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ASSEMBLY - 21ST SESSION
EXECUTIVE COMMITTEE
Agenda Item No. 16; Civil aviation and the human environment
SUMMARY
This paper contains an indication of
the action taken by the Council pursuant
to Resolutions A18-11 and A18-12. It
reports on the progress of arrangements
for international environmental co-operation
of interest to' ICAO and proposes a draft
Resolution to further such co-operation.
The action proposed appears at
paras. 2. 5, 3. 5 and 4. 3. ,
1.	The ICAO position relating to the quality of the human environment
1, 1 The Assembly, at its 18th. Session, established in Resolution A18-11 the ICAO
position vis-cl-vis the human environment by defining ICAO's responsibility in endea-
vours to achieve maximum compatibility between the safe and orderly development of
civil aviation and the quality of the human environment. In 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.
2.	International Conference on the Problems of the Human Environment (Resolution A18-11)
2.	1 Pursuant to Resolution A18-11, the International Conference on the Problems
of the Human Environment, Stockholm, June 1972, was informed of ICAO's position,
and a detailed paper elaborating the basis for Resolution A18-11, as finalized by the
(14 pages)
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Council following its review by the 18th Assembly, was incorporated in the Conference
documentation.
2.	2	The Conference recognized the various major factors contributing to the
impairment of the quality of the human environment. Its recommendations for action
address themselves, to many, primarily industrial, human activities, but not to aviation,
essentially for two reasons. The first is the tacit agreement of the Conference
that civil aviation is not a significant contributor to the pollution of air, water or land
except, on occasion, in a few isolated cases in the proximity of large airports. The
second is the recognition by the Conference that the civil aviation community, and
notably ICAO, is fully alert--and has been for several years--to the effect of its
activities on the quality of life in the proximity of busy airports. The timely action by
ICAO which resulted in international Standards and Recommended Practices controlling
the nuisance of aircraft noise has been seen as one of the earliest internationally agreed
effective measures to protect the environment. This recognition was undoubtedly aided
by the appeal to States in Resolution A18- 11 to support at the Conference the position
established by the Resolution. Thus, the Conference accepted ICAO's authority over
environmental matters in its field.
2.	3	In announcing that it had assumed full responsibility in matters of civil
aviation's effect on the environment, ICAO had however in Resolution A18-11 clearly
stated that benefit^, accrue to. the whole community through progressive advancement
of civil aviation and that, while ICAO's primary concern was the safe, regular, efficient
and economical development of air transport, it is striving to achieve a balance between
the advantages for the community of civil aviation development and the protection of the
human environment.
2.	4	While thus the Conference recognized ICAO's programme, it adopted
several recommendations calling for international action which require continued
attention, and perhaps participation, by ICAO. These recommendations relate
primarily to pollution in both urban areas and the upper atmosphere, noise and
industrial waste and attendant land use questions.
2.	5	The Assembly may wish to conclude that direct action on Resolution A18-11
has been satisfactorily completed and to confirm the continued validity of the ICAO position
established in the Resolution (see draft Resolution, clauses (1) and (2) at Appendix C).
3.	Environment SARPS and guidance and co-operation with States (Resolution A18- 12)
3.	1	Pursuant to Resolution A18-12, the Council, after consulting ICAO States
and certain International Organizations, approved an ICAO Action Programme Regarding
the Environment as the basis for the development of detailed proposals for SARPS and/or
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guidance material and for other relevant action, including initiation of co-operation with
other International Organizations concerned. The consultation with States showed their
considerable interest in the matter and yielded many important contributions for the
establishment of the programme. The Air Navigation Commission was charged with the
technical part of the programme and the Secretary General with the legal and economic
parts, it being understood that proposals for action in these latter two areas are to be
submitted to the Council as the environmental effects become better identified. Subjects
may include legal rules and economic questions connected with aircraft noise, engine
emissions, aerodrome planning and sonic boom. Work on some of the latter is already
in hand, e. g. , in connexion with sonic boom.
3.	2	The Air Navigation Commission has agreed on the action necessary and
possible in respect of the development of SARPS and/or guidance, of consultation with
States and of co-operation with other International Organizations in response to clause (1)
of Resolution A18-12. The programme now being pursued is summarized in Appendix A,
it being recognized that this mainly technical programme includes matters which have
economic and legal implications.
3.	3	As will be seen from Appendix A, the pursuit of ICAO's "Action Programme"
is the subject of intensive co-operation with States. Two Council Committees and one
Secretariat Study Group are composed of experts made available by States and are engaged
in the study of major elements in the ICAO Action Programme. The recommendations
of these groups, to the extent they require such action, are reviewed and commented
upon by States before they are incorporated in SARPS or guidance, or - otherwise
referred to States for action in accordance with clause (2) of Resolution Al8- 12.
3.	4	The Council also directed the Air Navigation Commission, when preparing the
agenda for any technical meeting, to consider the need to include an item on environmental
issues. Accordingly, the Air Navigation Commission included an item on aerodrome
environmental planning in the Agenda for the Eighth Air Navigation Conference (April -
May 1974). Environmental questions have also been discussed by and are on the pro-
gramme of the Committee on Aircraft Noise, the Sonic Boom Committee and the
Technical Panel on Supersonic Transport Operations.
3.	5	The Assembly may wish to declare that progress on Resolution A18- 12 is
satisfactory and request its further active pursuit by the Council and States (see draft
Resolution, clauses (1), (2) and (3) at Appendix C).
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4.	Со-operation with other International Agencies
4. 1 The Stockholm Conference recommended and subsequently the United Nations
General Assembly by Resolution 2997 (XXVII) decided upon certain institutional and
financial arrangements for international environmental co-operation. A summary of
the provisions and of subsequent decisions of particular significance for the Agencies
of the United Nations system is provided in Appendix B.
4. 2 With reference to the invitation of the General Assembly, when establishing the
Environment Co-ordination Board, to ensure that the organizations in the United Nations
systems co-ordinate their environment programmes, ICAO has taken steps to offer co-
operation in the activities of several international organizations, in particular with the
World Health Organization concerning any urban environment programmes which might
include the monitoring of pollutants produced by aircraft engine emissions near aero-
dromes and with the World Meteorological Organization concerning such programmes
relating to the free atmosphere in connection with aircraft operating conditions and
possible effects on climate. On questions pertaining to units and methods of measure-
ment of aircraft noise and sonic boom, ICAO has already been collaborating for some
time with the International Organization for Standardization.
4. 3 The Assembly may wish to satisfy itself that ICAO's co-operation with other
international agencies, continued or recently initiated, is appropriate and authorize the
Council to seek participation, as it deems necessary, in projects financed by the United
Nations Environment Fund (see draft Resolution, clause (4) at Appendix C).
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APPENDIX А
ICAO Action Programme Regarding the Environment
SUMMARY
1. Aircraft Noise
1. 1	Substantial work has been done by ICAO during the past five years towards
reducing the impact of aircraft noise on the human environment. Already the inter-
national Standards on the subject contained in Annex 16 to the Chicago Convention are
resulting in a quieter generation of new aircraft and further work is being pursued in a
number of related areas.
1.	2	The Committee on Aircraft Noise (CAN) is continuing its work on the
development of proposed noise certification Standards for aircraft not yet covered in
Annex 16, e. g. , supersonic transport, vertical/short take-off and landing and propeller-
driven aircraft. It is also reviewing Annex 16 Standards in the light of developments in
noise technology, with a view to determining the feasibility of making these Standards
more stringent for future aircraft designs. Liaison has been established with the
International Organization for Standardization (ISO) in order to co-ordinate efforts
between the two Organizations on work related to the standardization of units and
methods of measurement of aircraft noise. Liaison has also been established with the
World Health Organization (WHO) with respect to that Organization's efforts to develop
an acceptable noise criterion from the standpoint of public health and socio-economic
considerations. It is expected that this criterion, when developed, will provide guidance
on the acceptable noise exposure limits for aircraft operations.
1.3	In hand with the foregoing, a careful watch is being maintained on the extent
of the benefits being gained from noise abatement operating practices and procedures.
A balance must be struck between the safety precautions to be observed and the special
operating techniques which may be used to reduce noise. Information on the current
noise abatement operational practices and procedures has been collected from certain
States and International Organizations. However, from a review of this information, it
was concluded that it would be premature at the present time to develop ICAO specifica-
tions to replace or supplement the guidance material on the subject already included in
Attachment C of Annex 16. The subject is being kept under review and it is intended to
produce ICAO material on this subject as more experience is gained.
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1,	4	Information on units and methods of measurement of aircraft noise
monitoring obtained from States and interested International Organizations showed that
existing Recommended Practices in Annex 16 adequately cover the subject for the time
being and that there is no current interest in further research work. In the light of this,
it has been concluded that there is no need for ICAO to attempt to develop, at present,
international specifications covering limits associated with aircraft noise monitoring.
1.	5	Technical data relating to noise exposure indices were collected from States
in response to recommendations of the Special Meeting on Aircraft Noise in the Vicinity
of Aerodromes. These data have been published in Part 8 of the Aerodrome Manual.
Also, detailed information on the various noise exposure evaluation methods used by
States has been published in ICAO Circular 116-AN/86. Further work on the develop-
ment of noise exposure indices is being carried out in collaboration with the International
Organization for Standardization (ISO).
2» Sonic Boom
2.	1	ICAO action with respect to sonic boom is being progressed through the
Sonic Boom Committee (SBC); in addition, the Technical Panel on Supersonic Transport
Operations (SST Panel) has been given the task of developing guidance material relating
to sonic boom for the operation of supersonic aircraft. This activity has, for the most
part, involved the collection and presentation of technical data ". . . . to assist States in
deciding whether, and if so, when, where and in what circumstances, they may wish to
regulate supersonic flight over their territory by civil aircraft. "
2.	2	The ISO Standard 2249, "Acoustics-De scription and Measurement of
Physical Properties of Sonic Boom, " has been reviewed by the SBC and found to provide
acceptable definitions and the framework for measurement specifications for accurate
work. However since useful functions in the field could be performed satisfactorily by
simpler and less accurate methods, it has been agreed not to recommend or encourage
States to adopt ISO 2249 as the sole method of measurement of noise. Work on the
development of simple methods of measurement is continuing. The definition of "sonic
boom" recommended by ISO appears to be suitable for inclusion in ICAO documents and
is now under review by States and International Organizations.
2.	3	The SBC has developed recommendations for amendment of ICAO Annex
material to include suitable Standards to ensure that supersonic flights over high seas
are conducted in such a way that the adverse effects of sonic boom do not "over-spill"
on to the territories of those States which prohibit supersonic flight over such territories.
It is envisaged that these recommendations will need to be supplemented by guidance
material, and such material is therefore being prepared by the SST Panel.
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2.4	While the question of prohibiting supersonic flight over its territory is a
matter for each State to determine, it is intended to provide States with technical and
sociological information in the form of guidance material, to enable them to develop
national regulations. This information will, however, not include reference to
permissible limits.
3.	Aircraft Engine Emissions
3.	1	The considerable interest in environment matters has directed attention to
other areas of aviation in addition to aircraft noise. Engine exhaust emissions is one
such area.
3.	2	Although it is accepted that aircraft do not contribute significantly to the
overall atmospheric pollution problem of today, it is essential that the facts should be
established for subject areas where the magnitude of such effects needs further
investigation. To do so, recognized international Standards must be developed for
measuring air pollutants from all sources--including aviation. Consequently, ICAO is
co-operating actively with other international agencies such as WHO and WMO in
relevant programmes. In addition, ICAO has embarked upon studies of the need to
produce specifications for control of aircraft exhaust emissions through engine
certification, as well as developing material concerning associated international
practices to reduce such emissions. This work is being processed through a Study Group.
4.	Aerodrome Planning
4. 1	To date, work in this field has been limited to development of guidance
material on the impact of noise and on land use planning. A more general approach to
the problem is required. At the Eighth Air Navigation Conference (1974), an exchange
of views will have been held on the impact of environmental issues on the site selection,
planning, design and operation of aerodromes, and means whereby acceptable relation-
ship can be established between aerodromes and their surroundings. Further studies are
necessary to determine the practicability of developing suitable Standards and Recom-
mended Practices.
5. Public Relations
5,	1	ICAO should, within the framework of the Action Programme, ensure that
the public is aware of the steps being taken by aviation authorities, airlines and others
concerned. For this purpose, the Action Programme foresees the possible development
by ICAO of guidance material for States on:
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a)	the monitoring of public reaction to environmental effects of civil aviation;
b)	taking into account the results of a) above, the dissemination of information
by States about the nature, extent and impact of these environmental effects
in relation to overall environmental questions.
The guidance material is being developed on the basis of experience by, and contributions
from States, International Organizations (including the International Air Transport
Association (IATA) and the International Federation of Airline Pilots' Associations
(IFALPA)), airlines, aircraft and aircraft engine manufacturers.
5. 2	In addition, the ICAO Bulletin periodically reviews ICAO's environmental
actions and plans. The first such review appeared in the issue of April 1972. A second
comprehensive article is planned for July 1974. ICAO also publishes special booklets on
the subject, as for example on the occasion of the Stockholm Conference.
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APPEND TV R
Arrangements fojr international environmental co-operation
1. The present Appendix summarizes those institutional and financial arrangements
established by United Nations General Assembly Resolution 2997 (XXVII) or subsequent-
ly made pursuant to it, which appear to have particular significance for the agencies of
the United Nations system including ICAO.
2. Governing Council for Environmental Programmes
2.	1 A Governing Council for Environmental Programmes* with 58 members,
elected by the General Assembly, was created to, inter alia:
(a)	promote international co-operation in the field of the environment and to
recomtnend, as appropriate, policies to this end;
(b)	provide general policy guidance for the direction and co-ordination of
environmental programmes within the United Nations system.
2,	2 The General Assembly decided that the Governing Council shall report annual-
ly to the General Assembly through the Economic and Social Council, which will trans-
mit to the Assembly such comments on the report as it may deem necessary, parti-
cularly with regard to questions of co-ordination and to the relationship of environmen-
tal policies and programmes within the United Nations system to over-all economic and
social policies and priorities.
3.	Environment Secretariat
3,	1 It authorized the creation of a small Secretariat in the United Nations, with
Headquarters in Nairobi, to serve as a focal point for environmental action and co-
ordination within the United Nations system, headed by an Executive Director. The
Executive Director was entrusted, inter alia, with the responsibility to:
a)	co-ordinate, under the guidance of the Governing Council, environmental
programmes within the United Nations system, to keep their implementa-
tion under review and to assess their effectiveness;
* These programmes have become known as United Nations Environment Programme
(UNEP).
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b)	advise, as appropriate and under the guidance of the Governing Council,
intergovernmental bodies of the United Nations system on the formulation
and implementation of environmental programmes;
c)	submit to the Governing Council, on his own initiative or upon request,
proposals embodying medium-range and long-range planning for United
Nations programmes in the field of the environment;
d)	administer, under the authority and policy guidance of the Governing
Council, the Environment Fund.
4.	Environment Fund
4. 1 The Environment Fund was established for the purpose of financing, wholly or
partly, the costs of the new environmental initiatives undertaken within the United
Nations system, and the Governing Council was charged with the responsibility to re-
view these initiatives with a view to taking appropriate decisions as to their continued
financing. The Environment Fund is to be directed to the need for effective co-ordina-
tion in the implementation of international environmental programmes of the organiza-
tions in the United Nations system and other international organizations.
5. Environment Co-ordination Board
5. 1 An Environment Co-ordination Board, composed of representatives of the
organizations of the United Nations system, was established under the auspices and
within the framework of the Administrative Committee on Co-ordination, in order to
provide for the most efficient co-ordination of United Nations environment programmes.
The Environment Co-ordination Board was made responsible for ensuring co-operation
and co-ordination among all bodies concerned in the implementation of environmental
programmes and is to report annually to the Governing Council of the UNEP. The
Organizations of the United Nations system were invited to adopt the measures that may
be required to undertake concerted and co-ordinated programmes with regard to inter-
national environmental problems, taking into account existing procedures for prior
consultation, particularly on programme and budgetary matters. It may be noted that
all members of the Environment Co-ordination Board are also members of the Admini-
strative Committee on Co-ordination.
5O 2 The views and recommendations of the Governing Council should be conveyed
to the Environment Co-ordination Board, and vice-versa, through the Executive Direc-
tor.
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5. 3 In preparation for the first session of the Governing Council, the Environment
Co-ordination Board met in April 1973. The meeting concluded, inter alia, that the
Board's main role was to serve as a forum for interorganizational consultation and co-
ordination relating to the UNEP. Its broad functions would be to be consulted by and
advise the Executive Director of the UNEP on common guidelines and priorities for
action on major environment issues. Each member of the Board should bring to its
attention any proposed or actual major policy measure or question within his Organiza-
tion likely to be of significant concern to the UNEP. The Board would attempt to reach a
unified assessment of the implications for the UNEP of recommendations and decisions
by the governing bodies of the Organizations concerned. It is to consider the implica-
tions for the use of UNEP resources of major environment policy matters, and to ad-
vise the Executive Director of UNEP on specific proposals to be forwarded within the
Governing Council which would have major implications for interorganization relations.
5.4 The Governing Council of the UNEP held its first session in June 1973.
During its first session, it decided on the following matters of direct interest
to ICAO:
a)	a request to the Executive Director to anticipate and prevent threats to
human health and well-being posed by contamination of food, air and water;
and to co-operate with organizations concerned in establishing criteria for
the relevant pollutants;
b)	a decision that a monitoring system should be developed first for pollutants
liable to affect weather and climate, and persistent and widely distributed
substances particularly along pathways leading to man; and that inter-
nationally agreed upon "primary protection standards" should be developed
as a basis for assessing the significance of pollution levels for human
health; and
c)	an invitation to the Executive Director to take the necessary steps for the
convening of a technical intergovernmental meeting in 1974 to assist in the
identification of pollutants of international significance, and for defining
the aims, general principles and intercalibration requirements for moni-
toring these pollutants, and to develop monitoring programmes for sub-
mission to the Governing Council.
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5	.5	In connection with the Environment Fund, the Governing Council agreed that
the Executive Director shall designate the Co-operating Agencies and Supporting
Organizations that are necessary for the implementation of each project, giving particular
attention to the capacity available within the United Nations system.
5	, 6	The Governing Council held its Second Session in February 1974. At that
meeting it reached the following decisions of interest to ICAO.:
a)	requested the Executive Director of the UNEP to develop a full review of
at least one of the defined environmental priority areas for consideration by
the Governing Council at its Third Session;
b)	proposed, in connection with the Global Environmental Monitoring System
(GEMS), that implementation of the monitoring of pollutants be given priority;
c)	agreed, in principle, that a second United Nations Conference on the Human
Environment should be convened, but decided that the decision on its timing
should be deferred for at least two years.
5. 7	The next meeting of the Governing Council is expected to be held in Nairobi
in February 197 5.
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	APPENDIX C DRAFT RESOLUTION International civil aviation and the human environment
WHEREAS	ICAO's position related to the quality of the human environment was for- mulated by the Assembly at its 18th Session in Resolution A18- 11 for communication to the International Conference on the Problems of the Human Environment (Stockholm, June 19721);
WHEREAS	by this Resolution ICAO accepted full responsibility for pursuing a course aimed at achieving maximum compatibility between the safe and orderly development of civil aviation and the quality of the human environment;
WHEREAS	in a further 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;
WHEREAS	in pursuit of that Resolution the Air Navigation Commission, on instruc- tion 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;
WHEREAS	this ICAO action programme envisages co-operation with other Interna- tional Organizations, as necessary, including possible participation in projects financed by the United Nations Environment Fund;
THE ASSEMBLY:
(1)	DECLARES that the action on environmental matters thus far taken by Council is in accordance with the intent of Resolutions A18-11 and A18-12;
(2)	REQUESTS the Council to maintain its vigilance in the pursuit of aviation interests related to the human environment in accordance with the posi- tion stated in Resolution A18- 11 and with the provisions of Resolution A18- 12;
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(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;
(4) AUTHORIZES the Council, if and when it deems this desirable, to enter
into co-operative arrangements with the Governing Council of the United
Nations Environment Programme for the execution of environmental
projects financed by the United Nations Environment Fund.
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