supervision authorities and service per annum of extra cost for
providers. The evolution of the airspace users: DK-SE
European Aviation Safety Agency UK-IR
(EASA) to cover ATM and airports • En route delays (€900 million), Baltic
is also an important step towards FAB EC FAB
• Route extensions (€1930 million), CE Danube
the supervision of safety across the
• Airports delays (€550 million), SW Portugal-Spain
entire air transport supply chain.
Blue MED
• Arrivals holding and sequencing
However, at this point, it is
(€950 million), and
considered that EASA must improve
its cost-efficiency. Importantly, it • Taxi out (€850 million).
is lacking some of the necessary
resource capability in order to ef- The FABs are a vital foundation
fectively perform new responsibilities, element of the SES, designed to
especially with respect to appropri- rationalize European ATM. There are
ately experienced and skilled currently 9 FABs either established or
professionals. under construction: two of these (UK-
Ireland and Denmark-Sweden) are
Reporting and transparency are established. The others were required
also insufficient. It is concerning to be established by 4 December
that in the PRR for the 2011 2012. Despite considerable expecta-
calendar year, that 12 European tion, progress has been minimal and
Civil Aviation Conference states did the substantive requirements of the
not submit safety template data to regulation are not considered to have
the Eurocontrol Safety Regulation been met. Against any reasonable
Commission. assessment of progress, it cannot be
said that FABs have optimized air-
In addition, the cost of air navigation space along air traffic flows, or opti-
Legislative services provision is more than €8 mized human and technical resources
billion per annum (en route and and the European Commission is
The legislative pillar consists of terminal air navigation services). expected to announce infringements
three components which have close This means that the total cost of procedures against non-compliant
interrelationships; the Performance air navigation services provision states.
Scheme, the FABs and the Network in 2011, including current system
Manager. inefficiencies was €13 billion per Route design has seen an increase
annum. in operational efficiency, however,
major technical, cultural and
Performance Scheme €13 billion in 2011 industrials challenges still need to
be addressed. Most EU ANSPs
Air navigation services provision
The performance scheme has (€8 billion)
continue to develop their own ATM
been operational since January 2012, systems and their own training
and monitoring and reporting is new System inefficiencies capability, which leads to difficulty
for this first performance review (€5 billion) in standardizing EU-wide service
period (termed RP1) from 2012- delivery, inhibits staff mobility and
2014. However, the development Between 2005 and 2011 an adds significantly to overall costs.
of performance plans by states and improvement in the en route air More needs to be done to rationalize
FABs has been unacceptably slow navigation costs has occurred. the ATC supply chain by reducing
and passive. The last report of the However, this is still far from the the numbers of ANSPs, AIM, CNS
Performance Review Body objective of the SES implementation, and MET providers. This has to
which requires a 50% reduction by be one of the priorities of the
2020. Most states have presented SES implementation.
plans that are not fully compliant
with the objectives contained in
the performance scheme.
A Blueprint for the Single European Sky 06Airports
The 2010 U.S./Europe Comparison The comparison also demonstrates The release of the EU airports
of ATM related Operational Perfor- that both systems have inefficiencies, package in late 2011 focused on
mance, commissioned by EURO- which generate extra cost in terms matters associated with slots, ground
CONTROL and the Federal Aviation of delays and fuel burn, and that a handling and noise. It remains an
Administration (FAA)10, indicates the global enhancement of performance issue that this package addresses
potential results which rationalization has to be delivered by a global only allocation and utilization issues
of these services can generate. With modernization of the ATM system. and not capacity issues.
similar sized airspace (11.5 million
km² for Europe, 10.4 million km² for The need to better integrate airport
the U.S.), a comparable number of Network Manager processes with airspace management
airports (450 in Europe, 509 in the using a standardized approach is
U.S.) and with very similar service The Network Manager function was evident if the capacity goals of the
levels, the U.S. ATM system is able established at the beginning of 2012. SES are to be realized and we are
to manage 67% more flights (15.9 The function has a governance not to continue wasting €2.35 billion
million flights in the U.S., compared to structure supportive of airspace in additional costs attributable to
9.5 million flights in Europe) with less user needs and will be a useful the airport and associated terminal
air traffic controllers (14, 600 in the tool to drive the implementation of airspace.
U.S., 16, 700 in Europe) and 38% SES operations towards increased
less staff (35,200 in the U.S., performance. However, there are also
57,000 in Europe). some unresolved matters that relate Human factors
to the on-going EUROCONTROL
The report from Eurocontrol and network technology research and Of all of the pillars, the least
FAA11 identifies the fragmentation development and not the SESAR JU. tangible progress has occurred
of the European ATM system as the This should be consolidated to the with respect to the human factors
main driver behind such difference SJU program. and social issues involved in SES
with 38 ANSPs in Europe (only one implementation. It is well recognized
in the U.S.) and 63 en route centers To ensure the effectiveness of this that this is a challenging area and will
in Europe (20 in the U.S.). role, the SES regulation must explicitly take commitment and diligence by
state that the Network Manger has ANSP management and staff to
This analysis indicates that the SES the authority to enforce coordinated work through this transition.
objective of reducing the unit cost of actions by ANSPs. Additionally, the
air navigation provisions by 50% is Network Manager role needs to be Without a successful human factors
clearly achievable and this should strengthened to ensure that it can element to this transition, the SES
be a key objective of each FAB. rationalize the network and identify will result in the deployment of
opportunities for service quality new technology that will not be
improvement by FABs. fully utilized and not deliver the
anticipated benefits. A clear focus
on better planning the engagement
with ANSP staff is needed.
EUROPE USA
Surface 11.5 million km2 10.4 million km2
Airports 450 509
ANSPs 38 1
En route centers 63 20
Traffic 9.5 million 15.9 million
Total Staff 57,000 35,200
Air Traffic Controllers 16,700 14,600
Controlled flight hours 13.8 million 23.4 million
10,11
2010 U.S./Europe Comparison of ATM-Related Operational Performance3. KEY CONSIDERATIONS
TO DELIVER SES
Environmental Opportunity
The Single European Sky is a • There would be nearly half a million The aviation industry agreed in
flagship transport initiative for the fewer direct jobs in the air transport 2008 to the world’s first set of
European Union, delivering significant sector. sector-specific climate change
European-wide economic, social and targets. The industry is already
environmental improvements as well • Taking into account the indirect delivering on the first target – to
as aviation sector specific benefits. and induced impacts, the total improve fleet fuel efficiency by 1.5%
number of jobs supported by the per year until 2020. From 2020,
To deliver a truly Single European air transport sector would be over aviation will stabilize its net CO2
Sky and realize these opportunities, 1.9 million fewer than the base emissions while continuing to grow
the European Union, member states forecasts. to meet the needs of passengers
and institutions must be prepared to and economies.
make the necessary and challenging • The direct, indirect and induced
reforms. contribution of the air transport By 2050, the industry intends to
sector to European GDP would be reduce its net CO2 footprint to 50%
€127 billion (2010 prices) lower, below what it was in 2005.
Economic and with an additional €64 billion lost
Social Opportunity through lower tourism activity. Companies across the sector are
collaborating to reduce emissions
The modernization and rationalization using a four-pillar strategy of new
of many European industries including For the SES directly, the SESAR technology, efficient operations,
energy, communications and transport Joint Undertaking Macroeconomic improved infrastructure and economic
has been marked by the successful Impact Assessment demonstrated measures to fill the remaining
transformation of European national that implementation could deliver emissions gap.
leaders into global champions, 320,000 additional jobs and €419
delivering innovation, better service billion of additional GDP in the period There are three key European
and lower prices to domestic and 2013-203013. programs which bring together
international markets. European Commission institutions
Disturbingly, Europe’s status as and industry to deliver these ambitious
In air transport, this transformation a leading hub of world trade, a objectives: SESAR, the Clean Sky
has supported the tremendous position held for centuries due to its technology program and European
growth in demand to date and relative development and geographic Biofuel Flightpath.
facilitated the emergence of major position, is increasingly under threat
European carriers that are now from rapidly developing competitive Europe’s Single Sky program alone is
among the world’s largest airlines. nations and regions. supposed to deliver a 10% reduction
Additionally, rationalization has in environmental impact and so is
occurred in the manufacturing A key factor in the EU’s ability to considered as one of the key drivers
industry, allowing European remain competitive in the future will of a sustainable development of the
manufacturers to become world be the seamless connectivity with air transport in Europe.
leaders in many aspects of the the emerging economies of Latin
aviation sector. America, Africa, the Middle East
and Asia.
Today the air transport sector in
Europe supports 7.8 million jobs This connectivity will not be possible
and €475 billion in economic impact. without a new ATM system capable
In fact, if European aviation were a of managing the anticipated growth.
member state, it would rank 7th in The SES is designed to deliver this
size by GDP. connectivity.
The study led by ATAG on the
benefits of aviation beyond borders12
indicates that should growth in
passenger and cargo traffic be one
percentage point lower during the
period 2010-2030, then in 2030:
12,13
From SESAR JU “Assessing the macroeconomic impact of SESAR” 2011
A Blueprint for the Single European Sky 08Key Reforms
This opportunity for the European
economy to create millions of new
jobs, many billions of additional GDP
in the coming years and to reinforce
the position of Europe in the evolving
global market must not be allowed
to fail.
A new round of stronger and targeted
SES legislative reforms is urgently
required so that the benefits of SES
can be achieved. To achieve stronger
regulation it will be vital that the
European Commission is supported
by a Single Sky Committee free from
conflicting interests with member
state ANSPs, a strong consultation
We see three key reform
mechanism with airspace users and measures to achieve these
greater transparency and account- goals:
ability of decision making.
Member states and FABs will 1. The creation of a mature
have to be fully engaged in the performance system
implementation of all SES pillars
with a clear commitment to structural
2. The rationalization of
changes, which will have binding air traffic management
targets and financial incentive institutional structures
mechanisms.
3. The modernization of the
In order to reach the SES goals, ATM system
the key stakeholders, but particularly
service providers will need to form
different relationships and reach a
greater level of collaboration.
This new ATM environment will
have to be efficient, dynamic, highly-
integrated and innovative.
Stakeholders will have to be willing
and able to integrate developing
technologies and capabilities both
on the ground and on board.
European airspace will need to be
operated collaboratively as a network
if the safety, environment, capacity
and cost-effectiveness goals are
to be achieved.4. A BINDING PERFORMANCE SYSTEM
Performance: Performance:
Key Challenges Key Reforms
There remains considerable scope A fundamental issue in the approach These targets and financial incentives
to improve performance through a to date for SES is the lack of an over- will take into account the necessary
stronger more targeted performance all roadmap identifying the process investments required for the moderni-
framework where states and service to deliver the high-level goals. The zation and rationalization of the ATM
providers are held strictly accountable. European Commission needs to services and be cascaded at a na-
establish such a plan and clearly tional or FAB level within the various
The bottom-up approach, whereby identify the interrelationships between ANSPs through binding mechanisms.
decision making is devolved to state the 5 SES Pillars and their individual This means that the performance
and ANSP level and consultation contribution towards the trajectory plans will have to be based on the
with local stakeholders, has failed to for safety, environment, capacity European Commission established
deliver the targets. States have not and cost-effectiveness by 2020. roadmap.
fully reached the targets they had Such a roadmap would set the
previously agreed. The incentives necessary policy guidance to drive To ensure this process is transparent,
of a competitive market are absent, the consequent performance frame- providers will report regularly to their
and the coordination required across work, regulation and measures. customers on a series of Key Perfor-
borders makes national oversight mance indicators (KPIs), which will
inadequate. A new package of regulation estab- be incorporated into binding service
lishing an independent EU economic charters between customers and FABs.
Between 2004 and 2011, air regulator is essential. Evolution of
navigation unit costs for en route the PRB into such an entity given its Future funding through charging
services have decreased by 15%, current function and capability is a will be dependent upon achievement
however this is mainly due to the logical step to take. To this end, the of those KPIs. Pricing caps will also be
increase in traffic as the service units PRB should be detached from Eu- overseen by the economic regulator
have increased in the same period by rocontrol and transformed into a full which will consider progress against
more than 30%. Some progress has EU body overseen by the Commis- KPIs in determining the efficiency of
also been made in flight efficiency but sion. The members of the PRB shall each provider.
delays have significantly increased be appointed directly by the Com-
and were in 2011 more than 30% mission. To guarantee that these There are a number of examples
higher than in 2004 (60% higher that members exercise their functions in in Europe, such as the telecommu-
the targeted objective with 1.6 min an independent manner and with- nications sector, where economic
per flight as an average)14. out any conflict of interest effective regulation has successfully supported
safeguards should be introduced the establishment of a cost efficient
through regulation. and fair market for consumers.
The independent economic regulator Three instruments have been used to
should establish milestone EU positive effect:
targets to be achieved by each State
or FAB, control the conformity of the • Progressive liberalization of former
performance plans with these targets monopolies,
and require appropriate corrective
• Accompanying harmonization
measures when necessary.
measures, and
• Competition rules.
Future funding will
be dependent upon
achievement of
KPIs, overseen by an
independent EU-wide
economic regulator
14
Performance Review Report (PRR) 2011 A Blueprint for the Single European Sky 10As indicated by ongoing regulations tives of the performance scheme, An overall SES roadmap is a founda-
for other sectors, amongst the most but also considering the situation of tion tool that will set the policy guid-
important characteristics of a regula- each individual ANSP and the level ance necessary for member states
tory system are: of efforts made to engage in the and institutions to ensure each of the
structural reforms and investments 5 Pillars interrelate and contribute
• Transparency should apply to requested to deliver SES benefits. appropriately to the SES high-level
the regulatory process: The targets, A robust airspace users’ consultation goals. This will serve to mitigate con-
which are established, should be mechanism must be implemented in cerns regarding roles, responsibilities
based on a set of KPIs, which are this process. and accountability as well as setting
easily measured. The KPIs must be the overall trajectory for stakeholders
independent and airspace users • Binding performance obligations: to deliver the SES.
must be involved in the process. Where monopoly ATM services are
maintained at local, national or FAB The establishment of a European-wide
• Cost-effectively deliver an level, because rationalization of these independent economic regulator for
adequate level of investment: services is considered to provide air navigation charges will ensure that
The new regulation package should better cost efficiency, the new regu- a consistent, fair and accountable
ensure that the future framework lation will have to clearly state that performance system is established
provides the right mechanisms in providers of these services have to to facilitate the realization of SES.
the context of the challenges facing be designated from member states This essential reform will make best
the FABs, with increased emphasis as service providers for a limited and use of scarce resources and ensure
for behavioral change and for regularly reviewed term and with a best practice economic regulation
investments in rationalization and service level agreement containing is applied.
modernization of the ATM supply binding performance obligations
chain. aligned to the performance scheme.
• The profitability or return on invest- • Performance plans: The National Su-
ments is a key driver: This can be pervision Authorities (NSAs) will still Price caps would be
achieved by a change in the air be responsible for the elaboration set to provide financial
navigation charges regulation, link- of the performance plan. However incentives for improved
ing the rate of return on the invest- those plans will have to be submit-
ments made by the ANSP and ted to the economic regulator for
performance.
equity of their shareholders to the endorsement before adoption by
achievements of the performance individual states.
scheme. This process will
• Penalties: To ensure the compliance Performance: Key Benefits considerably reduce
of states and FAB operators, the the timeframe
performance scheme will be binding, A binding performance system de- required to finalize
with the regulator having the ability signed to drive the right behaviors
the Performance Plan
to require reasonable and automatic is essential to realize the benefits of
sanctions when divergence from the SES. To date the approach has been process and thereby
performance scheme is observed fragmented, inconsistent and lacking increase the quality
for a state or a FAB. Vigilance is accountability. This critical reform through traffic forecasts
required to guard against the poten- must be approached with the benefits
tial for costs associated with any to Europe and its citizens as the prime determined nearer to the
penalties being included in charges. consideration and must not be ob- commencement of the
The framework for penalties must be scured by vested interest or historical Performance Period.
designed at an EU level to ensure institutional practices.
inappropriate “trade-offs” cannot
occur.
• Pricing: A key role of the economic
SES Roadmap Independent Economic Regulator Incentivised Performance
regulator would be to manage and
monitor the approval process for • 5 Pillar Plan • EU-wide focus • Clear target setting
the unit rates of the air navigation • Clear contribution • EU, FAB and State level • Strong financial penalties
• EC determined for non-compliance
charges according to the objec-5. RATIONALIZATION
Rationalization:
Key Challenges
Rationalization of European ATM is These ancillary services should be The Performance Review Report
the foundation of SES implementation. liberalized through separating them (PRR) for 2011 also indicates that
In the future ATM environment, a from the core bundled ANSPs and today’s support costs in Europe
reduced number of FABs will have opening the market for competition. represents more than 70% of ATM/
to deliver efficient Air Traffic Services CNS costs which are estimated to
(ATS). This will be achieved through SES implementation needs strong be approximately €300 out of a
a limited number of air traffic control centralized functions to tightly coordi- total cost of €400 per flight hour.
centers and rationalized ATM infra- nate the programs contained in the
structure that operates with open five pillars. The European Commission For some smaller European ANSPs
architecture, fully-standardized sys- will need the regulatory powers and the support cost is more than 80%
tems and procedures. This evolution resources to ensure this is achieved. of their total unit cost. It is recognized
will necessitate meaningful social that nine European FABs will not
dialogue to ensure the ATM workforce provide the same unified system
Rationalization:
is engaged with these important that applies in U.S., however a
changes. Key Reforms reasonable objective should be to
reduce the ratio of European ATCOs
The cost of services for the airspace Reducing support costs to additional staff from the present
users will be reduced, while flight of Air Navigation Services ratio of 2.4 to 1.6. A slightly higher
efficiency steadily improves. ratio is considered reasonable based
Communication, Navigation and Comparison with the U.S.15 indicates upon the additional interface and
Surveillance (CNS) services will that the ratio of Air Traffic Control requirements associated with multiple
be provided at lower cost and with Officers (ATCOs) to additional staff FABs. This would in fact result in more
higher efficiency. CNS, Aeronautical in the U.S. is 1 to 1.4 whereas in than 3000 additional professional
Information Management (AIM) and Europe it is 1 to 2.4. staff providing support functions
Meteorological (MET) services will across Europe if the 1.4 US ratio
be re-organized with successful was applied.
providers offering the most efficient
and cost effective service.
Daily traffic > 2000
Daily traffic > 1000
Daily traffic < 1000
15
2010 US/Europe Comparison of ATM Related Operational Performance commissioned by
Eurocontrol and the FAA.
A Blueprint for the Single European Sky 12Reducing the number
of Air Traffic Control Centers
The comparison with the U.S.16 also It is considered that this could career path options for ATCOs,
indicates that the U.S. ATM system be achieved without major capital and other professionals, appropriate
is able to manage 67% more flights investments and would ensure the training of front line management to
with 38% less staff. A major reason capacity to manage future growth enable their active involvement in
for this disparity is that the number of of air traffic. the transformation program and the
air traffic control centers in the U.S. is development of common standards
20, whereas in Europe there are 63 In addition to this rationalization, to address a range of workforce
centers. innovative approaches should also be issues related to rationalization.
considered. This includes concepts
This fragmentation is a major driver in such as the “Virtual Center” where Synergies within FABs should not
the relatively poorer performance of standardization of ATM equipment prevent other types of partnership
the European ATM network. The US- could drive ANSP efficiency, facilitate between ANSPs drawn from differ-
Europe comparison suggests that we load sharing and reduce investment ent FABs. The deployment of new
need to be able to manage up to 20 costs via shared services models. infrastructure should be able to be
million flights safely with the existing transferred to all FABs. All forms of
number of ATCOs (16 700) and with collaboration between providers from
a reduced proportion of additional Regrouping en route air different FABs should be encouraged
professionals 26 720 (1.6 x 16 700). navigation services at FAB level to reduce service fragmentation.
This fragmentation occurs at multiple
To reduce the number of Air Traffic Whilst the number and design of levels within the existing European
Control Centers (ATCC) in Europe FABs will be rationalized and evolved, ATM system and it contributes to the
from 63 to 20 would require high they will remain the major organiza- current inadequate levels of overall
capital investment in new facilities tions for the state to deliver ATM efficiency.
and additional costs for organizing performance services. The objectives
the mobility of the staff. of reducing the number of air traffic It is necessary that each FAB be
control centers and support costs required by regulation to develop a
However, a reasonable program should be fulfilled at FAB level. roadmap for rationalization of ATCC’s
of rationalization of ATCCs will including key steps necessary for so-
be necessary if Europe is to regain FAB initiatives should therefore cial dialogue, cost-benefit and safety
competitiveness and achieve the SES. be reviewed against the following analysis.
It is therefore necessary to identify objectives:
opportunities where rationalization
is appropriate from a performance, • The provision of en route air traffic
investment and human factor control services is regrouped at
perspective. In this regard, it will FAB level with centralization of
be necessary to merge or integrate operational management, training,
the smaller ATCCs, with the larger procurement and support functions.
or those that have been recently
modernized to leverage the existing • A clear program of rationalizing With the objective of
investment. Analysis indicates that and regrouping air traffic control limiting investments in new
no more than 40 ATCCs should centers and other facilities at FAB facilities and being able to
be required to operate European level is developed in each national
airspace with the current number performance plan to reduce the
control the anticipated 20
of ATCOs. total number of centers in Europe million flights per annum
from 63 to not more than 40. with the existing number
Present situation SES implementation of ATCOs and a reduced
• A wide-ranging and robust change
10 million flights 20 million flights management program is established number of additional
in each FAB to ensure staff are support professionals,
directly and continuously engaged not more than 40 air traffic
in the transition. This also includes
16,700 ATCOs 16,700 ATCOs
a review of current work practices control centers should be
40,300 additional 26,720 additional (to make the optimal use of new required in Europe
professionals professionals technology), the development of
63 AIR TRAFFIC NOT MORE THAN
CONTROL 40 AIR TRAFFIC
CENTERS CONTROL
CENTERS
16
2010 US/Europe Comparison of ATM Related Operational Performance commissioned by
Eurocontrol and the FAA.Rationalizing
the ATM infrastructure
In parallel, European ATM regulatory framework to steer the the new regulation will have to
infrastructure has to be rationalized. implementation of standardization clearly state that providers have
Currently ANSPs operate separate and consolidation measures in a to be designated for a limited and
ATM platform which multiplies consistent and coherent manner. regularly-reviewed term and with a
costs and makes a coordinated Within the FABs a common steering service level agreement containing
deployment at EU level much more body should be established in order binding performance obligations
difficult. There is a need for shared to ensure consistent and coordinated aligned to the performance scheme.
and more effective coordination of deployment.
procurements at FAB level which Where states have opened markets
could also occur between FABs and As standardization measures are to competition for services, such as
at EU level under the supervision realistic and effective means to control tower services, it is important
of the Network Manager. Globally, achieve the EU-wide performance that the same rules that govern this
there are countries including the targets, respective roadmaps for type of competitive service provision
U.S., Canada and Australia that have standardization and infrastructure should apply throughout Europe.
successfully deployed new ATM consolidation shall be developed
infrastructure such as ADS-B and and endorsed.
data-communication systems through Clarifying the role of EASA
a large-scale infrastructure and Procurement would then be
services tender process. Indeed, it implemented through tenders issued The Commission intent to expand
can be the case that the “unbundling” at EU level or FAB level, providing the scope of the EASA to deal with
of traditional functions can enable suppliers with the opportunities to all technical regulation and oversight,
technology deployment using achieve economies of scale and including issues not related to safety
alternative investment and service to reflect this in pricing. These is noted. However, overloading EASA
models. economies of scale will reduce the with new tasks might create more
initial investments required for the problems than benefits and could
This is an approach that should new infrastructures and result in distract EASA from its core safety
be applied in Europe, where all the a decrease of the global level of mission. The expansion of EASA’s
new infrastructures for ATM should investments of the ANSPs. scope should not be a priority at
be based on fully standardized and this point in time. Instead, potential
interoperable systems defined at EU overlaps between EASA and SES
level. Unbundling the CNS, AIM frameworks could be solved through
and MET services proper coordination mechanisms
Standardization of ATM equipment between EASA, Eurocontrol and the
is an effective means of increasing The provision of Communication, Commission without changing the
the efficiency of ANSPs. A common Navigation and Surveillance (CNS), institutional framework.
standardized ATC interface leads AIM, and Meteorological (MET)
to improved FAB performance, by services will also have to be reorgan- Regarding rulemaking, a more
introducing effective load sharing ized to reduce fragmentation and transparent governance is needed to
processes. It also contributes to duplication and to drive increased ef- ensure that the needs of those that
functional convergence of equipment ficiency. This can be achieved through finance the system have appropriate
by automatically solving the uneven consolidation at FAB level using a input to decision making processes.
spread of performance arising from tender process that encourages all Certification of new components
different levels of sophistication in the European providers to compete and of the ATM system should be the
operational concepts and technical to extend their services beyond the exclusive role of EASA.
support. national borders.
Individual ANSPs will no longer Regardless if these services are
be compelled to purchase a fully- centralized at EU level or fully
fledged system of their own, but rationalized at FAB level, the The fostering of
will be able to acquire a service providers should be designated
from a competitive supplier or share through processes that allow all rationalized providers
equipment with another provider, European licensed service and industries able to
such as within the framework of a providers to compete. deliver air navigation
FAB project. This will reduce not
only the investment costs but also Where these services are
services beyond borders
the overall costs of providing the rationalized at FAB level because must occur.
services concerned. Legislation is rationalization is considered as
needed to provide an appropriate providing better cost efficiency,
A Blueprint for the Single European Sky 14The activities of National Supervi- The Network Manager therefore of these projects, and penalties
sory Authorities (NSAs) concerning should be empowered with new should apply in the event that the
services that are rationalized at FAB responsibilities and functions allowing FAB Member States do not comply
level, or delivered by one service pro- this role to develop a clear strategic with the proposed measures and
vider for several countries, should be view of the network improvements to deadlines.
centralized in regional offices located be coordinated between the different
in each FAB under the supervision stakeholders. The role should be The new regulation of SES should
of EASA. This will ensure a more specifically mandated to define and clearly state the functions to be fully
efficient use of the existing resources supervise all the centralized functions centralized at EU level as part of
and avoid duplication of checks or of the SES implementation including the responsibilities of the Network
lack of coherence in compliance the introduction of technology that Manager; which services are to be
regimes between states. Importantly, will increasingly drive the European delivered at FAB level; and which
EASA has also to be more efficient aviation network, such the System services are to be submitted to
with less complex regulation, rule Wide Information Management competition in accordance with
making processes easy to understand (SWIM) and Air Traffic Flow the rules of the EU open market.
and to implement by operators. Management initiatives. It is also With potential for significant
critical that the Network Manager rationalization these functions will
This means a more operational ensures that these systems effectively be evaluated through cost benefit
regulator, driven by a relationship interface with Airport Collaborative analysis, which will analyze the
with the operators governed by two Decision Making. benefits of full centralization at EU
main principles: responsibility and level of some existing ATM services
transparency. A new governance Additionally, the Network Manager such as ATFM, and SWIM but
and stronger consultation process should be given the competence to also a next generation flight plan
will have to be established to better propose and to carry out specific management system.
integrate operators concerns in projects for the optimization of FAB
the setting up of the regulation. At governance, airspace as well as
present, the move towards a more technical and human resources.
comprehensive technical “European Realistic but ambitious time lines
Aviation Agency” should not be should be set by the Network
considered, as the slow progress Manager for the implementation
on the establishment of a SES is
not due to the lack of streamlined
and balanced application of aviation The Network Manager
legislation in the EU.
• Focuses across many European airspace
blocks to manage overall network performance
through optimized trajectory and SWIM
Expanding the role
• Manages demand and capacity across the
of the Network Manager network through techniques such as advising
flights to delay on the ground where necessary
The Network Manager has a critical • Re-designs airspace, air-routes to be more
role to play in the rationalization of efficient and maximize capacity across Europe
the European ATM system and this
role has to be empowered to be
Functional Airspace Blocks
the architect of the ATM network
in Europe, working in collaboration • Focuses on a small number of European
airspace blocks to optimize airspace, human
with all aviation stakeholders. and technical resources
• A new state and institutional structure to
Moreover, the ability of the Network
organize air navigation services
Manager to effectively cover all of
Europe, to reach all operators and • Will rationalize European airspace from
27 blocks to only 9
to facilitate military coordination
will make it the primary custodian of
delivering network benefits, which is Air Traffic Control Centers
an essential element for the success • Focuses on one European airspace
of SES implementation.
• Provides air traffic services to flights
• Currently 63 individual centers across Europe
with potential for significant rationalizationReform of Eurocontrol Human Factor
The evolution of EASA combined The necessary process of With the achievement of that, the
with the Network Manager develop- rationalization must be done with objective of a 50% reduction of the
ing a greater role in rationalizing the full participation and transparency unit ATM costs would be realized.
European ATM architecture, further of staff and their representatives;
necessitates the reform of Eurocontrol. the risk of not having an engaged The regrouping of en route air
workforce for such a change is navigation services at FAB level will
R&D activities will need to be well significant. also allow more direct routes and
aligned with Horizon 2020 and SJU free routing in the upper airspace,
programs and the Maastricht ACC To address this risk, the European with a 50% reduction of the route
should be fully integrated in the Commission needs to establish a extensions in the interim term. It
FABEC structure. planning framework across all FABs should result in an annual €1 billion
to identify and track the progress of cost saving and a 3 million tonnes
Eurocontrol will focus on activities human factor engagement. reduction in CO2 emissions.
related to its enhanced role as the EC
appointed Network Manager, the new A better organization of the airspace at
governance should be based around Rationalization: FAB level, and an enhanced air traffic
industry leadership on these activities. Key Benefits flow management system developed
However, this should not limit the role by the network manager at EU level
and use of expertise of Eurocontrol to Rationalization will contribute should eliminate most of the en route
continue support of SES and SESAR. significantly to the reduction in unit delays representing a €1 billion
cost and to the absorption of the €5 annual cost saving.
Eurocontrol will have to achieve billion of current inefficiencies.
the performance targets set by the
independent economic regulator. The immediate regrouping of
The cost base reform of Eurocontrol en route air traffic control services Rationalization alone
must continue to decrease regardless at FAB level with centralization of
will mean the unit cost of
of traffic growth. operational management, training,
procurement and support functions ANS provision is reduced
should allow a 10% cost saving by 20% in the interim term
Civil-Military Alignment (€700 million per annum). In the
interim term, the other benefits of
Military operations must be given reducing the number of air traffic
appropriate regard in the rationaliza- control centers, and a better cost
tion process. Importantly, as ration- efficiency for CNS, AIM, MET
More direct routes and
alization leads to reduced fragmenta- services, should deliver an additional free routing whenever
tion and using airspace as a single, 10% reduction in unit cost and and wherever possible,
flexible resource, it is anticipated that inefficiencies. It should reduce the elimination of most of the
both existing and emerging military unit cost of ANS provision by 20%
mission need will be better accom- in the interim term. en route delays, should
modated and integrated with growing result in a €2 billion cost
civil air transport sector demand. In the end state, with the US ratios saving and a 3 million
applied to the European context,
16 700 ATCOs and a total number tonnes reduction in CO2
of less than 45 000 professionals emissions.
should be able to manage twice
the amount of traffic.
Immediate Term Interim Term End-State Total savings
• 10% unit cost reduction • 20% reduction in unit cost • 50% reduction in unit cost €3.7 billion per annum
• €700 million cost savings • €1 billion of cost savings • €2 billion of additional cost • CO2 emissions savings:
per annum per annum savings per annum 3 million tonnes per annum
• Enroute Services grouped • Reduced number of ATCC • 16,700 ATCOs for 10 million flights
at FAB-level and better cost efficiency • Total number of less than • 6 million tonnes for 20
• Centralization of operational for CNS,AIM & MET 45,000 professionals million flights
management, training, services.
• 40 ATCC able to manage
procurement and support • More direct routes and twice the traffic with direct
functions lower delays routes and no delays
A Blueprint for the Single European Sky 166. MODERNIZING THE ATM SYSTEM
Modernizing:
Key Challenges
The expected increase in productivity ATM modernization cannot be
of the European ATM system will not successful if human factors are not
be possible without the successful fully integrated into the development
deployment of new technologies and and validation of new concepts and The lack of coordination
operational concepts that support procedures supporting SESAR in the implementation of
the ATM transformation process, deployment. All the professionals a data link infrastructure
including the better integration concerned by the structural changes
of airborne and ground systems. required to deliver the high-level
at EU level is one of the
This has to be supported by a robust goals of the SES implementation major failures of SES
validation and implementation process must be involved in the decision- implementation today.
but also by funding, financing and making process.
incentive mechanisms.
This requires a clear commitment Modernizing:
of the states and ANSP to implement Key reforms
the requested infrastructure and
systems in synchronization with the
the evolution required for airborne SESAR governance
equipage. Mandates have to also
apply to ground based equipment. Considerable scope exists to To successfully deploy
Penalties against states not fulfilling improve system performance through SESAR, the regulations
their obligations on time must be the introduction of new technology
enforced. and new operational concepts. This is
and implementation rules
the objective of a successful SESAR established by the EU will
The “Best Equipped Best Served” deployment. To realize this ambition, have to ensure that the
(BEBS) principle must be broadened the institutional framework must governance mechanisms
to a “Most Capable Best Served” avoid duplication and ensure cost
(MCBS) to encompass aircraft efficiency. are driven by the SES
equipage, crew training, operational high-level goals.
certification, flight planning capability Airspace users will have the exclusive
and the ability to efficiently and responsibility to endorse business
seamlessly convey the pertinent cases for Common Projects before
capability to ATM. The discussion European Commission adoption.
on applying this principle for Following such endorsement the
encouraging investment needs to delivery of improved performance
progress. It should be applied as outcomes will be binding upon
a progressive tool to facilitate and ANSPs and airports.
accelerate the transition towards a
more effective airspace use concept. Common Projects will define, Harmonization between
The €3 billion support for SESAR in total transparency, which capa- SESAR and NextGen will
deployment, which was forecasted by bilities and technologies are to be have to be guaranteed
EC in the next TEN-T program for the deployed and where, within an as-
period 2014 to 2020, needs to be sociated timeframe on which ANSP, through fully interoperable
adopted by the states and European airports and airspace users can com- systems. Airspace users
Parliament. mit. Whilst the manufacturing industry and industry suppliers will
cannot be involved in the governance
Without this funding, airspace of SESAR deployment, they do have
have to be fully engaged
users will have difficulties funding a role to support end users through in this harmonization
investment both directly and indirectly information exchange. This will assist process through constant
in the new technologies required decision making to ensure global
exchanges between the
for SESAR. A powerful funding and interoperability as well as to ensure
incentives mechanism is required to that the most effective solutions are key stakeholders of the
support the efforts required for the evaluated, independent of any vested two programs.
modernization of the European ATM interest.
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