SAA_Journal Aviation Security Challenges, Opportunities and the Way Forward

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Aviation Security Challenges, Opportunities

and the Way Forward

From 12 to 14 September 2012, the International Civil Aviation

Organization (ICAO) held a High Level Conference on Aviation

Security (HLCAS) in Montreal, Canada. The HLCAS was

a timely event that brought together top level aviation security

leaders who collectively gave their strong support to the

ICAO for its efforts in addressing the challenges faced on the

aviation security front.

The HLCAS witnessed the agreement by the delegates in various

critical areas. The ICAO also issued a Communique mappingout its commitment to further enhance the level of global

aviation security. A number of challenges and opportunities

including finding sustainable and practical approaches to deal

with aviation security challenges, enhancing international

co-operation, and searching for innovative solutions that

move towards an outcome-based approach to security were

identified. New opportunities in identifying new and emerging

aviation security threats, streamlining of security approaches

internationally, and opening up more avenues for capacity

building and assistance were also achieved. The ICAO, its

Member States, industry, and other stakeholders, would be

expected to collaborate closely to ride these challenges and

explore these opportunities to enhance the level of global civil

aviation security.

ABSTRACT

Aviation Security


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Mr Bernard Lim is Director (International

Relations and Security) with the Ministry of

Transport, Singapore. His key responsibilities

include formulating and managing policy

matters concerning international relations,

transport security and transport emergency

preparedness in Singapore. He is currently

Chairman of the ICAO Aviation Security

Panel and Vice-Chairman of the Asia-Pacific

Economic Co-operation Aviation Security Experts

Sub-Group. He had also led the ICAO Aviation

Security Panel Working Group that developed

the Comprehensive Aviation Security Strategy

(2011 - 2016).

Prior to this, Mr Lim had held various positionsin areas such as airport management and

ground operations, air transport and air services

negotiations, international relations as well as

aviation security and emergency preparedness at the

Civil Aviation Authority of Singapore.

Bernard holds a Masters Degree in Public Administration

from the University of Liverpool, UK. He was trained in

crisis management at the Emergency Planning College

in York, UK, and in Leadership at the John F Kennedy

School of Government, Harvard University, US.

Ms Patricia Reverdy is Deputy Executive Director

of the European Civil Aviation Conference(ECAC). Her responsibilities cover a wide ambit

on civil aviation policies and development,

including air transport, training and aviation

security matters.

She joined the ECAC in September 2001

as an Aviation Security Audit Officer and

was responsible for the development of

aviation security policies, management

and implementation of the ECAC Audit

and Capacity Building Programme, and

various efforts to provide technical

and operational expertise to ECACs

44 Member States, in order to attain

and maintain full compliance with

the European aviation security

standards. Prior to joining ECAC,

Ms Reverdy was security manager

with the Federal Office for Civil

Aviation in Berne, Switzerland,

from 1995.

THE AUTHORS

Aviation Security Challenges, Opportunities and the Way Forward Aviation Security


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Aviation Security Challenges, Opportunities and the Way Forward

Aviation Security

Bernard LimMinistry of Transport, Singapore

Ms Patricia ReverdyEuropean Civil Aviation Conference

INTRODUCTION

The ICAO convened a HLCAS from 12 to 14 September 2012, in Montreal, Canada. More

than 800 delegates from 132 Member States, 32 international organisations, as well as

industry associations attended the Conference. A Communiqu was issued at the end of

the Conference, capturing the key thrusts and directions which ICAO and its Member States

intended to go forward in enhancing the level of aviation security at a global level. This

Conference represented a unique opportunity to set political priorities in the field of aviation

security for the coming years, especially in view of the fact that the last time ICAO had held

a similar conference was the Ministerial Conference on Aviation Security in 2002, following

the tragic events of 9/11.

BACKGROUND

The HLCAS was a timely event. Since September 2001, ICAO, its Member States, international

organisations and industry had undertaken many new measures and developed new Standards

and Recommended Practices (SARPs) in ICAO Annex 17 to the Chicago Convention to enhance

the level of security for international air travel, and the benefits for the travelling public.

For example, enhanced measures were introduced on the screening of baggage, passenger,

cargo and mail. Despite these new measures being introduced, the threat from international

terrorist groups against civil aviation continued unabated. Aviation remains an attractive target

for terrorist groups. For instance, there were terrorist attacks at Glasgow Airport, UK in 2007;

Mumbai, India in 2008; Moscow, Russia in 2011 and against flights such as the underwear

bomber from Amsterdam, The Netherlands to Detroit, US in 2009, and on a domestic flight

in China in 2012. In 2010, there was also an alleged plot by terrorists to detonate explosives

hidden in printer cartridges flown as air cargo consignments on civilian aircraft, from Yemen

to Chicago, US via Europe and the Middle East. Thankfully, the improvised explosive devices

were discovered by intelligence sources and intercepted before the terrorists could use themto cause any fatalities.

For those who may have doubted the need for security in aviation, these incidents provided

clear evidence that civil aviation operations continued to be at risk. ICAO and the international

air transport community have to maintain their focus and determination to combat such threats

to the security of international air transport, whilst facilitating the continued growth of the air

transport sector, and the movement of millions of passengers and high volumes of air cargo,

in the most expedient and cost-efficient manner. It was timely that a high level political forum be


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convened by ICAO, to seek high level political commitment and support from its Member States

and industry, and to identify some important steps forward which ICAO, its Member States andindustry could take. The HLCAS was convened, following a series of regional aviation security

conferences held in 2011 and 2012, to provide that needed platform to give aviation security

the much needed attention and focus at the highest levels. Another aim of the HLCAS was to

galvanise common steps amongst all stakeholders in moving forward with various initiatives and

efforts to enhance the level of aviation security globally.

THE KEY OUTCOMES

Given the multiple global developments and continued concerns regarding the security of

international civil aviation operations, the HLCAS deliberations focused on several major items

that were of global significance. The key outcomes were as follows:

Focus on implementation: There was a unanimous call by the Conference for all ICAO

Member States to strengthen their efforts to ensure compliance with the SARPs of Annex 17

(Security), and security-related SARPs of Annex 9 (Facilitation) of the Chicago Convention, as

well as other relevant security conventions.

Risk-based approach to security: The Conference supported that ICAO and all stakeholders

adopt a risk-based approach towards aviation security. This includes taking on an outcome-

based approach with regard to the implementation of aviation security measures that would

best suit the circumstances faced by States, with the flexibility to decide on the exact methods

of security measures to be put in place, whilst achieving the same security outcome/objectivedefined in Annex 17 SARPs. In relation to the risk-based approach to security, the Conference

welcomed the development of a Risk Context Statement by ICAO, which could be used as

a reference by States seeking guidance for conducting their own risk assessment.

Insider threats: The threats potentially presented by insiders, those who work every day

in aviation, and have both privileged access and specific knowledge, were recognised by the

Conference. In this regard, the Conference recommended the adoption by the Council of

a Standard for 100 per cent screening of non-passengers entering a security-restricted area at

the airport.

Cargo security: The Conference endorsed the new SARPs that were developed by theICAO Aviation Security Panel for the strengthening of measures applicable to cargo and mail

shipments. Further work on air cargo security are in progress as new guidance material,

as well as a strategy towards achieving further security outcomes were welcomed by the

Conference.

Acknowledging the multi-discipline nature of cargo security, the Conference welcomed ICAOs

efforts to strengthen its collaboration with the World Customs Organisation and the Universal

Postal Union with the objective to streamline and examine steps towards strengthening


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and harmonising air cargo security processes and measures. Such collaboration would have

significant benefits for all States and industry stakeholders.

Evolution of the Universal Aviation Security Audit Programme (USAP): The

Conference supported the proposal for the evolution of ICAOs USAP towards a Continuous

Monitoring Approach to ensure compliance with ICAOs security SARPs. This would allow

ICAO to better focus the use of its resources on States that have major deficiencies. Further

work would be pursued to encourage States to collaborate, and for ICAO to use the USAP

results to identify weak areas where specific States could benefit from the assistance from

other States to address these gaps.

Capacity building: There was strong support for widening the provision of aviation security

capacity building and assistance, especially to States that would benefit significantly tolevel up their aviation security standards. These included initiatives to enhance capacity

building for air cargo security, as well as improving the quality of aviation security personnel

entrusted with the responsibilities of carrying out aviation security measures.

Liquids, aerosols and gels (LAGs): Recognising the threats posed by liquid explosives,

the Conference called for further efforts to address security concerns and restrictions currently in

place, such as the carriage of LAGs in cabin baggage by air travellers. The aim is to find practical,

effective and sustainable procedures and measures that could be universally implemented across

all airports to facilitate the carriage of LAGs items, thus improving passenger facilitation whilst

still meeting security needs. A transition from a restriction regime to an effective screening

regime was favoured.

Equivalence of security measures: The Conference supported the call for initiatives and

steps that can be taken by ICAO, States and stakeholders towards greater harmonisation of

aviation security measures which could lead to the recognition of equivalent security measures,

and possibly one-stop security agreements. There was also unanimous support for the

strengthening of international co-operation amongst all States towards mutual recognition of

each others security regimes. Such efforts would optimise the use of limited resources, enhance

passenger facilitation, as well as remove redundancies and unnecessary costs, thereby raising

the efficiency of security measures applied across States.

Innovation: The Conference also welcomed steps forward in the use of security technologyand innovation, as well as initiatives to improve security screening processes for passengers

and cargo.

CHALLENGES AND OPPORTUNITIES

Despite it being a success, the Conference was only one step in the right direction. More measures

are now needed to transform the conclusions of the Conference into practical improvements.

The Conference gave aviation security timely and critical high level political support and


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attention that was needed at the global level. This provided for consensus on the various key

areas of focus and gave directions to ICAO, Member States and all stakeholders, on a numberof important steps to be taken in the way ahead towards enhancing aviation security in a

collective manner.

Some of the key challengesthat can arguably be said to have come out of the ICAO HLCAS include:

(a) ICAO, its Member States and all stakeholders should work in unison to move away from the

one-size-fits-all approach to aviation security. In this regard, ICAO and its Member States

should recognise that, while all stakeholders share a common objective and vision towards

creating a secure global environment that can support the growth and development of

international civil aviation, States have different domestic and local circumstances, and

resource limitations that could prevent them from implementing identical security measures.

Instead, choosing a risk-based and outcome-based approach to aviation security should

be strongly supported so that the most practical and cost-effective security measures can

be applied, optimising the use of resources and harnessing the security measures already

provided for by other entities within the State (e.g. customs authorities, border control

authorities etc) and international partners.

(b) Promoting international collaboration amongst States and stakeholders is indeed

a win-win approach for all partners involved. This is consistent with ICAOs constant call for

harmonisation of security approaches, as well as pursuing mutual recognition of security

measures between States. This would avoid duplications, improve security and operational

efficiencies, and enhance passenger and cargo movements, and facilitation between/acrossStates and continents. This would also serve to avoid States imposing unilateral security

measures and requirements on other States and/or their air carriers, which can lead to

inefficient, costly, unsustainable and uneven application of security measures globally.

This is especially the case when many States have already established their national

aviation security regimes and implemented measures to ensure the security of the aircraft,

passengers, baggage and cargo, to achieve the same security outcome i.e., the aircraft

takes off and lands safely at its destination without any security breach, incident or act of

unlawful interference being committed throughout its journey.

(c) The search for innovative solutions to address security concerns, such as new methodsto overcome the restrictions on the carriage of LAGs, and for more efficient ways to screen

passengers and cargo, represents a challenge for all stakeholders. These challenges include

the willingness and capability to move away from traditional and deep-rooted mindsets, and

to adopt a risk-based and outcome-based approach to security.

There is also the challenge of developing, investing in and deploying the use of security

screening technology that can deliver the desired outcomes for both security and


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facilitation. For many States and stakeholders, these can be financially costly from the capital

investment and operational aspects, which makes it difficult for such technology to beuniversally applied.

However, there are also opportunitiesfor all stakeholders arising from the conclusions of the

ICAO HLCAS. These include:

(a) The Conference has created a momentum for international collaborations, which should

be further pursued by ICAO, its Member States and all stakeholders. Such collaborations

would bring about benefits in terms of streamlining security approaches, and the resulting

efficiency to enhancing security and facilitation. Stronger international collaborations will

also enable ICAO and all stakeholders to develop aviation security SARPs that are sensible,

practical, acceptable and universally sustainable.

(b) The Conference clearly stated the importance of capacity building activities. Capacity-building

opportunities should be explored and undertaken to help States that require such assistance

to level up their security measures, which will collectively raise the bar across the world.

Such capacity-building efforts will also help States to jointly resolve impediments to aviation

security, learn from each others experiences, tackle both common and unique challenges

that may be prevalent in certain regions or in individual States, build greater understanding

and open up avenues for more innovative security measures that can be adopted by

all entities.

(c) Collectively, these efforts present new opportunities to identify new and emerging

threats to the security of global civil aviation. These would help in the early developmentof awareness, as well as practical approaches and capabilities including the use of

technology and other innovative methods, to mitigate these threats. States that have

the ability to lead in such developments can then help other States to shorten the

learning curve and work towards jointly dealing with such new threats collectively and

sustainably.

CONCLUSION: THE WAY FORWARD

Security threats to global civil aviation operations will continue to pose challenges to all

stakeholders. It is imperative that ICAO, its Member States and all stakeholders, enhance

efforts to cooperate with each other to address these threats and challenges through practical

and cost-effective ways. The sharing of information and best practices, within and across

regions, and the use of international forums to develop new approaches and security SARPs

should be further encouraged. The use of advanced security technology and innovative

measures, using risk-based and outcome-based approaches, would certainly enhance security

and facilitation. Stakeholders and decision-makers should also be urged to adopt a greater

level of security culture and awareness, where security forms an integral part of their overall


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spectrum of deliberations and decisions, when addressing civil aviation issues, developments

and operations.

ICAO has a critical and central role to play and needs to show its leadership in the field of

aviation security. The 38th ICAO Assembly presented an opportunity to do so and to materialise

the decisions taken at the HLCAS into concrete and practical actions for the next three years.


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A Publication by the Singapore Aviation Academy

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SAA_Journal Aviation Security Challenges, Opportunities and the Way Forward