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ASSEMBLY - 22ND SESSION
EXECUTIVE COMMITTEE
Agenda Item No. 16: Civil aviation and the human environment
SUMMARY
This paper contains a report on the progress of
ICAO environmental activity relating to international
civil aviation. It also proposes the consolidation of
Resolution A16-3 with A18-12 and Resolution A18-11 with
A21-19.
The action proposed appears at paragraph 4.
Reference: Doc 9124 (Assembly Resolutions in Force)
1.	The ICAO position relating to the quality of the human environment
1.1	For many years ICAO has been acutely aware of both the positive and
negative effects which can be exerted upon the human environment by aviation. Much
effort has already been spent on minimizing adverse effects of civil aviation on the,
environment. The Assembly, at its 18th Session, established in Resolution A18-11 the
ICAO position vis-a-vis the human environment by defining ICAO’s responsibility in endeav-
ours to achieve maximum compatibility between the safe and orderly development of civil
aviation and the quality of the human environment. In the revised Resolution A16-3 and
a further Resolution, A18-12, the Assembly requested the Council to continue with vigour
the development of Standards and Recommended Practices (SARPS) and/or guidance material
on the subject. At its 21st Session, the Assembly reviewed action undertaken by ICAO on
the subject since the 18th Session. In Resolution A21-19, it requested Council to main-
tain its vigilance in the pursuit of aviation interests related to the human environment,
invited States to continue their support for the ICAO Action Programme Regarding the
Environment developed by the Air Navigation Commission, and authorized the Council to
enter into co-operative arrangements with the United Nations Environment Programme.
This programme has been pursued actively in the intervening period.
(10 pages)
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2.	Progress during the triennium
2.1	Aircraft noise
2.1.1	ICAO’s efforts towards controlling aircraft noise, which started in
the 1960s, have continued in pursuance of the relevant Assembly resolutions. The
Committee on Aircraft Noise (CAN), established in 1970, refined and expanded the
coverage of Annex 16 by the development of noise certification Standards applicable
to new subsonic jet aeroplanes and propeller-driven aeroplanes submitted for type
certification on or after 6 October 1977- Guidelines were also developed for the
noise certification of future supersonic aircraft, propeller-driven short take-off
and landing aeroplanes, and installed auxiliary power units and associated aircraft
systems during ground operations. These noise certification schemes, when implemented,
will result in considerable reduction of effective noisiness of future aircraft
designs. In the meantime, they provide valuable advance information for designers
and minimize the need for retroactive action.
2.1.2	Studies were made to determine the feasibility of further reducing
the maximum noise levels of subsonic jet aeroplane designs that may be developed
and introduced in service in the 1980s below the levels presently specified in
the Annex. Proposals to this effect developed by the Committee on Aircraft Noise
at its meeting held in November 1976 are presently under review by the Organization.
2.1.3	The subject of retrofit (i.e., requiring existing non noise-certificated
subsonic jet aeroplanes to meet the Standards of Annex 16) also received consider-
able attention during the period. Besides determining the technical feasibility
of the retrofit schemes developed for different types of aeroplanes to meet the
Annex 16 noise certification requirements, the Committee on Aircraft Noise made
an assessment of the cost of these schemes. On the basis of these studies, States
have been requested by Council to assess whether noise modifications developed for
certain aeroplane types on their registers are likely to be sufficiently effective
and economically reasonable to justify mandatory incorporation of such modifications
in the light of the circumstances prevailing in their States. Further ICAO action
will be discussed and determined when intentions of States with respect to the
affected aeroplane types are known. Pending determination of such possible action,
ICAO has urged States not to take unilateral action that would affect international
civil aviation.
2.1.4	Different noise certification concepts are now under study for a
noise certification scheme which would be applicable to all classes of subsonic
aeroplanes while minimizing incompatibilities or discontinuities in applicability
to different types of aeroplanes. Refinement and strengthening of the existing
noise certification requirements for new aircraft types are likely to be necessary
in view of continued public concern about present noise levels.
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2.1.5	Information is being obtained from States on the measures taken to
deal with noise problems at their airports or to prevent such problems from
arising, pursuant to a recommendation of the 1973 Conference on En Route Facility
and Airport Economics (ERFA). Close contact is also being maintained with the
Organization for Economic Cooperation and Development (OECD) which has established
an ad hoc Group on Noise Abatement Policies to assess noise abatement strategies,
including noise charges. It is important that ICAO maintain the initiative in develop-
ing policy guidance on these aviation matters and not leave it to other international
organizations. Moreover, States are urged not to take unco-ordinated action in combatting
noise so as to avoid the adverse economic effects that would result for air transport
in general. The matter is under examination and any guidance that may be helpful
to States in developing their national policies relating to noise charges will be
developed within the context of general ICAO policies for facility charges.
2.2	Sonic boom
2.2.1	Recommended ICAO action with respect to sonic boom has been developed
by the Sonic Boom Committee. However action on recommendations relating to avoid-
ance of the adverse effects of sonic boom have been deferred in order that full
benefit may be drawn from the valuable experience being gained with international
scheduled operations of supersonic aircraft.
2.2.2	Guidance material relating to supersonic aircraft operations was
developed by the Technical Panel on Supersonic Transport Operations at its 5th
Meeting in 197^+ and published as the Circular "Guidance Material on SST Aircraft
Operations" to assist national administrations in planning of aeronautical services
for commercial supersonic aircraft operations. The Circular includes information
on the phenomenon of sonic boom and describes how its adverse effects may be avoided.
2.3	Aircraft engine emissions
2.3.1	Although studies have revealed that atmospheric pollution near ground
level by aircraft engines currently presents a problem at only a few particular
aerodromes, it has nevertheless been recognized that aircraft engine emissions
will ultimately have to be controlled. Measures are being taken already in some
States to control other sources of pollution at aerodromes, notably ground vehicles,
and as these measures begin to show results attention will focus upon the increasing
proportion of the pollutants being contributed by aircraft. Work has therefore
been initiated by ICAO towards the eventual control of aircraft engine emissions
in the vicinity of airports and it is hoped that early action by ICAO in this field
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will encourage designers to use the best available emission-reducing technology
in the next generation of aircraft engines, thereby avoiding the possibility of
expensive retrofitting in the future . Considerable progress has been made and
with the assistance of a study group, ICAO has produced a certification scheme for
aircraft engine emissions control of future engines which will be available for use by
States in developing their own national regulations as required.
2.3.2	ICAO also continues to monitor the progress of attempts to control
engine emissions at aerodromes by operational practices. These have generally
taken the form of schemes to reduce the time spent with engines idling on the
ground. Renewed impetus has been given to these schemes recently by the need to
conserve fuel as well as reduce emissions.
2.3.3	As mentioned in paragraph 3o2, active liaison has been maintained
with the World Health Organization (WHO) and the World Meteorological Organiza-
tion (WMO). ICAO has also monitored work by States on the question of possible
bngh altitude pollution which has received attention in the last few years. Earlier
this year, ICAO participated in a United Nations Environment Programme (UNEP) meeting
to consider specifically the possible effects of pollutants on the earth’s ozone layer.
Such a problem, by its very nature, would be global in character, and would
manifest itself in changes in the amount of ultraviolet radiation reaching the surface
of the earth. Should it be determined by competent agencies that a serious problem
exists and that aviation is a significant contributor, ICAO intends to be in position to
take commensurate measures.
2.4	Aerodrome planning
2.4.1	During the 8th Air Navigation Conference in 197^, an exchange of
views was scheduled on environmental conditions in aerodrome planning, design
and operation. This exchange served to identify various problem areas that might
need to be considered during the aerodrome planning stage, such as aircraft noise,
air pollution, contamination from drainage systems, bird strike hazards, and land
use. As aircraft noise was a primary constraint in the development of existing
aerodromes and the creation of new ones, the meeting explored how this could be
mitigated by proper planning of aerodromes and the judicious location of runways,
taxiways, aprons, and engine testing areas.
2.4.2	During the triennium, considerable effort has been expended on
improving the existing ICAO guidance material related to aerodrome planning,
design and operation. The Manual on Airport Master Planning was completely
reviewed and a revised text submitted for production. One of the objectives of
this review was to add appropriate text on environmental issues throughout the
Manual as required. A number of changes related to environmental issues were also
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made in the Aerodrome Manual and other publications. Action was also taken to obtain
views and information from States on revising Part 8 of the Aerodrome Manual devoted to
land use in the vicinity of aerodromes. This Manual is being revised in the light of
comments received.
2.5	Public relations
2.5.1	The 8th Air Navigation Conference recognized that the siting of aerodromes
in locations which might be considered by some undesirable, from the standpoint of the
general public, could be justified to a large extent on the basis of the advantages of
aviation to the community. To assist States in this work, it was agreed that ICAO should
develop a document dealing with all aspects of aerodrome site selection, both positive
and negative, and the reasons why aerodromes should be located within reasonable distance
of the population areas to be served. Other factors being taken into account include the
adverse effects of excessive urban development in the vicinity of aerodromes. Work on
the development of this document has begun and should be completed during the forthcoming
triennium.
2.5.2	An updated version of the pamphlet entitled
ment" has been issued by the Public Information Office.
"ICAO and the Human Environ-
3.	International co-operation on environmental matters
3.1	The UNEP has been functioning since 1973 as a focal point for environ-
mental action and co-ordination within the United Nations system. The co-ordinating
role of UNEP has been effected primarily through biannual meetings of the inter-
agency Environment Co-ordination Board (on which ICAO is represented by the Secretary
General), and by direct exchange of correspondence and reports between the UNEP and
ICAO Secretariats as well as working level contacts between the two Secretariats. Thus
ICAO is kept informed of the broad spectrum of environmental activities within the UN
family of agencies and in turn has a channel for disseminating information on its own
activities in this field. UNEP appears to have been fulfilling effectively its role
of inhibiting duplication of effort and of promoting activity in areas where it is
required and might otherwise be overlooked. UNEP looks to existing UN agencies for
the identification of specific problem areas and to those agencies having jurisdiction
over pollution causes for appropriate remedial action.
3.2	Liaison has also been maintained by ICAO with the WHO and the WMO on
matters of common interest affecting the environment, notably on aircraft engine
emissions in the upper atmosphere and in the vicinity of aerodromes. Close contact
has also been established with the OECD and with the International Organization for
Standardization (ISO).
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4.	Consolidation of existing resolutions dealing with environmental matters
4.1	Four resolutions are presently in existence dealing with various
aspects of the human environment: A18-11, A21-19, A16-3 and A18-12. The first
two of these are broad in nature covering the overall policy considerations of
ICAO’s responsibilities relative to aviation and the human environment; the other
two are much more specific and provide directives to Council on the development of
SARPS to counteract explicit aspects of the problem.
4.2	Resolution A18-11 was adopted as the basis for the ICAO position at
the International Conference on the Problems of the Human Environment wfiich was
held in Stockholm in June 1972. Although the fundamental contents of A18-11 are
still valid, those parts which refer specifically to the Stockholm Conference have
been overtaken by events. Consequently it is proposed that A18-11 be combined
with A21-19 to provide a consolidated resolution dealing with ICAO’s responsibilities
in the field of civil aviation and the human environment. A draft resolution to
this effect is submitted at Appendix A.
4.3	Resolutions A16-3 and A18-12 on the other hand both contain more specific
directives to Council concerning the development of SARPS and guidance material, but
inevitably a certain amount of overlap has developed over the years in the scope
embraced by these two resolutions. It is therefore suggested that A16-3 should be
consolidated with A18-12 and a draft resolution to this effect is submitted at
Appendix B.
4.4	The Assembly is invited to consider the consolidation of these
resolutions as proposed in Appendices A and B.
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APPENDIX А
DRAFT RESOLUTION
А22-	International civil aviation and the human environment WHEREAS the preamble to the Convention on International Civil Aviation states that "the future development of international civil aviation can greatly help to create and preserve friendship and
(18-11)	understanding among the nations and peoples of the world..." and Article 44 of that Convention states that ICAO should "develop the principles and techniques of international air navigation and ... foster the planning and development of international air transport so as to ... meet the needs of the peoples of the world for safe, regular, efficient and economical air transport";
(18-11)	WHEREAS advancing technology has caused civil aviation to become a significant influence in the human environment;
(18-11)	WHEREAS many of the adverse environmental effects of civil aviation activity can be reduced by the application of technology and the appropriate use of airport planning and land use control mechanisms;
(18-11)	WHEREAS in fulfilling its role, ICAO strives to achieve a balance between the benefit accruing to the world community through civil aviation and the harm caused to the human environment in certain areas through the progressive advancement of civil aviation;
(21-19)	WHEREAS in Resolution A18-12 the Assembly requested the Council to continue with vigour the work related to the development of Standards, Recommended Practices and Procedures and/or guidance material dealing with the quality of the human environment;
(21-19)	WHEREAS in pursuit of that Resolution the Air Navigation Commission, on instructions from the Council, has established a comprehensive Action Programme Regarding the Environment which integrates the technical work related to the development of Standards, Recommended Practices, Procedures and guidance on all aviation environmental questions on which international agreement or guidance is required;
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(21-19) WHEREAS this ICAO Action Programme envisages co-operation with other
international organizations, as necessary, including possible
participation in projects financed by the United Nations Environment
Fund;
THE ASSEMBLY:
(18-11)	1. DECLARES that ICAO is conscious of the adverse environmental
impacts that may be related to aircraft activity and of its
responsibility and that of its Member States to achieve maximum
compatibility between the safe and orderly development of civil
aviation and the quality of the human environment;
(21-19)	2. REQUESTS the Council to maintain its vigilance in the pursuit
of aviation interests related to the human environment;
(21-19)	3. INVITES States to continue their active support for ICAO’s Action
Programme Regarding the Environment on all appropriate occasions
as their participation in civil aviation’s contribution to the
United Nations Environment Programme;
(21-19) If.. AUTHORIZES the Council, if and when it deems this desirable, to
enter into co-operative arrangements with the United Nations
Environment Programme for the execution of environmental projects
financed by the United Nations Environment Fund;
5.	DECLARES that this Resolution supersedes Resolutions A18-11 and
A21-19.
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APPENDIX В
DRAFT RESOLUTION
А22- : Development of Standards, Recommended Practices and Procedures and/or
guidance material relating to the quality of the human environment.
(18-12) WHEREAS the Airport Master Planning Manual published by ICAO in 1969
states that in long-range planning for airports, including the
expansion of existing airports, planners should assess their proposed
plants potential impact on the airport's environment;
(18-12) WHEREAS the compatibility between the airport and its environment is one
of the elements to be taken into account in long-term systems planning;
(18-12) WHEREAS the Report of the Second Meeting of the Sonic Boom Panel recognized
that consideration will need to be given to pertinent economic, social
and legal factors as well as to technical and operational aspects of
the sonic boom problem;
(18-12) WHEREAS the SST Panel was established in 1967 for the purpose of facilitat-
ing compliance with the technical and operational elements of Assembly
Resolution A14-7, with particular emphasis on Clause 3 thereof, by
ascertaining and studying the environments of supersonic aircraft as
well as the operational requirements, with a view to developing, where
appropriate, proposals in the form of amendments to the ICAO technical
annexes and associated documents for those elements of the subject on
which international agreement is necessary;
(16-3) WHEREAS the problem of aircraft noise is so serious in the vicinity of
many of the world’s airports that public reaction is mounting to a
degree that gives cause for great concern and requires urgent solution;
(16-3) WHEREAS the introduction of future aircraft types could increase and
aggravate this noise unless action is taken to alleviate the situation;
(18-12) WHEREAS the Council has adopted Annex 16 - Aircraft Noise, which comprises
noise certification standards for future subsonic aircraft (except
STOL) and has notified Contracting States of this action;
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(18-12) WHEREAS the Council has established a Committee on Aircraft Noise for
the purpose of assisting in the development of further Standards on
aircraft noise, including those for aircraft not at present covered
by Annex 16 - Aircraft Noise; and
(18-12) WHEREAS on all these matters detailed criteria on which States can
base their own regulations have not yet been forthcoming from ICAO;
THE ASSEMBLY:
(18-12)	1. REQUESTS the Council, with the assistance and co-operation of
other bodies of the Organization and of other international
organizations, to continue with vigour the work related to the
development of Standards, Recommended Practices and Procedures
and/or guidance material dealing with the quality of the human
environment;
(18-12)	2. USGES Contracting States to adopt, where appropriate, the ICAO
measures and procedures developed pursuant to Clause 1 of this
resolution;
3. DECLARES that this Resolution supersedes Resolutions A16-3 and
A18-12.
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