The increase of air traffic, changed airspace requirements for military aviation, environmental driving forces, and a growing demand for airspace and fuel efficiency requires steps to optimize the use of airspace. ICAO endorsed a global campaign on Civil/Military Cooperation (CMC). TOC and PLC studied CMC in regard to ATC operations and operational consequences. This paper is an Information Paper that provides guidance for initiating CMC.

1.1  Presently there are two major airspace user categories in the world, civil and military. The civil aviation sector (General Air Traffic (GAT), a term used in Europe to indicate flights that comply with ICAO provisions) includes private, commercial and state aircraft that are primarily transporting cargo and passengers. Military aviation comprises only state aircraft engaged in transport, training, security, offense and defense. Military state aircraft usually operate as Operational Air Traffic (Operational Air Traffic (OAT) is a term used in Europe to indicate flights (State aircraft) that not necessarily comply with ICAO provisions due to the nature of their operation, and for which rules and procedures have been specified by appropriate national authorities), which means that due to the nature of their operations they normally do not comply with ICAO provisions. These aviation sectors are essential to global stability and economies.

1.2  In 2009, the 37th ICAO Assembly endorsed a global campaign on Civil/Military Cooperation (CMC), which was recommended by the Global Air Traffic Management Forum on Civil/Regional Cooperation.

1.2.1 The intended outcome of the global campaign is:

• to improve Civil/Military Cooperation,
• to optimize the use of airspace by applying the flexible use of airspace,
• to share information between civil/military authorities, and
• to analyze the impact of modernization efforts by States.

1.3 TOC and PLC were tasked to investigate this subject in regard to the effect of CMC on (civil and military) ATC operations. The objective of this paper is to provide information and guidance how to establish global CMC.

2.1 The need for Civil/Military Cooperation (CMC)

2.1.1  The increase of civil air traffic, and changed requirements for military airspace (i.e. training with modern fighters) are resulting in a growing demand for airspace. States need to take a balanced approach to airspace management in such a way that the airspace requirements of both Civil and Military users are met. This requires communication, collaboration and cooperation between civil and military aviation authorities.

2.1.2  Environmentally driven forces require global aviation to take necessary steps to reduce aircraft fuel consumption and emissions. The major means to meet this objective is through improved flight operations, of which the Flexible Use of Airspace (FUA) concept can contribute in a considerable way. FUA can reduce the number of track miles flown considerably, and thereby reduce the amount of aircraft emissions.

2.1.3  Following the end of the Cold War in Europe, defence budgets were cut. The severe military budget cuts reduced the amount of military flights in Europe considerably. Although the initial prospect of a war in Europe significantly diminished, it became soon obvious that political instability shifted to other parts of the world. This led to a re-focus of Military Operations, in particular in an Out of Area context (e.g. peacekeeping and peace-enforcing in other parts of the world). The latter in combination with newly introduced weapon systems, resulted in a different way of military airspace requirements and use. In example, exploiting weapon systems that, although lower in number, require more training airspace to test and evaluate. This made an even more intensified Civil/Military Cooperation more necessary then ever.

2.1.3.1 To get an idea of the size and impact of military aviation, one could consider the number of military aircraft in Europe:

• over 1,100 large aircraft (transport, cargo, tankers, maritime patrol aircraft)
• over 3,300 combat aircraft
• around 2,300 light aircraft (training, reconnaissance, utility)
• around 4,500 helicopters
• some 400 paramilitary aircraft

2.2 ICAO

2.2.1 The Convention on International Civil Aviation was signed in Chicago in 1944 to ensure the safe and orderly growth of international civil aviation throughout the world. The Convention excluded state aircraft operating as OAT, used in military, customs and police services from the above mentioned ICAO Convention of Chicago.

2.2.1.1  According to Article 3 (d) of the convention:

“The ICAO contracting States undertake, when issuing regulations for their state aircraft, that they will have due regard for the safety of navigation of civil aircraft”.

This implies that States should arrange ATM (airspace design, procedures, communication, etc.) in such a way (possibly via Civil Military Cooperation) that civil traffic can safely be accommodated.

2.2.1.2  Due to the nature of their operations civil and state aircraft, transiting and en-route traffic excluded, usually cannot operate simultaneously within the same airspace.

2.2.1.3 ICAO provisions are applicable to civil aviation (Art. 3 and 28 of the Chicago Convention). These provisions are not applicable to military operations, facilities, aircraft, personnel and procedures. However, they would be subject to regulations of the State Authorities.

These publications, can be downloaded from the Eurocontrol website, and can be used by MAs in order to obtain better input on the importance and the necessity of CMC.

2.5.7  Eurocontrol provides a Civil-Military ATM coordination-training course (GENCIVMIL) twice a year at Brussels. This course provides an overview of the European ATM institutional framework and highlights the benefits of civil-military ATM cooperation at national and international levels. In practice, it aims to:

• Provide knowledge and understanding of civil-military issues,
• Demonstrate opportunities and benefits of CMC within the European ATM environment,
• Explain how EUROCONTROL supports Member States to achieve and improve efficient co-ordination between military and civil partners in ATM,
• Enhance civil military coordination.

2.5.8  In Germany, civil and military ATC is integrated into one system. Since 1994, DFS has been responsible for the handling of both civil and military air traffic in peacetime. Only military aerodromes are exempted from this integration.

2.5.9  Since 2001, at Eurocontrol the Military Harmonisation Group (MiHaG) initiated work as the harmonisation of military air traffic, the future military airspace requirements in Europe. In 2007, the Military ATM Board (MAB) was created to adapt and improve governance arrangements for civil/military coordination and cooperation in ATM. It coordinates the involvement of military State authorities in ATM planning and decision- making processes in the best sense of civil-military ATM Performance Partnership.

2.5.10  In the Netherlands, Civil/Military co-location is to be established at Schiphol. The Royal Netherlands Air Force is going to re-locate parts of its Military ACC at Schiphol. Also CMC in the AFMU Project is a good example of successful CMC.

2.6 Establishing a dialogue

2.6.1  To achieve a successful cooperation between civil and military ATM, it is essential to establish a basis of communication, mutual understanding and trust between the two parties. One way to achieve this is to start a dialogue. A dialogue can be started in many ways and at different levels. It can be initiated by higher authorities, but also on a lower level, and even via conferences, meetings and social events.

2.6.2  Former military pilots and controllers, afterwards occupied in civil aviation, could also contribute in establishing and initiating a social dialogue. Former military pilots and controllers are often still in contact with their former colleagues. Due to their previous occupation in the air force, these aviation professionals are in an ideal position to start a dialogue between the two parties.

2.6.3  Dialogues between civil and military ATM could be initiated by unofficial social events, i.e. football, volleyball or golf tournaments.

2.7 Operational differences in civil and military aviation

2.7.1 It is very important for civil and military ATM to achieve mutual understanding in the different objectives of the two parties. The nature of military mission-oriented flight operations often requires different demands for flight services and airspace. The objective of military flights also demands different requirements in the equipment and configuration of the aircraft.

2.9 Requirements for Flexible Use of Airspace (FUA)

2.9.1  ICAO prescribes FUA as an airspace management concept based on the principle that airspace should not be designated purely as civil or military, but rather as a continuum in which all user requirements are accommodated to the greatest possible extent.

2.9.2  General consensus should be established to develop Flexible Use of Airspace. To achieve successful CMC, globally harmonized documentation on airspace design, FUA principles, interoperability and 4D management is required.

2.9.3  To achieve FUA, the requirements of military and civil ATC capacity need to be evaluated first. When the individual needs are established, the civil ATC sector configuration and the requirement for military training areas can be determined.

2.9.4  When the configuration of FUA is established, it is fundamental that the airspace is assigned to civil ATC well in advance, in order to deliver the required sector capacity improvements. Furthermore, the airspace should not be revoked without proper coordination with civil ATC sufficiently in advance.

2.9.5  ATFM is essential to achieve a successful outcome with FUA. Aircraft Operators (AO) should be informed well in time about the availability of FUA, so that they can consider this in their flight- and fuel upload planning. However this should not exclude the ad hoc use of FUA, which should also be available to accommodate aircraft in flight.

2.9.5.1 Aircraft in flight reducing their flight-time due to ad hoc available FUA could be hindering previous ATFM planning, and therefore causing a capacity overload in ACC sectors or at airports. Although environmental benefits of ad hoc available FUA should have priority, the risk for capacity overload should be considered at all time.

2.9.6 Airways and route structures should be published for FUA to enable Aircraft Operators to conduct efficient flight planning. To increase efficiency for both military- and civilian operators, availability of FUA should be planned well in advance. Although ad-hoc availability is good, it complicates the planning of fuel upload.

2.10 Interoperability of civil and military ATM and aircraft systems

2.10.1 With FUA there are in general two options. Civil and military ANSPs delegate the designated airspace to each other, or one ANSP is responsible for the service provided inside FUA, irrelevant if the airspace user is civil or military.

2.10.1.1 When an ANSP is responsible for designated FUA, interoperability and system coordination in ATM systems must be available with adjacent civil and military ANSPs. Nevertheless, when ANSPs delegate designated FUA, it still remains highly recommendable to obtain interoperability and system coordination. Inside FUA navigation aids should be available for both civil and military aircraft.

2.10.2 Normally military flights will file a flight plan at the place of departure. However, in some cases military flights will not file a flight plan or acknowledge their destination due to the nature of their mission. For example; quick response interception flights.

3.1  CMC is required to meet future civil and military air traffic requirements for increased safety, security, capacity, efficiency, and environmental sustainability.

3.2  Key to successful CMC is the establishment of trust and transparency on all sides, and as a start; a dialogue is essential to achieve successful and effective cooperation. The needs and requirements of both civil and military airspace users must be fully understood and recognized. Only through mutual cooperation mission-oriented military air traffic and capacity-oriented civil air traffic can be handled smoothly and according to requirements.

3.3  The growth of Civil aviation and the changed use by Military airspace users, requires enhanced airspace planning processes, e.g. through the FUA Concept. CMC enables the provision of FUA, and thereby increases the airspace capacity considerably. Furthermore, CMC can enable direct routing and therefore increase fuel-efficiency and the reduction of aircraft emissions.

3.4  There are benefits when airspace is no longer designated as military or civil, and it is considered as one continuum and used flexibly on a day-to-day basis. Consequently, any necessary segregation of airspace and air traffic should only be of a temporary nature. In this way two different kinds of improvements will be achieved:

It is recommended that;

4.1. This paper is accepted as information material.

ICAO Convention on International Civil Aviation.

ICAO Circular 330/AN189 Civil/Military Cooperation in Air Traffic Management.

ICAO Doc 9426 The Air Traffic Services Planning Manual.

ICAO Doc 9750 Global Air Navigation Plan.

ICAO Doc 9854 Global Air Traffic Management Operational Concept.

CANSO – Civil Military Cooperation – The CANSO prospective (ed. 2009).

ROMANIAN MILITARY THINKING – Projects and initiatives in the field of civil-military cooperation for the use of airspaces, Col. Relu PANAIT (ed. 2012).

ICAO ANC 12 WP 52 – Airspace management and Civil/Military Coordination.