EC(97-98)34
For discussion
on 19 November 1997


ITEM FOR ESTABLISHMENT SUBCOMMITTEE OF
FINANCE COMMITTEE

HEAD 28 - CIVIL AVIATION DEPARTMENT
Subhead 001 Salaries

Members are invited to recommend to Finance Committee the creation of the following permanent post in the Civil Aviation Department -

1 Chief Operations Officer
(D1) ($92,650 - $98,300)

PROBLEM

The Airport Standards Division (APSD) of the Civil Aviation Department (CAD) requires additional staffing support at the directorate level to cope with the increasing volume and complexity of work.

PROPOSAL

2.The Director of Civil Aviation (DCA) proposes to create a permanent post of Chief Operations Officer (COO) (D1) to oversee the work related to aviation security and air traffic safety in the APSD.

JUSTIFICATION

3.We established an APSD in CAD in August 1995. Its existing organisational chart is at Enclosure 1. At present, there are two directorate officers in the Division : an Assistant Director (Airport Standards) (AD(APS)) and a COO titled Chief Safety Officer (Airport Standards) (CSO(APS)). The job descriptions of the two posts are at Enclosures 2and 3 respectively. The APSD needs an additional COO to cope with the increasing volume and complexity of work related to aviation security and air traffic safety.

Aviation security

4.Before the enactment of the Aviation Security Ordinance (ASO) in August 1996, aviation security measures in Kai Tak were mainly in the form of administrative measures specified by the Airport Management Division of CAD. The Airport Manager was responsible for the implementation of aviation security measures. The regulatory function performed by the APSD on aviation security was limited and its work focused mainly on the security measures required of airlines and airport tenants.

5.In June 1996, the Hong Kong Aviation Security Programme (HKASP) was issued. It stipulates security requirements for the protection and safeguarding of airports, aircraft, passengers, crew and the general public against acts of unlawful interference. In August the same year the ASO was enacted to give legal effect to the Standards and Recommended Practices laid down in Annex 17 to the Convention on International Civil Aviation as well as other international conventions on aviation security. These developments form the basis of a new regulatory framework for aviation security in Hong Kong.

6.Under the new regulatory framework, CAD is the designated agent responsible for ensuring the implementation and enforcement of the ASO and the HKASP. The APSD of CAD is responsible for the regulatory functions, including vetting and approving individual security programmes developed by airlines, airport operators, cargo handling agents, etc., and monitoring implementation of the programmes.

7.Each security programme is a comprehensive document specifying the security duties of concerned parties and details of the security measures. These measures include facilities and equipment to be provided (such as fencing and access control systems), manning levels and procedures for security control, and response to incidents. The approval process involves detailed assessment of plans and facilities and the vetting of operational procedures, staffing and training of concerned parties. It requires regular liaison and consultation with parties both within and outside the Government.

8.The additional regulatory duties have overburdened the Aviation Security Sub-section of the APSD. The problem will aggravate with the opening of the new airport in 1998 because -

  1. the Airport Manager, airlines and tenants operating in the new airport will draw up their aviation security programmes. The APSD needs to vet and approve these programmes to ensure their compliance with the required aviation security standards;

  2. the size and scale of operation of the new airport will be much larger, and the security requirements are far more complex; and

  3. there will be a continued need to closely monitor the operation of the new airport which will be managed by the Airport Authority, instead of by CAD itself as in the case of the Kai Tak Airport, to ensure compliance with the aviation security requirements. There will also be a need to review the appropriateness of the standards and to amend them in the light of operational experience and changes in international standards or recommended practices.
9.For these reasons, DCA increased the establishment of professional staff in the Aviation Security Sub-section of the APSD from two to six in October 1997 to cope with the increased workload. However, given the complexity of the work involved, the expertise required, and the importance of implementing the HKASP effectively, DCA considers that he requires additional staffing support at the directorate level to meet the new working requirements.

Air traffic safety

10.On air traffic safety, the APSD mainly performs its functions as an in-house safety auditor on air traffic control (ATC) services provided by the Air Traffic Management Division of CAD. Its work includes vetting of flight procedures and modus operandi of the ATC system, and the qualifications and training provided for the ATC staff in accordance with the standards and recommended practices of the International Civil Aviation Organisation.

11.There has been a substantial increase in the workload of the Air Traffic Sub-section of the APSD as a result of the following developments -

  1. the continued increase in the volume of air traffic (from 182 104 aircraft movements in 1995 to 197 954 movements in 1996 and to a projected figure of 240 700 in 1999) makes it necessary to revise regularly the ATC and flight procedures;

  2. the rapid growth in the number of ATC personnel (from 216 in January 1996 to 253 in January 1997 and to an approved establishment of 383 in April 1999) necessitates a substantial expansion of the training programme, ranging from upgrading of training facilities, deployment of additional instructors and subsequent proficiency checks;

  3. to tie in with the relocation of the airport in 1998, a lot of work needs to be done to develop new modus operandi to govern the ATC and flight procedures, installation of new equipment and familiarisation for staff; and

  4. the second runway at the new airport is scheduled for opening around late 1998 and requires more complex ATC procedures to support its operation.

12.As a result of the above factors, the Air Traffic Sub-section has to formulate more complex ATC procedures to meet the growth in demand. Its work has become increasingly complex and requires a higher degree of expertise on the part of the subject officers concerned.

Need for a permanent COO post

13.Due to the increase in day-to-day work relating to air traffic safety, the existing AD(APS) cannot devote sufficient time to strategic policy formulation in relation to the implementation of the ASO and the related standards and requirements. He is not able to initiate effective reviews of the increasingly complex air traffic control procedures necessitated by the growth in air traffic. DCA therefore proposes to strengthen support at the directorate level by creating a permanent COO post to take up duties arising from -

  1. the setting and review of aviation security and ATC standards and requirements;

  2. the review and development of relevant legislation; and

  3. the establishment and maintenance of effective control and monitoring systems for enforcement purposes.

14.The need for updates and reviews of aviation security and ATC standards has become increasingly frequent in recent years, given the rapid progress in aviation technology. The COO will ensure that the aviation industry and other government departments are consulted on proposed changes, make decisions on major technical issues, resolve conflicts as well as supervise three Senior Operations Officers and five Operations Officers. His official title will be Chief Safety Officer (Airport Standards)2 and his job description is at Enclosure 4.

15.The requirement of an additional COO will not diminish upon the opening of the new airport, since the enforcement and review of the security/ATC arrangements and relevant legislation are on-going duties. Moreover, the new airport will undergo further developments in response to growth in demand, such as the addition of new terminal facilities, aircraft taxiways and parking aprons, in the years ahead. These future developments will require continuous revisions of the corresponding security/ATC measures.

16.Upon the creation of the COO post, the existing AD(APS) will be able to devote more time to strategic policy formulation for aviation security and air traffic control. The revised job description of the AD(APS) post is at Enclosure 5. The existing COO post will be retitled as Chief Safety Officer (Airport Standards)1 and his duties will remain the same. The new organisation chart of the APSD after creation of the additional COO post is at Enclosure 6.

FINANCIAL IMPLICATIONS

17.The additional notional annual salary cost of this proposal at mid-point is -

$No. of post
New permanent post1,144,2001

The full annual average staff cost of the proposal, including salaries and staff on-cost, is $1,949,700. DCA has included sufficient provision in the 1997-98 Estimates to meet the cost of this proposal.

CIVIL SERVICE BUREAU COMMENTS

18.The Civil Service Bureau considers the grading and ranking of the proposed post to be appropriate, having regard to the responsibilities and professional input required.

ADVICE OF THE STANDING COMMITTEE ON DIRECTORATE SALARIES AND CONDITIONS OF SERVICE

19.The Standing Committee on Directorate Salaries and Conditions of Service has advised that the grading proposed for the post would be appropriate if the post were to be created.

Economic Services Bureau
November 1997


Enclosure 2 to EC(97-98)34

Job Description

Title :Assistant Director (Airport Standards)
Rank :Assistant Director of Civil Aviation

Responsible to : Deputy Director of Civil Aviation (Operations and Standards)

Responsible for/Serves as -

  1. The selection and training of divisional personnel, the drawing up and approval of the divisional budget and the efficient management of allocated financial and manpower resources.

  2. Establishing policy and procedures to enable the implementation of the relevant Standards and Recommended Practices of the International Civil Aviation Organisation (ICAO) Annexes 1, 2, 4, 11, 12, 14, 15, 17 and 18, which cover matters such as personnel licensing, rules of the air, air traffic services, aerodrome design and operations and aviation security etc.

  3. Policy and legislation concerning the control of obstructions to air navigation and its implementation.

  4. Policy on aerodrome licensing requirements, the standards to be applied and their implementation.

  5. Monitoring the operation of licensed aerodromes.

  6. Policy on the provision of aerodrome rescue and fire fighting services.

  7. Monitoring the investigation by aerodrome operators of airport ground incidents.

  8. Monitoring air traffic control procedures and the provision of air traffic services to ensure compliance with all applicable ICAO standards and recommended practices and statutory requirements.

  9. All matters concerning the carriage by air in civilian aircraft of dangerous goods and munitions of war.

  10. Policy on general aviation activities including balloon/kite/model aircraft flying, hang-gliding and para-gliding.

  11. Liaising with and providing advice to other government departments and non-government authorities on matters of airport and air traffic safety.

  12. The exercise of delegated authority under Articles 43, 44, 60, 62, 64A, 64B, 67, 71, 72, 73, 79, 80, 82, 86, and Schedule 4 and 16 of the Air Navigation (Hong Kong) Order 1995, concerning the carriage of dangerous goods, provision of air traffic services, and the use and licensing of aerodromes etc.

  13. Exercising the powers of an Authorised Person under Articles 87 and 88 of the Air Navigation (Hong Kong) Order 1995 to prevent flying and to gain access to aerodromes.

  14. Chairman of the New Airport Safety Committee, which mainly advises on matters concerning the use of the new airport by aircraft and, endorses plans and designs of the new airport that affect aviation safety.

  15. Chairman of the Airport Operations Committee, which advises the Director of Civil Aviation on airport operational and air safety matters.

Enclosure 3 to EC(97-98)34

Job Description

Title :Chief Safety Officer (Airport Standards)
Rank :Chief Operations Officer

Responsible to : Assistant Director (Airport Standards)

Responsible for/Serves as -

  1. The organisation, staffing and efficient functioning of the Safety Regulation and Airport Standards Sub-sections.

  2. Making recommendations on the licensing requirements and operational and maintenance standards of aerodromes, including heliports.

  3. Implementation of aerodrome licensing policy and making recommendations regarding the grant of aerodrome licences.

  4. Provision of advice and assistance to the Assistant Director (Airport Standards) on airport safety matters.

  5. Reviewing aerodrome manuals, airport emergency procedures manual, airport rules, procedures, circulars and other documents to ensure compliance with safety standards and regulations.

  6. Approval of inspection programme for licensed aerodromes.

  7. Monitoring the application and updating of legislation on the control of obstructions to air navigation and lights exposed to the sky.

  8. Monitoring the adequacy of rescue and fire fighting services at licensed aerodromes.

  9. Monitoring the investigation of and the measures taken to prevent airport ground incidents and the making of safety recommendations to appropriate organisations as necessary.

  10. Liaising with and providing advice to aerodrome operators and user organisations as necessary to enhance airport safety.

  11. Supervising the running of the Dangerous Goods Office and ensuring compliance with legislation governing the safe transport of dangerous goods by air.

  12. Co-ordination of Divisional involvement in matters relating to safety in operations at the new airport at Chek Lap Kok.

  13. General administration and training of officers within the Safety Regulation and Airport Standards Sub-sections.

  14. Member of the New Airport Safety Committee which advises on matters such as those concerning the use of the new airport by aircraft and, endorses plans and designs of the new airport that affect aviation safety.

  15. Secretary of the Airport Operations Committee, which advises the Director of Civil Aviation on airport operational and air safety matters.

Enclosure 4 to EC(97-98)34

Job Description
(For the Proposed COO)

Title : Chief Safety Officer (Airport Standards)2
Rank : Chief Operations Officer

Responsible to : Assistant Director (Airport Standards)

Responsible for/Serves as -

  1. The organisation, staffing and efficient functioning of the Aviation Security and Air Traffic Sub-sections.

  2. Provision of advice and assistance to the Assistant Director (Airport Standards) on air traffic and airport security matters.

  3. Making recommendations on policy and procedures on implementation of international standards and recommended practices on aviation security and air traffic services.

  4. Monitoring compliance with the Hong Kong Aviation Security Ordinance, its subsidiary legislation and the Hong Kong Aviation Security programme.

  5. Making recommendations for updating aviation security legislation and programmes.

  6. Establishment and implementation of a system -

    1. for the regulation of airport operators, airlines and airport tenants to ensure that they comply with the aviation security requirements;

    2. for a regulated cargo regime to enhance the security control of air cargo;

    3. for the application of standards and training requirements on aviation security services personnel.

  7. Approval of airport, airlines, and airport tenant security programmes, and security inspection programmes for licensed aerodromes.

  8. Liaison and co-ordination with local and overseas agencies on matters relating to the enforcement of the Hong Kong Aviation Security Programme.

  9. Supervising the monitoring of air traffic control procedures and the provision of air traffic services to ensure compliance with applicable ICAO standards and recommended practices and statutory requirements.

  10. Monitoring the investigation of air traffic incidents and the measures taken to prevent the recurrence of such incidents.

  11. Monitoring the examination and licensing of air traffic control officers.

  12. General administration and training of officers within the Section.

  13. Member of the Kai Tak Airport Security Committee, the New Airport Security Planning Committee and Shun Tak Heliport Security Committee whose functions are to ensure that the security measures at the Kai Tak Airport, the new airport and the Shun Tak Heliport meet the relevant requirements.

Enclosure 5 to EC(97-98)34

Job Description
(Revised)

Title :Assistant Director (Airport Standards)
Rank :Assistant Director of Civil Aviation

Responsible to : Deputy Director of Civil Aviation (Operations and Standards)

Responsible for -

  1. The selection and training of divisional personnel, the preparation of the divisional budget and the efficient management of allocated financial and manpower resources.

  2. Establishing policy and procedures to enable the implementation of the relevant Standards and Recommended Practices of ICAO Annexes 1, 2, 4, 11, 12, 14, 15, 17 and 18, which cover matters such as personnel licensing, rules of the air, air traffic services, aerodrome design and operations and aviation security etc.

  3. Policy and legislation concerning the control of obstructions to air navigation and its implementation.

  4. Policy on aerodrome licensing requirements, the standards to be applied and their implementation.

  5. Policy on the enforcement of the Aviation Security Ordinance.

  6. Review of aviation security requirements and standards to be applied under the Hong Kong Aviation Security Programme.

  7. Policy on the provision of aerodrome rescue and fire fighting services.

  8. Policy on general aviation activities including balloon/kite/model aircraft flying, hang-gliding and para-gliding.

  9. Establishing and maintaining a system for monitoring -

    1. the operation of licensed aerodromes;

    2. the investigation by aerodrome operators of airport ground incidents;

    3. air traffic control procedures and the provision of air traffic services to ensure compliance with applicable ICAO standards and recommended practices and statutory requirements;

    4. the application and implementation of the Hong Kong Aviation Security Programme.

  10. All matters concerning the carriage by air in civilian aircraft of dangerous goods and munitions of war.

  11. Liaising with and providing advice to other government departments and non-government authorities on matters of airport and air traffic safety and aviation security.

  12. Chairman of the New Airport Safety Committee, which advises on matters such as those concerning the use of the new airport by aircraft and, endorses plans and designs of the new airport that affect aviation safety.

  13. Chairman of the Airport Operations Committee, which advises the Director of Civil Aviation on such operational and air safety matters.

  14. Member of the Hong Kong Aviation Security Committee, which advises on aviation security matters.