Distinguished delegates and observers, colleagues in the world of international civil aviation, ladies and gentlemen.
In accordance with Article 54(a) of the Convention on International Civil Aviation, I have the honour to present, on behalf of the Council, its Reports to you for the years 1995, 1996, and 1997, with a Supplementary Report for the first half of 1998.
Three years ago, when I last made a similar presentation, we had just completed a year of looking back to the birth of our Organization. We had commemorated. We had celebrated. We had declared our lasting gratitude to the pioneers who founded ICAO in 1944. Renewed in spirit, we had dedicated our energies and resources to preserving the safety, security and efficiency of international civil aviation and to ensuring that the Organization responds to the major challenges facing civil aviation in the coming years.
Three years ago, our Organization had 183 Members. Since then, we have increased our membership to 185 States, having been joined by Palau and Samoa. I invite you to join with me now in warmly welcoming these newest Members of our family by our applause.
Three years ago, our Secretariat was under the leadership of Dr.�Philippe�Rochat, who returned to his home in Switzerland last year. I am sure that you would now like to express this Assembly�s gratitude for his six productive years of service to our Organization and to welcome our present Secretary�General, Mr.�Renato�Cl�udio�Costa Pereira, who joined us from Brazil just over a year ago.
We are about to look back now at the first full triennium in ICAO�s second half-century. As we do, we will see the strong leadership position your Organization has maintained in all aspects of its mandate, defined under the Chicago Convention as the safe and orderly growth of international civil aviation. We will see dynamic progress. We will observe major initiatives underway � in aviation safety, in overall strategy, in increasing the effectiveness of ICAO, in satellite-based navigation, in environmental protection. At the same time we will review ongoing efforts, many that are technology oriented and many that are focussed upon the needs of the millions of people who work in or use civil aviation. And we will relate to the numerous communities of which we are part. It shall be my pleasure to guide you now as we look back together � to observe, to review, to relate to these accomplishments of the past three years.
The safety of civil aviation ranked very high among the goals of those who wrote the Chicago Convention, the constitution of our Organization. This attention to safety has made civil air transport the safest form of transportation known to mankind. In 1997, throughout the world 916 passengers on scheduled air services died in aircraft accidents. Comparing this to the volume of traffic carried, for each fatality two and one-half billion passenger-kilometres were flown successfully. Nevertheless, over the past triennium we have singled out safety for especial attention. In my view, one accident is one too many; one fatality is one too many!
As you know, under the Chicago Convention, the regulation of safety and security is the responsibility of individual States. Yet over the past several years we have become aware of aviation safety and security shortcomings in many countries. The resultant concerns have lead ICAO into a new role, one that goes beyond its role of developing aviation safety and security standards, to add a role of auditing compliance with them. Such audits will not infringe on the sovereignty of States. Should an audit identify shortcomings or deficiencies, it will be up to the State concerned to rectify the deficiencies, with help from ICAO and the international aviation community.
ICAO had previously moved into the field of safety assessments. In 1996 we started a major new ICAO Safety Oversight Programme, one funded primarily by voluntary financial and technical contributions. Its core function is that of ICAO assessing how well a particular State is overseeing the implementation and enforcement of internationally agreed safety standards.
The Programme is voluntary. As of 30 June 1998, 86 requests for assessment had been received from Contracting States and 62 completed. ICAO also offers follow-up advice and technical assistance, as necessary, to implement ICAO Standards, Recommended Practices and associated procedures in the areas of personnel licensing and training, operation of aircraft, and airworthiness.
ICAO has also worked closely with regional and sub-regional initiatives for improving safety and, for example, has projects in hand for the development of three Regional Flight Safety Surveillance Authorities, for groups of States in Asia/Pacific, Central Caribbean, and Central America. Also, significant efforts have been made for the enhancement of flight safety oversight in other regions.
In November of last year a very special international Conference of Directors General of Civil Aviation of ICAO�s 185 Member States was held here in Montreal. It was the first-ever world conference of ICAO devoted exclusively to air safety. It produced numerous specific conclusions and recommendations to reduce the rate of airline accidents world-wide and maintain civil aviation as the safest mode of transport. They included regular, mandatory, systematic and harmonized safety audits to be carried out by ICAO in all Contracting States; greater transparency and increased disclosure of results; expansion of the ICAO Safety Oversight Programme, at appropriate times, to all areas which have an impact on safety; coordination of the safety oversight activities of States and regions with the ICAO Programme; and the use by donors and funding organizations of the technical co-operation services of ICAO for implementing assistance on safety oversight. And it reaffirmed ICAO�s leadership role in air safety.
Another major achievement of the Conference was the signing of a Memorandum of Understanding (MOU) between ICAO and the European Civil Aviation Conference (ECAC), whose role is to coordinate air transportation policy among its European Member States. The MOU formalizes a long-standing co-operation between the two bodies in the areas of safety oversight and serves as a model for other regions in aligning safety oversight initiatives with ICAO�s programme, within the context of a global oversight strategy.
In May of this year the Council reviewed the conclusions and recommendations of the DGCA�Conference and agreed that all activities related to the universal safety oversight audit programme would be performed by ICAO and that the Organization would not deviate from these recommendations. Adequate funding has been included in the draft Programme Budget for the next triennium and a report has been presented to this Assembly regarding implementation of these recommendations.
In the inter-related area of aviation security, the ICAO Mechanism for Financial, Technical and Material Assistance to States with Regard to Aviation Security has continued to function, as desired by the 31st Session of the Assembly. As of 30 June 1998, 131 States have requested assistance under this Mechanism, and 106 States have received technical evaluation missions. Twenty-nine follow-up missions were conducted. These activities have been financed by the ICAO budget, by voluntary contributions from 17 donor States, and by the funding of seven posts by four donor States. The establishment of regional and sub-regional aviation security training facilities, the development of standardized training packages, technical co-operation projects, and work by specialists (for example on the detection of explosives) � have all enhanced aviation security during the triennium.
ICAO�s first ever Strategic Action Plan, entitled �Guiding Civil Aviation into the 21st�Century�, was formally adopted by the Council on 7 February of last year. It represents the first comprehensive re-evaluation of ICAO�s mission since the signing of the Chicago Convention. The Strategic Action Plan is designed to work within the Convention�s framework to ensure that the Organization responds to the major challenges for civil aviation in the coming years. Safety and security are important components.
The 31st Assembly, in its Resolution A31-2, recognized the value of the Strategic Action Plan and set forth various actions needed for the Organization to respond effectively to �new and rapidly evolving challenges of a technological, economic, social and legal nature�. This Assembly is invited to examine the report of actions taken or being taken to carry this out. These include working methods and procedures of the Assembly; decision-making processes, working methods and procedures of the Council and its subsidiary bodies; effectiveness of the oversight mechanism; procedural, managerial, and administrative reforms; relationships between ICAO and other international organizations; and the sunset rule. We are also increasing the responsibilities of our regional offices and giving them the tools and trust to fulfill these responsibilities (as was done for the Africa/Indian Ocean Regional Air Navigation meeting in Abuja, Nigeria in May of 1997). The improvement of the effectiveness and efficiency of ICAO is a permanent, ongoing exercise.
Also in accordance with Resolution A31-2, the Council has developed and endorsed a systematic planning process linking the Strategic Action Plan directly to the Programme Budget. The budgets themselves continue to provide for, on average, zero real growth, while at the same time expanding tasks related to CNS/ATM, flight safety and human factors, controlled flight into terrain, aviation security, evaluation and internal oversight, and the strengthening of the regional offices.
In the field of air navigation a key strategic objective is the earliest and most comprehensive implementation of the ICAO Communications, Navigation and Surveillance/Air Traffic Management (CNS/ATM) Systems. One very important conference, held just four months ago in Rio de Janeiro, Brazil, stands out for its unique contribution to that objective.
The first-ever ICAO World-wide CNS/ATM Systems Implementation Conference (accompanied by a major Technology Exhibition) brought together in Rio�de�Janeiro 807 participants from 123 Contracting States and 59 aviation, financial and industry organizations. The objective of this unique gathering was to bring together all partners in the world-wide implementation of CNS/ATM systems around two main issues, financing and institutional frameworks. The Conference successfully produced numerous substantive recommendations, not only on its main issues, but on implementation-related technical co-operation, legal, and training matters as well. The Conference also requested the Council to expedite the study of an international aeronautical monetary fund. As it concluded, it made a brief but very substantive Declaration on Global Air Navigation Systems for the 21st Century to inform the world community about the results of its work.
A new body which first met in 1997 contributed to the success of this Conference. It is called the ALLPIRG/Advisory Group because it is composed of representatives of all the air navigation planning and implementation groups as well as representatives of users, service providers and manufacturers. It held its second meeting in February 1998, focussing on preparations for the then upcoming Rio Conference.
Other especially noteworthy activities by your Organization in the field of air navigation were:
Air Transport continues to be a major growth industry, as well as a major contributor to global social and economic development. Over the past triennium the scheduled airlines of the 185 ICAO Member States:
Events in the economic regulation of international air transport during the triennium included:
Your Organization�s air transport activities included:
Your Organization�s technical co-operation programme helps civil aviation throughout the developing world. Over the years since the programme began in 1951, about one billion U.S. dollars in development projects have been implemented, with all of the money coming from sources outside ICAO.
During the past triennium alone we have:
In 1996 our Objectives Implementation Funding Mechanism for technical co-operation projects received a major contribution from the Government of Spain that is being used on training projects in Latin America. In 1995, in an unprecedented action, ICAO established a Civil Aviation Caretaker Authority for Somalia. All of these actions help developing countries to share more fully and effectively in the benefits of civil aviation.
Your Organization both forms a community and relates to many other communities.
An even more immediate community is formed by those who labour in and through ICAO each day, often energetically and with marked enthusiasm. They are the concerned, dedicated, hard working people who carry out the many tasks of our principal standing bodies (the Council, the Air Navigation Commission, and the Air Transport Committee), other bodies, and those of ICAO�s global Secretariat based here and at ICAO�s seven regional offices. As I continue to speak of ICAO�s accomplishments over the past triennium, always remember the community of people who worked together to bring them about.
As an organization we relate as well on an ongoing basis to the United Nations, its major bodies and programmes, its regional economic commissions and its inter-agency bodies. We relate also to the several specialized agencies of the United Nations � about subjects of common interest such as communications, air mail, workplace health, weather warnings, the safe transport of radioactive materials, and trade in services.
Close relations were also maintained with many other governmental and private international organizations. To name but a few, as a sample, the long list includes:
I have named but a few representative organizations with which ICAO relates. All form parts of our global civil aviation community.
Each year we at ICAO relate also, on a much more intimate level, with outstanding organizations and individuals whom ICAO singles out for especial recognition. Each year the prestigious Edward Warner Award is given to an institution or individual in recognition of outstanding contributions to the safe and orderly development of civil aviation.
In 1996, we bestowed the 30th Edward Warner Award upon the Institute of Air and Space Law of McGill University, here in Montreal, in recognition of the highly significant contribution of the Institute to international air law.
In 1997, the recipient of the 31st Edward Warner Award was Dr.�Tatiana�Grigorievna Anodina of the Russian Federation in recognition of her eminent contribution, as scientist and researcher, to the development of national, regional and global air navigation aids for international civil aviation.
During this Assembly, Dr. Kenneth Rattray, a citizen of Jamaica, received the 32nd�Edward�Warner Award in recognition of his eminent contribution, particularly in the legal field, to the development of international civil aviation. Over the last 34 years Dr.�Rattray has steadfastly championed the fundamental spirit and intent of the Chicago Convention and advanced creative measures to protect its universality in the face of changing circumstances.
We have a very special relationship with our host State, Canada, as well as one with the Province of Quebec. And we enjoy the hospitality of the City of Montreal. Our special relationship with Canada includes our building premises.
In October 1996, we moved into this building, a new 15-storey office tower and conference centre provided by Canada. The office tower provides a modern and efficient workplace for the ICAO Secretariat and delegations from Council Member and other Contracting States. The conference centre has, in addition to the Assembly Hall, which accommodates up to 900 participants, a second large meeting room which accommodates up to 250 people, two smaller conference rooms also having interpretation facilities, 7�additional small meeting rooms, the Council Chamber, and the Air Navigation Commission meeting room.
These new Headquarters premises of your Organization were officially inaugurated by The�Right Honourable Jean Chr�tien, Prime Minister of Canada, our then Secretary General, Dr.�Philippe�Rochat, and myself on 5 December 1996, in the presence of the Honourable Lucien Bouchard, Premier of Quebec, and His Worship Pierre Bourque, Mayor of Montreal. This is the first time that an ICAO Assembly has met in our beautiful new building.
We sincerely appreciate what our host State has provided. Our working premises are truly conducive to our ongoing task of building an even better civil aviation system for the world community. Thank you, Canada!
The longstanding role of your Organization in environmental protection was given a significant new dimension late in 1997. The global community meeting in Kyoto, Japan, recognized ICAO as the global instrument for developed countries to pursue the limitation or reduction of greenhouse gas emissions from international aviation. It codified this recognition in a provision of the Kyoto Protocol to the United Nations Framework Convention on Climate Change.
In our ongoing environmental work, among other actions we are continuing to seek ways to further reduce aircraft noise and are co-operating with other United Nations agencies on the problems of climate change and depletion of the ozone layer.
In the legal field there were several very noteworthy events.
Your Organization prepared a draft Convention for modernizing and consolidating the Warsaw System of air carrier liability, featuring the removal of limits of liability of air carriers in cases of aviation disasters resulting in injury or death to passengers.
After intensive work by a panel of legal and technical experts, a draft Charter on the Rights and Obligations of States Relating to GNSS Services was prepared for submission to this Assembly. Additionally, work will continue on the establishment of a legal framework for GNSS on a long term basis, including consideration of an international convention for this purpose. Our ongoing legal studies will in no way delay or stop the implementation of CNS/ATM systems.
Article 83 bis of the Chicago Convention came into force to provide a legal framework to facilitate the transfer of certain safety-related functions and duties from the State of Registry of an aircraft to the State of the Operator. Once the functions and duties have transferred, the State of Registry is no longer responsible for them.
The Council strongly recommended that States which have not yet done so ratify the Protocol introducing Article 3 bis into the Chicago Convention. This article prohibits the use of weapons against civil aircraft in flight.
Lastly in the legal field, as of 30 June 1998, 115 States have accepted the International Air Services Transit Agreement. Sadly, a large number of Member States have not yet accepted this Agreement that is so important to the development of scheduled air services. Much broader acceptance now would clearly demonstrate the enhanced co-operation among ICAO Member States that is called for by our growing global interdependence. I urge those States that have not yet accepted this valuable agreement to do so as soon as possible.
Diplomacy undertaken by your Organization resulted in:
In my presentation to you today, I reported on your Organization�s work over the past triennium in aviation safety, security, and air navigation. I spoke of our activities in air transport and technical co-operation. I spoke also of our many relationships, our legal work, and our diplomatic efforts. And now I want to get all of you, as delegates, even more involved in advancing your Organization�s work.
First, your Organization encounters serious difficulties and indeed operational impairments because many Member States� contributions are simply not being paid or are being paid late in the year they fall due. Payments made late in the year can produce cash surpluses at the year�s end, but at a significant cost to your Organization�s ability to do the many tasks you want it to do. As of the end of last year the arrears in contributions from Member States totalled more than 21 million U.S. dollars. Progress has been made and this amount has since dropped to approximately 12 million U.S. dollars. However, payment of the current year assessment continues to be a concern for the Organization. Full and prompt payment of dues is not only the right action to take, but is the fulfilment of the legal obligation that every State freely undertook upon becoming a Member. And, I must add, it saddens me deeply to know that a number of sovereign Member States now have their voting powers suspended. This is because they have failed to meet their financial obligation to the Organization equivalent to the preceding three years or more and either have not concluded with the Council an agreement that provides for the settlement of their outstanding obligations or have not complied with the terms of their agreement. I would like, however, to express my gratitude to States who have already entered into an agreement and call on all those who have not yet done so to settle their arrears to your Organization as early as possible.
Second, I cannot overstate how important it is to aviation safety that each and every government notify ICAO promptly of any differences it maintains from the Standards contained in the Annexes to the Chicago Convention.
Third, you can urge your governments to speed up the process of ratification of international air law instruments. Right now there are numerous international air law instruments that could be working for the world community but for a lack of sufficient ratifications or accessions to permit them to enter into force.
Lastly, it is very important that each State ensure that its air navigation charging policies conform to the charging policy principles expressed by the Council in furtherance of Article 15 of the Chicago Convention.
Ladies and gentlemen, my presentation is ended. But our work together goes on. Let us pursue that work with enthusiasm, vigour, imagination, dedication. Let us enter the new century and the new millennium with confidence, and an ever ongoing desire to build the very best possible civil aviation world. Let us continue to share the dream of the drafters of the Chicago Convention � that international civil aviation be developed to �...greatly help to create and preserve friendship and understanding among the nations and peoples of the world...� .
Thank you for your very kind attention.
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