3.4.2. Management of Regional and Strategic Airlift

a. Scenario

• While, in some emergencies, the UNJLC function may be limited to the activation of an Air Coordination Cell (ACC) such as described above, it is possible that the situation evolves into a more complex management scenario. This may occur if the humanitarian community decides to centralise the chartering and management of air assets for both passenger and cargo transport and to establish air services in the crisis region and activate the UNHAS system. As a result, the UN Common Services will mount the full array of humanitarian air services, including strategic cargo, regional cargo and regional passenger services.

- Normally, extensive strategic airlift will only be required during the first month or two after the onset of the emergency. After some time, agencies gradually transfer to more cost-effective modes of transport such as boats, trains and trucks, while aircraft would only be used to transport urgent commodities to the crisis region.

- The need for regional cargo aircraft follows the same trend, but may last longer because of accessibility and/or security problems in the crisis region.

- The need for a common passengers’ service will depend, not only on the size of the crisis area, but also on local commuter capabilities and the security situation. The latter may impose extending the service over very long periods, such as in Sudan, Angola, Somalia, Afghanistan, Indonesia and, recently, Pakistan.

• Through its mandate, the UNJLC will only be involved in the early stages of large-scale complex emergencies but, as such, may be implicated in the three types of air service mentioned above. UNJLC involvement may occur modularly, in accordance with the following scenario.

- At the start of the crisis, a sudden influx of strategic aircraft may occur in which case it may be necessary to create immediately an Air Coordination Cell (ACC) as described in paragraph 3.4.1. above.

- Following the decision to deploy the UNJLC, an air structure will be created in the crisis region and air coordination officers will be deployed to those airfields which are used by the humanitarian airlift. The ACC may remain at its original location, but may become a satellite of the UNJLC.

- Besides the UNJLC, the UNHAS system will be activated to managed the commonly available air assets.

• As such the UNJLC/ACC may be charged with both strategic airlift scheduling of own chartered aircraft and slot coordination of other humanitarian aircraft. Regional airlift prioritisation would be done within air component of the UNJLC. Nevertheless, as the situation evolves and strategic airlift requirements are decreasing, ACC responsibilities may be transferred to one central common location within the UNJLC structure.
• To a certain extent, the latter has been the case during the crises in both Afghanistan and Iraq. During the first crisis, strategic airlift was initially coordinated by the Core UNJLC in Rome but shifted to the UNJLC, once fully established. The Afghanistan crisis did not require intensive coordination of strategic airlift, but during the Iraq crisis, UNJLC became involved in both strategic and regional air operations. Nevertheless, since the influx of strategic airlift was limited, it was not necessary to create a strategic planning structure separate from the regional air functions. Furthermore, as from the start of the operation, the execution of the air operations was managed by UNHAS, while UNJLC remained in charge of the compilation and prioritisation of the cargo needs, both strategic and regional. Both UNJLC and UNHAS were collocated and, although the air activities were limited to a few aircraft, the formula to manage the assets from a central location proved to be successful.

b. Structure and Responsibilities

• During large-scale complex emergencies, the Secretary General may appoint a Special Representative (SRSG) who will be overseeing both UN humanitarian and peacekeeping activities, if the latter are undertaken under UN mandate ( FOM 4.1.2). The Humanitarian Coordinator ( FOM 4.1.5) reports to the Emergency Relief Coordinator (ERC) or to the SRSG, if appointed, and chairs, inter alia, the (UN) Country Team. The UNJLC will report to the HC or to his/her Deputy for Operations. The (UN) Country Team (UNCT) and/or the Field Steering Group (FSG) will provide the overall directives on the management of the ongoing emergency. These include the establishment of humanitarian priorities.
• In case of intensive humanitarian air operations, the HC may decide to create a Users Group Committee (UGC), which, however will not be directly involved in the management process of the air assets (see further). The UGC provides administrative direction and guidance for the utilization of the common air transport resources. It is composed of all the Agencies, IOs, NGO representatives and Donors which are active in the crisis area. One of the important tasks is to establish a list of beneficiary organisations having access to UNJLC air resources, but also establishing more detailed priorities for passengers and cargo transport. Sample TORs of such UGC are at FOM 6.2.09.

The UNJLC will act as the expert adviser to both the CMG/UNCT and the UGC on the interagency air requirements to support the relief phase of the ongoing emergency. In case of HAS activation and involvement, responsibilities for scheduling passenger and cargo flights will be as described in paragraph 3.2.2 above.

c. Planning Cycle

• Separate requests should be made for passengers and both regional and strategic cargo transport at least 3 days before execution. In some cases, the UNJLC may also be in charge for slot assignment for other humanitarian missions that those managed by UNJLC/HAS. In such a case, separate request forms will be needed an additional officer may be assigned for this function.
• During the initial phase of the emergency, passengers transport may be ad hoc, using all available means, but once established, the HAS passenger service will aim for a regular schedule and publish the booking procedures on the UNJLC website.
• Depending on the scenario and the number of assets involved, cargo planning may be split into two separate entities, strategic and regional.

d. Individual Functions

Staffing and individual functions will depend on the mandate of the UNJLC Air Component. Following options are possible:

- The UNJLC is only involved in cargo prioritisation and requests for slot allocation of those aircraft which are chartered for common humanitarian use;

- In addition to the above UNJLC is also in charge for compiling all humanitarian slot requests and for proposing a consolidated schedule to the slot allocation authorities. In such a case, a Humanitarian Air Liaison Officer will be appointed to the UNJLC;

The description of the individual functions below include the full array of the responsibilities described above but, pending the UNJLC mandate and HAS involvement, may be reduced accordingly.

The Air Coordinator is responsible for planning, co-ordinating and controlling UNJLC-managed air operations within the crisis region. These functions may include strategic airlift if these assets are centrally managed within the UNJLC. He/she will;

- Assist in the establishment of a regional management structure for air operations in the crisis region;

- Determine availability and operational status of flight management and support facilities in the regional airspace, including flight information services, navigational aids and ATC. Identify deficiencies or problem areas and - in close liaison with the responsible CAA and local ICAO representative (if any) - recommend initiatives to address them;

- Be the focal point for liaising with the CMCoord staff on all aspects of airspace and flight coordination, including security and flight safety, with the relevant military authorities;

- Co-ordinate assignment of squawk codes (if required) with all relevant organisations and operators including military authorities;

- Publish these procedures on UNJLC website and send electronic copies to all concerned;

- Identify and address any airfield handling deficiencies;

- Communicate with field stations and UNJLCs to ensure timely exchange of operational information and adequate logistics support;

- Liaise with relevant country authorities to facilitate air operations, customs documentation, and immigration formalities;

- Co-ordinate with the concerned agency offices and UNJLCs to process import, transit, clearing and forwarding of humanitarian shipments (related to or in support of air operations) from overseas or neighbouring countries;

- Assist in the negotiation of air operation tariffs, charges and taxes with country authorities and other organisations;

- Assist in requesting MCDA as needed and manage the administration aspects of such requests;

- Determine operational status of all airfields of potential importance to the relief operation. Identify deficiencies at these airfields and in close liaison with the CAA and local ICAO representative (if any) recommend initiatives to address them;

- Compile and maintain database on all airfields of potential importance to the relief operation and publish on the UNJLC website;

- Undertake or commission surveys and assessments of particular airfields;

- Liaise with appropriate authorities; including UN security staff, to ensure that adequate security exists at all airfields used for humanitarian operations;

- In co-operation with relevant CAA or Military Authorities, review Search & Rescue (SAR) plans to ensure that it offers appropriate cover for envisaged humanitarian airlift operations. In event of deficiencies or problem areas, recommend initiatives to address them;

- In cooperation with the UN Medical Officer in the crisis area, the military authorities, CAA, ICAO, UNSECOORD and HAS, coordinate air aspects of Medevac procedures;

- In coordination with UNSECOORD and HAS, investigate options for security evacuation of UN personnel by air;

- Publish a regular Aviation Bulletin containing air information of particular interest or importance to beneficiaries, UN Agencies, operators and the wider aviation community.

The Air Cargo Planning Officer reports to the Air Coordinator and is in charge for the coordination and publication of the interagency flight schedule related to the cargo aircraft that are managed by UNJLC. In this capacity, he/she will:

- Establish procedures for submitting airlift requests;

- Receive bids for airlift from Agencies, IOs, NGOs and other humanitarian organisations;

- Based on HCI guidance, establish prioritisation procedures for transporting humanitarian passengers and cargo;

- Chair coordination meetings with beneficiaries and HAS and propose scheduling of passenger and cargo services;

- Evaluate and prioritise airlift bids in line with these priorities;

- Propose cargo schedule to appropriate authority, possibly through the humanitarian coordination officer (if present);

-- Receive approved slots from Airspace Control Authority;

- Forward approved flight schedule to relevant operators, including HAS and publish as required;

- Liaise with CAA(s), DPKO and military air authorities (as appropriate) to be kept informed on any restrictions governing use of airspace in or adjacent to the crisis area;

- Register all data for statistical evidence, including details of all commodities handled and transported under UNJLC co-ordination;

The Humanitarian Air Liaison Officer reports to the Air Coordinator and is in charge for the compilation and de-confliction of all humanitarian flights into the crisis area, including aircraft managed by both UNJLC or HAS and other humanitarian organisations. In this capacity, he/she will:

- Obtain information from the Airspace Control Authority and the International Civil Aviation Organisation (ICAO) on procedures regarding flights into the crisis region/area;

- In coordination with the Airspace Control Authority, establish procedures for submitting and centralising all requests for humanitarian flights;

- Inform all humanitarian organisations of the existence of these procedures and the consequences in case of non-compliance;

- Based on HCI guidance, establish prioritisation procedures for scheduling humanitarian flights;

- Coordinate closely with the UNJLC Cargo Planning Officer and HAS for obtaining all relevant data regarding HAS operations in the crisis area;

- Receive slot requests for landings in the crisis area from other Agencies, IOs, NGOs and other humanitarian organisations;

- Receive inputs from Air Movement Coordinators at Hubs and Destination Airfields on cargo and passengers arriving/departing from their local airfields;

- Draft and consolidated humanitarian flight schedule for co-ordination and de-confliction with military activities and propose schedule to the slot allocation authorities;

- Negotiate humanitarian priorities with the relevant military authorities and receive approved schedule;

- Publish coordinated and approved slot allocation;

When a UNJLC Air Movement Officer is appointed to co-ordinate the loading or unloading of humanitarian cargo at an airfield, he/she will:

- Liaise closely with airfield management, ground handling agents and other relevant organisations to ensure that all arrangements are in place for loading and unloading of cargo.

- Ensure that beneficiary Agencies and organisations with cargo to load/unload are fully briefed on times, locations, documentary requirements, airfield access procedures etc.

- Co-ordinate with aircraft operators and consignors of cargo to ensure compliance with ICAO and IATA regulations on packaging and transportation of hazardous materials.

- Ensure that proper protective clothing is worn when handling hazardous materials.

- Co-ordinate with relevant supply and transportation units to ensure safe and effective loading and unloading procedures.

- Maintain daily statistics on aircraft movements and cargo carried. Report this data to the UNJLC Information Management Section on a weekly basis.

The Reports Analysis and Statistics Officer will compile all inputs from the Air Movement Coordinators, analyse the reports and produce weekly summaries. He/she will fulfil the functions as described in Paragraph 3.3.4.