201307041012430.indonesian Airspace Sectorisation, CONOPS and Capacity Studies Final Report

Indonesian Airspace
Indonesian
Airspace
Sectorisation,
Sectorisation,Concept
Conopsofand
Operations
and Capacity Studies
Capacity Studies
Final
Report
Final Report
Sub-Title 14pt Type Here
Indonesian Airspace
Sectorisation, Concept of
Operations and Capacity
Studies
Final Report
CONSULTANT REPORT
October 2012
INDONESIA INFRASTRUCTURE INITIATIVE

This document has been published by the Indonesia Infrastructure Initiative (IndII), an
Australian Government funded project designed to promote economic growth in
Indonesia by enhancing the relevance, quality and quantum of infrastructure
investment.
The views expressed in this report do not necessarily reflect the views of the Australia
Indonesia Partnership or the Australian Government. Please direct any comments or
questions to the IndII Director, tel. +62 (21) 230-6063, fax +62 (21) 3190-2994.
Website: www.indii.co.id.
ACKNOWLEDGEMENTS
This report has been prepared by John McCarthy (Project Manager), Peter Atkins
(International Consultant) and Novaro Martodihardjo for Strategic Airspace Pty Ltd,
engaged under the Indonesia Infrastructure Initiative (IndII), funded by AusAID, as part
of the Activities #289 and #290.
The support provided by the staff at IndII, Directorate General of Civil Aviation,
Angkasa Pura I, Angkasa Pura II and Cathy Pak-Poy (Strategic Airspace) in the
preparation of this report, is gratefully acknowledged.
Any errors of fact or interpretation are solely those of the authors.
Peter Atkins and John McCarthy
Jakarta, October 2012
IndII 2012
All original intellectual property contained within this document is the property of the Indonesia
Infrastructure Initiative (IndII). It can be used freely without attribution by consultants and IndII partners in
preparing IndII documents, reports designs and plans; it can also be used freely by other agencies or
organisations, provided attribution is given.
Every attempt has been made to ensure that referenced documents within this publication have been
correctly attributed. However, IndII would value being advised of any corrections required, or advice
concerning source documents and/ or updated data.
TABLE OF CONTENTS
ACRONYMS.............................................................................................................. V
EXECUTIVE SUMMARY ........................................................................................... VII
CHAPTER 1: INTRODUCTION ..................................................................................... 1
1.1
1.2
RELATIONSHIPS OF PROPOSED PROJECTS ............................................... 2

SCOPING STUDY OBJECTIVES .............................................................. 3
CHAPTER 2: CONTEXT ............................................................................................... 5

2.1
2.2
2.3
2.4
2.5
GEOGRAPHY ................................................................................... 5
POLITICAL AND ORGANISATIONAL ........................................................ 6
AIR TRAFFIC MANAGEMENT ............................................................... 8
2.3.1 Characteristics Common To Both FIRs ..................................... 8
2.3.2 Air Traffic Management - Jakarta FIR ..................................... 10
2.3.3 Air Traffic Management Ujung Pandang FIR ..................... 13
COMMUNICATION, NAVIGATION AND SURVEILLANCE (CNS) .................... 15
AVIATION ACTIVITY ........................................................................ 17
CHAPTER 3: STAKEHOLDERS ................................................................................... 19

3.1
3.2
3.3
3.4
3.5
INTRODUCTION ............................................................................. 19
OVERVIEW OF STAKEHOLDER MANAGEMENT ....................................... 19
KEY INDONESIAN STAKEHOLDER GROUPS ............................................ 20
EXTERNAL ATM AND FOREIGN AGENCIES ............................................ 21
STAKEHOLDER ASSESSMENT ............................................................. 23
CHAPTER 4: KEY FINDINGS...................................................................................... 25

4.1
4.2
4.3
4.4
4.5
4.6
INTRODUCTION ............................................................................. 25
ASSESSMENT OF INDONESIAN ATM CONTEXT ...................................... 25
ASSESSMENT OF INDONESIAN AGENCIES CAPABILITIES ............................ 27
POTENTIAL FOREIGN AID CHARACTERISTICS AFFECTING THE PROJECTS........ 28
RISK PROFILES .............................................................................. 30
4.5.1 Application of Risk Management for Change......................... 30
4.5.2 Risk Exposure.......................................................................... 31
SCOPES OF WORK (SOWS) CONOPS, CAPACITY ANALYSIS,
RESECTORISATION ......................................................................... 33
CHAPTER 5: PROJECT IMPLEMENTATION ................................................................ 34

5.1
5.2
INTRODUCTION ............................................................................. 34
PROPOSED IMPLEMENTATION STRATEGY ............................................. 34
5.2.1 Objectives ............................................................................... 34
5.2.2 Approach ................................................................................ 35
5.3
5.4
5.2.3 Inclusion of the Approach in the SOWs.................................. 35

PROJECT ORDER, RESOURCES AND TIMEFRAME .................................... 36
ESTIMATED RESOURCES AND COST..................................................... 37
CHAPTER 6: METRICS & KEY PERFORMANCE INDICATORS ....................................... 39

6.1
6.2
6.3
6.4
6.5
6.6
6.7
INTRODUCTION ............................................................................. 39
BACKGROUND .............................................................................. 40
CAPACITY DETERMINATION USING ANALYSIS METHODS .......................... 40
CALCULATING A METRIC USING DEDUCTIVE METHODS............................ 41
APPLICATION OF THE BRAZILIAN MODEL TO AN INDONESIAN SECTOR ......... 43
ADDITIONAL METRICS .................................................................... 45
TAXONOMY FOR PERFORMANCE MEASURES ........................................ 46
CHAPTER 7: CONCLUSION....................................................................................... 48
7.1
7.2
7.3
NEED FOR THE PROJECTS ................................................................. 48

POTENTIAL DIFFICULTIES ................................................................. 48
POTENTIAL SUCCESS FACTORS FOR THE PROJECTS .................................. 49
ANNEXES ............................................................................................................... 50
ANNEXE 1:
ANNEXE 2:
ANNEXE 3:
ANNEXE 4:
ANNEXE 5:
STRENGTHS, WEAKNESSES & THREATS ...................................... 50

METHODOLOGY ................................................................... 55
STAKEHOLDER ENGAGEMENT PLAN........................................... 60
AIRSPACE QUESTIONNAIRE ..................................................... 63
MINUTES
OF
WORKSHOPS,
AND
FORMAL
MEETINGS
AND PRESENTATIONS...................................................................... 64
REFERENCES .......................................................................................................... 76
ii
LIST OF TABLES
Table 1: Summary of Required Resources and Estimates of for the Proposed Projects .. x
Table 2: Strategic Airspace Approach to the Task ............................................................ 3
Table 3: Airports that AP II Operates .............................................................................. 10
Table 4: AP I Makassar Airports ...................................................................................... 13
Table 5: Jakarta FIR Sector Traffic for September 2011.................................................. 18
Table 6: Key Indonesian Stakeholders ............................................................................ 20
Table 7: Australian Aid & Support Organisations working within the Indonesian ATM
Framework ......................................................................................................... 21
Table 8: External Agencies (other than Australia) .......................................................... 22
Table 9: Indonesian ATM Context ................................................................................... 26
Table 10: Indonesian Aviation Capabilities ..................................................................... 27
Table 11: Potential Foreign Aid Characteristics & Effect on Projects ............................. 29
Table 12: Preliminary Qualitative Risk Assessment ........................................................ 31
Table 13: Project Prioritisation ....................................................................................... 36
Table 14: Performance Areas & Metrics ......................................................................... 46
Table 15: Stakeholder Management and Communication ............................................. 61
Table 16: Key Comments by Stakeholders ...................................................................... 65
LIST OF FIGURES
Figure 1: Proposed Project Indicative Schedule ............................................................ xi
Figure 2: Relationship of Proposed Projects with ATM Masterplan ................................. 1
Figure 3: Indonesian FIR Boundaries................................................................................. 6
Figure 4: Indonesian Aviation Agency Overview Current Situation ............................. 7
Figure 5: Indonesian Aviation Agency Overview Future (Post-Transition)................... 8
Figure 6: Traffic Density Comparison ................................................................................ 9
Figure 7: Current Jakarta FIR ATC Sectorisation.............................................................. 11
Figure 8: Proposed Sectorisation Jakarta FIR ............................................................. 11
Figure 9: Air Route Structure Jakarta FIR ........................................................................ 12
iii
Figure 10: Ujung Pandang Current Sectorisation ....................................................... 14

Figure 11: Proposed Sectorisation for Ujung Pandang FIR ............................................. 14
Figure 12: ADSB Coverage for Indonesia ........................................................................ 16
Figure 13: VHF Coverage for Upper Airspace.................................................................. 16
Figure 14: Growth in Public Transport Movements........................................................ 17
Figure 15: Stakeholder Assessment Grid ........................................................................ 24
Figure 16: Risk Assessment ............................................................................................. 32
Figure 17: Risk Profile ...................................................................................................... 33
Figure 18: Profile of Upper Semarang (US) Sector .......................................................... 43
Figure 19: CANSO Productivity Figures ........................................................................... 45
Figure 20: Original Work Plan and Schedule for Project 289 (Project 290 was similar) . 56
Figure 21: Project Schedule - Actual vs Baseline............................................................. 56
iv
ACRONYMS
AIP
Aeronautical Information Publication
ANSP
Air Navigation Services Provider
AP I
Angkasa Pura formerly Angkasa Pura 1 (Airport and ATM Authority

Makassar)
(NB: To avoid potential confusion, abbreviated as AP I in this report)
AP II
Angkasa Pura 2 (Airport and ATM Authority Jakarta)
ATC
Air Traffic Control
ATFM
Air Traffic Flow Management
ATM
Air Traffic Management
ATS
Air Traffic Services
CGK
Jakarta Soekarno-Hatta International Airport IATA Code (refer

also SHIA)
CNS
Communication, Navigation and Surveillance
CNS/ATM
Communications, Navigation, Surveillance/Air Traffic Management
CONOPS
Concept of Operations
DGCA
Directorate General Civil Aviation
EJAATS
Emergency Jakarta Air Traffic Control System (refer also JAATS and
MAATS)
FAA
Federal Aviation Administration (USA)
FIR
Flight Information Region
FTS
Fast Time Simulation
HMI
Human Machine Interface
ICAO
International Civil Aviation Organization
JAATS
Jakarta Air Traffic Control System (refer also EJAATS and MAATS)
JATC
Jakarta Air Traffic Control
MAATS
Makassar Air Traffic Control System (refer also EJAATS and JAATS)
PBN
Performance Based Navigation
PANS-OPS
Procedures for Air Navigation Services - Aircraft Operations,

ICAO Doc 8168
PANS-ATM
Procedures for Air Navigation Services-Air Traffic Management,

ICAO Doc 4444
RNAV
Area Navigation
RNP
Required Navigation Performance
RNP-AR APCH
Required Navigation Performance Approach Authorization Required
SARP
Standards and Recommended Practices
SHIA
Soekarno-Hatta International Airport, Jakarta (refer also CGK, IATA

Airport Code)
SMS
Safety Management System
SRA
Safety Risk Assessment
SOP
Standard Operating Procedures
WGS-84
World Geodetic System,1984
vi
EXECUTIVE SUMMARY
The volume of both domestic and international air traffic in the two Indonesian Flight
Information Regions (FIRs see Figure 3: Indonesian FIR Boundaries) continues to
grow at an increasing rate; some of the routes in Indonesian airspace are already
amongst the busiest in the world. The Indonesian aviation agencies, and others, are
concerned that the present Air Traffic Management (ATM) arrangements are less than
adequate to safely and efficiently handle this growing volume of traffic. The strain
under the excessive demand is evident: from observation of air traffic controller (ATC)
workload; from delays experienced within some current ATC sectors and at major
airports; and from the excessive and increasing number of incidents (due to
breakdown of aircraft separation) reported by the airlines.
Studies undertaken by Indonesia Infrastructure Initiative (IndII) and others, over the
last few years, have identified the need to revise both the route structure and the
sectorisation of the airspace. This is intended to help cope with growing demand (and
changing traffic requirements) by providing increased airspace capacity; to modernise
aspects of the airspace, which in itself should serve to improve capacity; and to more
closely harmonise it with adjoining FIRs and regional airspace plans.
However, there are two missing pre-requisites for a proper and satisfactory revision of
the route structure and ATC sectors. These are: a Concept of Operations (CONOPS) that
will provide a policy level definition of the standards and practices to be used in
Indonesian airspace; and accurate and detailed information concerning the current
route and airspace demand and capacity. The first of these pre-requisites defines the
rules to be used in re-designing the routes and sectors; the second provides data on
two of the most important (in the context of design) parameters of the routes and the
airspace demand and capacity.
As a precursor to any full project activity and to provide an effective scope of work, a
scoping study was undertaken by Strategic Airspace under contract to IndII. The scopes
of work for each of the three proposed projects were to be delivered by two
interdependent projects (IndII Activities #289 and #290). This report is the result of
both of these projects.
The required deliverables included terms of reference and contextual information to
support the Scope of Work for the development of:
Project : IndII Activity #289
i.
A Concept of Operation (CONOPS) for the future Air Traffic Management (ATM)
system for Indonesian airspace; and
ii. A Resectorisation Plan for Indonesian airspace, including a re-design of the

underlying air route structure. As well as developing a complete new design for
Indonesian airspace and route structure, together with a recommended plan for
the implementation of that design, this project is intended to develop the
vii
capability for airspace change, including all the processes necessary for the aviation
agencies to implement those changes.
Project: IndII Activity #290

iii. An Airspace Capacity Analysis project that is also intended to develop the
capability for capacity analysis within the Indonesia aviation agencies. This project
is intended to use Fast Time Simulation (FTS) and other metrics to measure the
demand and capacity of current and proposed air routes and ATC sectors. The
scoping study was therefore to include discussion of FTS and other demand and
capacity metrics.
Because both projects had overlapping subject domains and had common
stakeholders, the two projects were initiated within close proximity of each other and
had compatible project durations. As Strategic Airspace was the contractor for both
projects, the two projects were conducted as one overall project (but with key subprojects to satisfy the contract requirements).
There is considerable urgency for all of these projects:
The formation of a new single air navigation service provider (ANSP), formally
initiated towards the end of the scoping study, gives high importance and
considerable urgency to the development of a Concept of Operations (CONOPS).
This new entity will take on all the ATM functions, including ATC and airspace
management, which are currently distributed across three organisations including
the Directorate General of Civil Aviation (DGCA). The CONOPS is needed during the
formation period of the new ANSP as it will describe, at a policy level, the operation
of the new organisations core business; this can assist in defining the structure of
the new business. As well, because the CONOPS is a pre-requisite for the Resectorisation project, some of the urgency for the CONOPS project derives from
that project.
The imperatives for air route and airspace sector re-design are safety and
efficiency. It is considered that the congestion of aircraft in some ATC sectors is
already exceeding safe levels on a regular basis. The present route structure is outdated; it doesnt support current traffic patterns or demands, and demand is
increasing at over 8% per annum. All segments of the aviation market are growing
rapidly: domestic is growing exceedingly fast; the rate of international will increase
once the ASEAN Open Sky becomes effective in 2013; and over-flights from/to
numerous countries are increasing because the Asian economies are booming. The
upper airspace has a mix of over-flights, between numerous FIRs including
Australia, as well as an increasing number of domestic and international arrivals.
Thus, Australian travellers are directly affected by the diminishing safety as
demand and traffic complexity increases. For these reason the Re-sectorisation
project is urgently needed. The existing Indonesian aviation agencies are aware
that airspace changes are needed and they have independently initiated some
airspace sectorisation and route re-structuring projects to attempt to tackle these
viii
issues. However, they lack the expertise, resources and / or tools to successfully
complete these projects.
The Indonesian aviation agencies are aware of the airspace and air route
congestion problems. They have grappled with the means of measuring capacity
versus demand (that is, the level of congestion) as part of their re-sectorisation
efforts. However, they do not have the tools (for example, Fast Time Simulation
software) or expertise to accurately measure capacity and to model alternatives.
This is the objective of the Capacity Analysis project: to provide the tools and
expertise to develop the capability for capacity analysis within the local agencies.
One of the primary objectives of each of these projects is to develop capability so that
the Indonesian agencies can undertake studies and projects of a similar nature in the
future (they will need to do this because of changing technology and growing and
changing demand patterns). Such ongoing improvement of airspace usage and ATM
arrangements is a concern for ATM organisations worldwide. As part of the
development of capability, areas such as airspace change management (including risk
assessment and the preparation of safety cases) are included in the catalogue of skills
that need to be developed and fostered. There are shortcomings in these areas at the
moment and these processes are needed for the proposed IndII projects and for future
Indonesian agency projects.
The need to include the development of capability within these projects also stems
from the fact that some of the tasks involved in these projects are iterative; so to
completely study all details (of capacity) or implement all changes (of air route or
airspace) may take longer than is a sensible timeframe for these projects.. It also makes
the most sense in terms of delivering longer-term benefit and return on future aid
funded investments. The Scopes of Work (SOW) that have resulted from this
consultancy (delivered as separate documents) incorporate the capability development
objectives within each project scope.
There are many factors that may influence the conduct of these projects. Some of the
more important are:
Changing Roles of the Aviation Agencies: the new single ANSP is one of the major
clients of these projects;
Changing ATM technology: the current JAATS air traffic control system used for the
western half of Indonesian airspace will be replaced by a temporary system while a
new system is sourced;
New navigation technology: the introduction of Performance-Based Navigation

(PBN), which is in its infancy in Indonesia at the present time; this offers greater
flexibility in route design and will give more harmony with regional plans, and it
also provide compliance with global standardisation; and
Introduction of Air Traffic Flow Management (ATFM) and Collaborative Decision

Making (CDM): this is seen as a means of coping with congestion problems but
would be best done after attacking the underlying problem of the route structure
and ATC sectorisation.
ix
The timeframes for the two pre-requisite projects (CONOPS and Capacity Analysis) are
about the same between 4 to 6 months to complete each of them. As they are
independent of each other they could run in parallel. The Concept of Operations
project will also deliver early benefit during the formation of the new ANSP. The third
project, Re-sectorisation, delivers the major benefits of safety and efficiency
improvements and so it is desirable to commence this project as early as practicable. It
is estimated that the Re-sectorisation project would require approximately 9 to 12
months. Hence all three projects, if run optimally, could be completed within an overall
timeframe of 15-18 months.
A summary of the estimated timing and costs (including travel, accommodation and
overheads) for the three projects is provided in the following table. The costs are based
on IndIIs current standard rates.
Table 1: Summary of Required Resources and Estimates of for the Proposed Projects
Order
1
Project
Estimated Effort & Timeframe
Concept of
Operations
Effort
Budgetary Estimates
Consultants: ... AU $365,000
Consultants: 9 person mths

Plus additional time for:
Project Management by
Consultant
A local consultant
Capacity
Analysis
Elapsed: 4-6 months
Effort required is estimated to be

11 person months plus some
time for a local consultant and
project management.
Re-sectorisation
The elapsed time for the project

is estimated to be no less than
6 months.
Effort required is estimated to be
18 person months plus some
time for a local consultant and
project management.
The elapsed time for the project
is estimated to be no less than
9-12 months;

Software Licence:AU $250,000
Training*: .......... AU $30,000
(by vendor, excluding travel
costs)
Figure 1: Proposed Project Indicative Schedule
xi
CHAPTER 1: INTRODUCTION
The IndII-sponsored Indonesian Air Traffic Management Master Plan was completed in
2011. Following on from this, the Directorate General of Civil Aviation (DGCA) selected
several projects indentified in the Masterplan as having high importance and urgency.
These projects were: the development of a policy level Concept of Operations; a review
of ATC Sectorisation to improve safety and efficiency; and the analysis the airspace
capacity including implementation of Fast Time Simulation tools and metrics.
Figure 2: Relationship of Proposed Projects with ATM Masterplan
Subsequently, IndII initiated two projects (IndII Activity #289 and Activity #290) to
develop Scopes of Work for future projects intended to address these identified needs.
These projects are referred to in this report as the Scoping Study and the projects they
provide the scope for are referred to as the Proposed Projects.
Strategic Airspace successfully tendered for both projects that make up the Scoping
Study. Because both the study team and the subject domains for the two Scoping
projects overlap, in some contexts within this report the two projects are considered
and referred to as one single project.
This report includes:
various findings of the project team, as follows;

o an assessment of the underlying needs for, and expected benefits of, the
Proposed Projects;
o an assessment of stakeholders perceptions of the need for the Proposed
Projects;
INDONESIAN AIRSPACE
SECTORISATION, CONOPS & CAPACITY
STUDIES - Final Report
o the attitudes of the primary stakeholders (those who will be involved in some
substantial way with Proposed Projects) towards the Proposed Projects;
o the potential risks associated with each of the Proposed Projects;
o the rationale for the way the Scopes of Work have been framed;
other background information that may be useful to the consultants undertaking

the Proposed Projects; and
a summary of how the Scoping Study was conducted.
The report also includes a discussion on Metrics and Performance Indicators for
airspace and ATM system performance that might be used to assess the outcomes of
capacity analysis, re-sectorisation and revision of the route structure. This was called
for in the briefs for each of the Scoping Studies.
1.1
RELATIONSHIPS OF PROPOSED PROJECTS
Each of the Proposed Projects, and the relationship between them, is briefly
summarised below:
Revision of the Route Structure and ATC Sectorisation this project is necessary to
ensure safety and improve efficiency as demand increases. This project will
effectively initiate the modernization of Indonesian airspace and Air Traffic
Management. This project includes the re-design of all airspace and the route
structure for both FIRs and developing the procedures for the implementation of
the results. The timeframe for the implementation will be longer than lifetime of
the proposed IndII-sponsored project.
This Proposed Project is to be supported by the other two Proposed Projects in the
following ways:
o The scientific determination of both current and future capacity and demand is
a necessary decision support tool for the envisaged route re-structure and resectorisation. The capability to effectively use this decision support tool is to be
developed by Capacity Analysis project;
o Changes to both the route structure and sectorisation should take place within
the framework of commonly accepted policies and standards that are
harmonised with adjacent FIRs. The common policies and standards should be
defined in a Concept of Operations.
Both these supporting projects are outlined below.
Development of a Concept of Operations for Air Traffic Management.

There are many different ATM development plans favoured by different sections of
each of the aviation agencies. These have been inconsistent in the past leading to
the development of incompatible systems. Over the long term this compromises
INDONESIAN AIRSPACE
safety and diminishes efficiency. The inconsistencies develop because decisions

have been made without prior agreement between agencies on objectives, policies
and standards between agencies. The existence of a Concept of Operations
(referred to as CONOPS) would help to integrate plans by providing a common or
shared vision for the future ATM system and a framework within which the
consistency of decision making is assured.
An additional imperative and a cause of considerable urgency for this project is the
formation of the new single ANSP to manage ATM in both FIRs; the Concept of
Operations will assist in defining operational concepts for the new ANSP. Hence, in
one sense, the new single ANSP is the primary client for this Proposed Project.
Development of Capacity Analysis Capability.

The capability to scientifically analyse demand and capacity of the route structure
and ATC sectorisation (with respect to the current and future operations, fleet
capability and schedules) will help to identify and prioritise current problems in the
route structure and support planning for route changes and re-sectorisation. It will
also be needed to support planning for terminal area and airport operation
improvements. The need for Capacity Analysis will be ongoing throughout the Resectorisation project and for future projects. Therefore the primary objective of
this project is to develop the capability for Capacity Analysis within the Indonesian
aviation agencies through the transfer of technology (software), expertise and
knowledge.
1.2
SCOPING STUDY OBJECTIVES
This Scoping Study set out to achieve the objectives shown in the following table.
Table 2: Strategic Airspace Approach to the Task
Our Aim
Achieved?
Where
Define the roles of each of the aviation agencies in the

Indonesian environment and the relationships between
them;
Yes
Chapter 2 Context
Identify the stakeholders at various levels (executive and

operational) within the pertinent organisations that will be
required for development of each of the projects.
Yes
Annexe 3 Stakeholder
Engagement Plan
Define the timescale for the CONOPS, the

Resectorisation project and the Capacity Analysis
project.
Yes
Chapter 5 Project
Implementation
Describe the relationships between the CONOPS,

Resectorisation and Capacity studies.
Yes
Chapter 1 Introduction
and
Chapter 5 Project
INDONESIAN AIRSPACE
Our Aim
Achieved?
Where
Implementation
Refer to other CONOPS / Resectorisation Plans and

relevant standards for any required comparisons,
compatibility and (potentially) gap analysis. For example
reference should be made to the ICAO Global ATM
Operational Concept.
Yes
Various
Refer to national and international standards as

appropriate.
Yes
Various
Define the expected contents of the CONOPS

document.
Yes
CONOPS SoW
Define the expected outcomes of Re-sectorisation

project.
Yes
Resectorisation SoW
Define the expected outcomes of Capacity Analysis

project.
Yes
Capacity Analysis SoW
Define the Airspace Performance Metrics expected to be

applied for the Resectorisation project.
Yes
Chapter 6 Metrics &

Key Performance
Indicators
Define the expected update cycle of the outputs from

both projects.
Yes
Various
Give an outline of the types of personnel (in terms of

knowledge, skills and experience) required for each of
the projects.
Yes
Chapter 5 Project
Implementation
Give an estimate of the expected time for completion of

each of the projects.
Yes
Chapter 5 Project
Implementation
Provide an indication of the budget for each of the

projects.
Yes
Chapter 5 Project
Implementation
Describe the potential benefits of each of the projects.
Yes
Various
Describe any perceived risks inherent in each of the

projects.
Yes
4.5 Risk Profiles

ANNEXE 1: Strengths,
Weaknesses & Threats
INDONESIAN AIRSPACE
CHAPTER 2: CONTEXT
CHAPTER 2: CONTEXT
Globalisation is not only a driver for economic growth and development: it also affects
the implementation of the technical standards in many industries, including aviation.
Thus, there is a requirement to contribute and comply with international standards
primarily, ICAO Standards and Recommended Practices (SARPs).
While it is necessary for individual States to comply with globally accepted aviation
standards and to integrate with a global Air Traffic Management (ATM) framework, it is
essential that this task is undertaken in a way that recognises the unique geo political
factors of the region as well as national and organisational cultures.
The following contextual information is provided as background for any assessment of
work required to complete a review and implementation of airspace changes, and for
the introduction and implementation of a Concept of Operations.
The Republic of Indonesia has a thriving economy with a rapidly expanding aviation
sector. In terms of air traffic, it has a large and growing domestic fleet and increasing
international traffic including a large number of overflying aircraft. Its geographic
nature, being the worlds largest archipelago, and its location at the crossroads
between south-east Asia and Oceania provide a challenging environment for Air Traffic
Management.
2.1
GEOGRAPHY
The IndII-sponsored Open Sky Stage 21 report provides the following succinct
description of the Indonesian geographic archipelago:
Indonesia is the biggest archipelago in the world consisting of some 18,000
islands over an area of 5,110 km from east to west and 1,800 km from
north to south. Its unique geographical situation, lack of surface
infrastructure, large and growing population and ongoing economic
prosperity continues to increase the countrys propensity to fly, making it
one of the fastest-growing countries in terms of air traffic demand in the
world.
The Indonesian airspace is split into two Flight Information Regions (FIRs), as depicted
in Figure 3 (page 10). The (western) Jakarta FIR is managed from the Jakarta ATC
Centre, and the (eastern) Ujung Pandang FIR is managed an ATC centre in Makassar.
The figure provides an overview of the current route structure in the two (2) FIRs and
http://www.indii.co.id/upload_file/201205091605550.National%20Strategy%20for%20the%20Implement
ation%20of%20ASEAN%20Open%20Sky%20Policy%20Stage%202%20%20Final%20Report.pdf
INDONESIAN AIRSPACE
also illustrates the extent of over-flight routes through the Indonesian airspace to/from
the 10 adjacent FIRs, which are managed by other States.
Figure 3: Indonesian FIR Boundaries
Source: DGCA
2.2
POLITICAL AND ORGANISATIONAL
Air Traffic Management is currently provided by three primary agencies supported by a

separate training college. The primary delivery of services is undertaken by two stateowned enterprises and an element of the Directorate General of Civil Aviation
regulated from within the Ministry of Transport (MOT) by the Director General of Civil
Aviation (DGCA).
The state-owned enterprises are Angkasa Pura (formerly Angkasa Pura I, AP I), which
provides services within the Ujung Pandang FIR from Makassar (with head office in
Jakarta); and Angkasa Pura II, which provides services within the Jakarta FIR (head
office at Soekarno-Hatta International Airport). Both organisations manage not only
the airspace but also own and operate all services at the major aerodromes within
their respective FIRs.
The Boards of Directors of both AP I and AP II are responsible to the owner through the
Minster of State Owned Enterprises (MSOE). The provision of Air Traffic Management
INDONESIAN AIRSPACE
CHAPTER 2: CONTEXT
is not the primary business of the Angkasa Pura: the primary business is managing the
major airports
The Sanskrit term Angkasa Pura translates literally into English sky city or airport.
Because this of the issues and problems of demand and capacity are sometimes seen
as issues relating to the airports, not aerodromes or airspace.
Although the DGCA is the State regulator, it is not an entirely independent regulator
because it provides a variety of services including: operation of some airports (some of
which it also owns); air traffic services at many aerodromes that are not serviced by
AP I or AP II; and Aeronautical Information Services.
Figure 4: Indonesian Aviation Agency Overview Current Situation
In addition to the above, there are an unknown (relatively small) number of private
services associated with large mining sites. These services are not, at present, subject
to any regulatory oversight; they probably only consist of some form of flight following
and SAR alerting service.
As there is an international commitment by Indonesia to the reduction of carbon
emissions the Ministry of Environment is both interested and involved in aerodrome
and airspace management.
The Military have responsibility for aerodromes and restricted airspace for military
training and other operational purposes. There is little or no history of cooperation
with the civil agencies in regard to airspace usage or management.
INDONESIAN AIRSPACE
In September 2012, the President signed Law 22, 2012 which created a new Air
Navigation Service Provider (ANSP) that will take-over all ATM functions currently
performed by AP I, AP II and DGCA. AP I and AP II will remain as airport operators, and
DGCA will retain its regulatory functions.
This provision of a single regulator that is decoupled from service provision is a
recommendation of the International Civil Aviation Organisation (ICAO) and is the
model used by the vast majority of ICAO Contracting States
The complete transfer of ATS to the new organisation is planned to take two years.
Following this transfer, AP I and AP II will continue to operate as airport management
organisations. Whilst the transition process and transfer of functions may not provide
the ideal environment for conducting the Proposed Projects completion of the
Proposed Projects as early as possible will provide better information and a more
certain basis for tasks for the new ANSP.
Figure 5: Indonesian Aviation Agency Overview Future (Post-Transition)
2.3
AIR TRAFFIC MANAGEMENT
The characteristics ATM in of each the FIRs are briefly described below.
2.3.1 Characteristics Common To Both FIRs
The current air route structure has not been updated for many years and is based on
historical traffic requirements and design concepts. Because of this it is not able to
effectively or efficiently support current traffic requirements. The route structure is
INDONESIAN AIRSPACE
CHAPTER 2: CONTEXT
mostly based upon conventional navigation using ground based navaids as the start
and end points of routes.
Jakarta terminal area acts as hub for most domestic airline traffic. Most of the airspace
congestion problems exist with 200NM of Jakarta as this is one of the main hubs. This
congestion is not surprising as four of the worlds 21 busiest air routes, terminate at
Jakarta. Soekarno-Hatta is not in the top thirty airports in terms of movements but it is
the ninth busiest in the world by passengers per annum. The relative size of traffic
densities for city pairs linked with Jakarta is illustrated in Figure 6 below (the diagram
was provided by Jakarta Area Control Centre).
There is a Performance Based Navigation (PBN) plan but it is only in the very early
stages of implementation. The route structure might be less congested with the use of
more PBN routes because of the flexibility and reduced separation standards it offers;
however, at present there are only a few RNAV high level routes for over-flights, some
RNAV SIDs and STARs and some RNP and RNP-AR approaches (recently published, but
not yet implemented).
The international air routes, in some cases, share the underlying domestic structure.
There are hot spots in terms of traffic delays and conflict points within the upper
airspace. The trend to more congested upper airspace will continue with the growth in
traffic unless the route structure is revised. The route structure is inhibited by military
restricted airspace which is rarely shared with civil traffic. The air route structure for
both the Jakarta and Makassar FIRs is published in the Indonesian AIP.
The busiest ATC sectors are around Jakarta as the busiest routes terminate there. Table
5 Jakarta FIR Sector Traffic for September 2011 provides an example of traffic
movements within the current sectorisation for Jakarta FIR.
Figure 6: Traffic Density Comparison
Source: Jakarta Airspace Management and Flow Management Proposal 2012, AP II
INDONESIAN AIRSPACE
2.3.2 Air Traffic Management - Jakarta FIR

AP II, based at Soekarno-Hatta International Airport (SHIA), provides ATM within the
Jakarta FIR controlling both domestic and international traffic including over-flights.
The Jakarta Air Traffic Control (JATC) is responsible for providing Air Traffic Control
services within seven sectors as shown in Table 3 below and is also responsible for all
aerodrome control functions at SHIA. AP II is also responsible for the management of,
and providing ATS for, 11 other airports within the Jakarta FIR. These airports are listed
in the table below.
Table 3: Airports that AP II Operates
Airport Name
10
Airport Location
SOEKARNO-HATTA
JAKARTA (CGK)
Polonia
MEDAN (MDN)
Sultan Syarif Kasim II
PEKANBARU (PKU)
Supadio
PONTIANAK
Minangkabau
PADANG (MKB)
Sultan Mahmud Badaruddin II
PALEMBANG (PLB)
Husein Sastranegara
BANDUNG (BND)
Halim Perdanakusuma
JAKARTA
Sultan Taha
JAMBI (JMB)
Sultan Iskandar Muda
BAND ACEH (SIM)
Raja Haji Fisabilillah T
TANJUNGPINANG (TJP)
Amir Depati
L nut PANGKA
INDONESIAN AIRSPACE
CHAPTER 2: CONTEXT
Figure 7: Current Jakarta FIR ATC Sectorisation
Source: AP II
Figure 8: Proposed Sectorisation Jakarta FIR
Source: AP II
INDONESIAN AIRSPACE
11
Figure 8 above shows AP IIs plan for a revision of the sectorisation of the Jakarta FIR.
This plan has been developed because of concerns about safety and efficiency. The
proposed sectorisation sub-divides some of the busiest current sectors in an attempt
to reduce ATC workload to more acceptable and safer levels. Modelling based on
international experience is likely to show an increase in workload.
The proposed changes do not include any changes to the underlying route structure.
While AP II has done considerable work on the proposed sector changes they are not
yet approved by DGCA because there are insufficient trained controllers to man the
proposed 11 sectors (there are currently 7). As well, there are insufficient workstations
with the current JAATS system to safely support the proposal; this will be rectified
when the EJAATS system becomes operational. The assertion that workload would be
decreased and safety increased is not supported by any FTS capacity analysis. Further,
a Safety Case has not yet been prepared for the proposed changes.
Figure 9 below provides an illustration of the Jakarta FIR air routes for both domestic
and for international flights.
Figure 9: Air Route Structure Jakarta FIR
Source: AP II
12
INDONESIAN AIRSPACE
CHAPTER 2: CONTEXT
2.3.3 Air Traffic Management Ujung Pandang FIR

Angkasa Pura (AP 1), based at Bandara Hasanuddin International Airport (BHIA), in the
City of Makassar, provides ATM within the Ujung Pandang FIR controlling both
domestic and international traffic including over-flights. It controls both domestic and
international traffic within and transiting the FIR except for a small low level portion
released to Timor Leste. The Makassar Air Traffic Control Centre also provides all
aerodrome control functions at BHIA. AP I is also responsible for the management,
including ATS, of 12 other airports within the Ujung Pandang FIR. These airports are
listed in the table below.
Table 4: AP I Makassar Airports
Airport Name
Airport Location
Bandara Ngurah Rai
Denpasar (DPS)
Bandara Juanda
Surabaya (SUB)
Bandara Hasanuddin
Makassar (MKS)
Bandara Sepinggan
Balikpapan
Bandara Frans Kaisiepo
Biak
Bandara Sam Ratulangi
Manado (MDO)
Bandara Syamsudin Noor
Banjarmasin
Bandara Ahmad Yani
Semarang (SMG)
Bandara Adisutjipto
Yogyakarta (JOG)
Bandara Adisumarmo
Surakarta
Bandara Selaparang
Mataram
Bandara Pattimura
Ambon
Bandara El Tari
Kupang
The Makassar Air Traffic Control is responsible for the airspace shown below. Air Traffic
Control services are provided from within five sectors.
INDONESIAN AIRSPACE
13
Figure 10: Ujung Pandang Current Sectorisation
Source: AP I
Due to increases in traffic and the need to address conflict areas that are generating
ATC incidents, there is a proposal to resectorise the airspace, sub-dividing the busiest
sectors, and create two additional sectors. The status of this project was not
established during the scoping study. The proposed new sectorisation is shown in
Figure 11 below.
Figure 11: Proposed Sectorisation for Ujung Pandang FIR
Source: AP I
14
INDONESIAN AIRSPACE
CHAPTER 2: CONTEXT
2.4
COMMUNICATION, NAVIGATION AND SURVEILLANCE (CNS)
The Jakarta Air ATC System (JAATS) consists of flight data and radar data processing,
voice communications, and aeronautical information systems. The systems are old and
are due for replacement; some of the ATC workstations are unserviceable. An
emergency system called EJAATS is under construction and should be commissioned
in November 2012 to ensure safe continuity of service whilst a more comprehensive
system replacement is acquired. This interim system will be more capable than the
present system; utilising flight and surveillance data to better advantage. For example,
the current system is not able to simultaneously process ADS-B data with the radar
data; this will be resolved with EJAATS.
The Makassar Air Traffic Control System (MAATS) is a Thales flight data and
surveillance data processing and display system. It is much newer that the JAATS and is
able to swap data with The Australian Advanced Air Traffic Control System (TAAATS);
however, it does not interface as well with the current JAATS system. This gap in
capability should be addressed when the new EJAATS system becomes operational.
This will alleviate some of the current coordination issues between Jakarta FIR and
Ujung Pandang FIR.
The route structure is based on ground based navigation; satellite based navigation is
only utilised (in the route structure) for some over-flights. PBN is only just being
introduced with some RNAV SIDs and STARs recently introduced at CGK, a few RNP
APCH approaches and some operator specific RNP-AR approaches at Manado and
Ambon.
There is electronic surveillance data servicing all IFR flight operations except those in
the Oceanic Airspace to the south and some areas over Papua (Figure 12 below
indicates the extent of ADSB Coverage for Indonesia; a radar coverage diagram was not
available for publication.) There are some issues with the use of this data; its quality is
questionable (availability and accuracy) and so for some of the busier routes
procedural separation standards are used despite the fact that radar coverage that is
available. The EJAATS commissioning should address some of these issues in the
Jakarta FIR, but may still be compromised subject to the extent of the availability and
accuracy of data).
INDONESIAN AIRSPACE
15
Figure 12: ADSB Coverage for Indonesia
Source: PBN Implementation and CNS Infrastructure, 2010, DGCA

There is almost complete VHF radio coverage of the major air routes. There are some
exceptions to this including some areas in the east, some oceanic airspace, and some
areas of Papua. Figure 13 below is sourced from the ATM Master plan and shows the
coverage at or above FL245. There are some planned extensions to VHF
communications.
Figure 13: VHF Coverage for Upper Airspace
Source: ATM Master Plan, Figure 22, IndII
16
INDONESIAN AIRSPACE
CHAPTER 2: CONTEXT
2.5
AVIATION ACTIVITY
Aviation in Indonesia is already substantial and is growing at an annual rate of 8.4%.

There are over 16 domestic airlines and a significant number of international operators
operating into, and overflying, Indonesia. There is also a growing number of general
and charter movements with activities such as aviation training and fly-in / fly-out for
mining.
A more comprehensive analysis of traffic and passenger numbers can be seen in the
Open Sky report, sponsored by IndII in 2011 and available on the IndII web site
(http://www.indii.co.id/). A graph from that report showing the forecast growth of
movements is shown in Figure 14.
Figure 14: Growth in Public Transport Movements
Source: IndII Open Sky Policy Stage 2 Final Report (Figure 86)
Currently some city pairs, and the surrounding ATC sectors, are overloaded for some
parts of the day.
As Jakarta acts as a hub for most domestic traffic, there are significant delays for
departures and arrivals with demand far exceeding both the airspace and ATC capacity.
Four of the top 21 busiest routes worldwide (in 2011) terminate at Jakarta2. These
routes are: Jakarta-Singapore (10th busiest); Jakarta-Denpasar (12th busiest); JakartaSurabaya (19th busiest) and Jakarta-Medan (21st busiest).
Source: Centre for Aviation - http://centreforaviation.com/analysis/the-worlds-top-ten-routes-are-inasia-58178
INDONESIAN AIRSPACE
17
Table 5: Jakarta FIR Sector Traffic for September 2011
Meaning: Rata-Rata per Hari Average Movements Per Day

Source: Jakarta Airspace Management and Flow Management Proposal 2012, AP II
A more efficient air route structure and consequent ATC sectorisation are perceived to
be urgently required to cope with the growing demand. Other changes including
improved ATC procedures and new systems are also needed to assist the ATM system
to handle the growth in demand.
18
INDONESIAN AIRSPACE
CHAPTER 3: STAKEHOLDERS
3.1
INTRODUCTION
The description of methodology used in the scoping study (see 0) provides an outline
of the workshops conducted and presentations delivered. Additionally, individual and
group meetings were held with staff from DGCA, AP I and AP II and the airlines. The
attendees of all workshops, presentations and stakeholder meetings are recorded in
the stakeholder management spreadsheet. This contains the details of each
stakeholder involved in the study. The approach to stakeholders is discussed below.
3.2
OVERVIEW OF STAKEHOLDER MANAGEMENT
Stakeholder management involves not only the planning of objectives, having a clear
engagement strategy and identifying stakeholders but also listening to all stakeholder
concerns and influencing key stakeholders to ensure success of the proposed project.
To fulfil the requirements of this scoping project and to begin the process of IndII
working with stakeholders for the proposed projects the objectives were as follows:
1. To identify key stakeholders within DGCA, service providers, and critical users of
airspace; as well as to use their knowledge to identify risks, issues, and
requirements in airspace management and airspace capacity;
2. To assess attitude or orientation of the key stakeholders towards the need for the
projects and to attempt to influence them towards a positive position; and
3. To obtain viewpoints from the prospective participants in the projects as to how
the implementation of the projects might be undertaken to ensure their success
and to obtain maximum, and continuing, benefit for Indonesian aviation.
The last objective is critical to the success of the projects. Some previous projects have
not delivered successful outcomes from the point of view of the stakeholders in DGCA
and the ANSPs. This point was made by all the managers in the Directorate of Air
Navigation. Some of the early reluctance on the part of some stakeholders to
participate in the scoping study could be attributed to what are seen as failed projects.
For the purposes of this scoping study, key stakeholders are those people who have
direct influence upon, or will be directly affected by, the changes in airspace and
capacity management and have an interest in the development of a CONOPS. The
following classes of stakeholders are considered to be key stakeholder groups.
1. Users of ATM services: key staff of the major airlines and representatives of airline
associations;
2. Air Navigation Service Providers (ANSPs): In this case key staff within AP I and AP II.
Consideration also needs to be given to the fact that at the present time DGCA
INDONESIAN AIRSPACE
19
provides some Air Navigation services and, although only an embryo at the
moment, the new single ANSP;
3. DGCA as the Regulator: The primary stakeholder is the Directorate of Air
Navigation of DGCA but others, such as Air Transport, Airports and Airworthiness,
have an interest (in particular, in the CONOPS project). Note that Air Transport
Division was notified of the scoping projects although it was not directly invited;
4. Staff Associations: Including the representatives of both Air Traffic Service Officers
and Pilots associations; and
5. External (Foreign) Agencies & Industry Bodies: This includes the ICAO, the
Regulatory and ANSP agencies of adjacent FIRs and international aviation
organisations such as IATA.
3.3
KEY INDONESIAN STAKEHOLDER GROUPS
The key stakeholders are common to both projects (#289 and #290). The full details of
all stakeholders who participated in the scoping study are provided within Attachment
2. A summary of the key stakeholders and their attitudes to these projects is provided
below.
Table 6: Key Indonesian Stakeholders
Interest
20
Organisation
Orientation
Remarks
Regulator
DGCA
Positive
Very positive response from some in DGCA with

clear recognition of the need for route and sector
changes and the need for capacity analysis capability
from some in DGCA. Not everybody understands the
need for change for both efficiency and safety
possibly this anomaly is due to internal politics.
ANSP
AP II
Positive
Expressed concern regarding current workload, traffic

complexities and densities and requires assistance in
demand and capacity measurement and
management. Good attendance and enthusiasm at
workshops and meetings but this enthusiasm
diminished later in the project. Hoping for
improvements from the implementation of Flow
Management.
AP I
Positive
Despite repeated invitations, AP I did not participate

much in the early part of the assessment. Later they
started to show keen interest and have factored the
proposed projects into their forward planning. They
have similar needs to AP II.
New ANSP
Unknown
The major client of the Proposed Projects, however,

unknown structure and attitudes as only working
INDONESIAN AIRSPACE
Interest
Organisation
Orientation
Remarks
groups to set up organisation exist at the time of
writing. The new ANSP may not have sufficient
operational staff in the early stages of the Proposed
Projects to influence the projects.
Users
Staff
Representatives
3.4
Lion Air
Positive
Will cooperate with any changes that make it simpler

and reduce airborne delays.
Garuda
Positive
Concerned about the traffic densities and the

consequent safety implications. Very concerned that
the number of incidents is increasing year on year.
They expressed a willingness to cooperate with any
changes that address these issues.
IATCA
Positive
ATC staff want to have more tools to be able to

measure and control capacity to support resectorisation
INACA
The airline industry supports any change that will

simplify air routes and provide additional capacity
FPI
Pilots association supports and wants to see that

ATC staff have the appropriate training on any new
equipment or procedure.
EXTERNAL ATM AND FOREIGN AGENCIES
The Australian Government involvement in aviation infrastructure and safety initiatives

in the Republic of Indonesia is quite clear and all agencies cooperate to ensure that
there is no overlap and the agencies work well together.
There is interaction between Airservices Australia and AP I and AP II on operational
matters concerning the interaction between Australian and Indonesian FIRs. This is
outlined in Table 7 below. The degree of interaction with ANSPs from other adjacent
FIRs is unclear.
Table 7: Australian Aid & Support Organisations working within the Indonesian ATM
Framework
Sponsoring Organisation
Participant Organisation
Remarks
INDII Indonesia Infrastructure

Initiative.
Selected by competitive tender

from within a preregistered pool
of Companies and Consultants
To promote economic growth by

working with the Government of
Indonesia to enhance
infrastructure policy, planning
and investment. This includes
aviation infrastructure.
(AusAID Project managed by

SMEC)
INDONESIAN AIRSPACE
21
Sponsoring Organisation
Participant Organisation
ITSAP Indonesia Transport

Safety Assistance Package
Civil Aviation Safety Authority

(CASA)
Managed by The Department of

Infrastructure and Transport.
Airservices Australia
AMSA
Remarks
ITSAP provides technical and
training assistance to support
Indonesia in addressing its
aviation, maritime and road
transport safety challenges.
ATSB
Other Australian Consultants
and companies employed
through the above agencies.
Airservices works directly with

AP I and AP II on operational
matters concerning the interface
between Australian and
Indonesian FIRs.
The extent of the involvement of non-Australian foreign agencies has been difficult to
determine because of the lack of cooperation from some agencies. There is a strong
chance of overlap and duplication of projects with the non-Australian foreign agencies.
The proposed Concept of Operations, once completed and approved by the DGCA,
would be one effective mitigation against the risk projects from competing aid
agencies providing conflicting outcomes.
The following table provides an assessment of the known involvement of external
agencies. The ICAO involvement is well understood as current ICAO projects running on
site are well understood and integrated into the activities of both IndII and ITSAP.
Table 8: External Agencies (other than Australia)
Entity
Government of Japan
United States of America

(Government & Commercial)
Organisation
JICA
Orientation
Neutral
Historically secretive and unwilling to

integrate activities
FAA
Positive
IASA (under FAA)
Supportive with keen interest by FAA

regarding Safety Management.
Commercial orientation by vendors
TSA
NTSB
Boeing
Jeppesen
22
INDONESIAN AIRSPACE
Entity
France (Government &
Commercial)
Organisation
Orientation
DGAC
Neutral
Thales
Support for Commercial vendors
Unknown but understood to be active in

transport sector
Neutral
Commercial orientation. No obvious

signs of cooperation with other agencies
LVNL
Unknown
NLR
Provides support to CURUG Indonesian

aviation training college.
Regional Office
Positive
COSCAP
Engaged with ITSAP and IndII activities.
Local
representative
Positive
Interest in safety and efficiency
Australia
Unknown (Except Australia and USA)
Singapore
Operational level engagement with AP I

/ APII and DGCA.
Airbus
Peoples Republic of China
Government of Sweden
Government of the Netherlands
ICAO
LFV
TCB (onsite
project)
IATA
Adjacent State FIRs
Malaysia
Papua New Guinea
Philippines
United States
India
Sri Lanka
3.5
STAKEHOLDER ASSESSMENT
The stakeholder assessment, given in the following diagram (Figure 15), takes into
account the strength of support or otherwise (orientation) towards the proposed
projects and the levels of influence they have on the success (Criticality to Success) of
the proposed projects. For the purposes of this report, the organisations and / or staff
identified in paragraph 3.3 (Key Indonesian Stakeholder Groups) and the Australian
Government sponsored organisations identified in paragraph 3.4 (External ATM and
INDONESIAN AIRSPACE
23
Foreign Agencies Table 8) are considered to be key stakeholders and able to impact
the success of the prospective projects. The rationale for including the Australian
stakeholders can be found in the level of risk exposure the Australian Government may
be exposed to given any adverse safety outcomes within Indonesian airspace.
Figure 15: Stakeholder Assessment Grid
Resistant
Other
Foreign
Neutral
IATA/
ICAO
Regulator
US/FAA
Staff
Low
Medium
ANSP
Airlines
SUPPORTIVE
IndII/ITSAP
HIGH
Criticality to Success
24
INDONESIAN AIRSPACE
CHAPTER 4: KEY FINDINGS

4.1
INTRODUCTION
This chapter summarises the key findings of the project team. The summary is
presented in a number of tables that outline the characteristics of several dimensions
of the environment within which the Proposed Projects will be undertaken. The
assessment is simply the potential effect on the projects of each particular
characteristic. Comments are also made about particular aspects of the characteristic:
some are positive and some negative. Generally these comments are subjective
opinions formed during workshops or discussions with various stakeholders.
The dimensions explored in the following sections are:
The general context of ATM in Indonesia at the present time. This mostly
demonstrates the need for the proposed projects but also covers the possible
complexity involved because of the many changes taking place in the aviation
sector at present;
The capabilities of the Indonesian agencies. To affect the changes that are
necessary to complete the requirements of the Proposed Projects; and
The context of undertaking these projects as aid funded projects. This partly
discusses some impressions of difficulties encountered during the Scoping Project
where it is considered these may affect the conduct of the Proposed Projects.
4.2
ASSESSMENT OF INDONESIAN ATM CONTEXT
There is a lot of activity in ATM in Indonesia at the present time. The most important
single factor that will affect the proposed Projects is the formation of the single ANSP
to take over all ATM functions in Indonesia. There is the opportunity to provide
substantial assistance to Indonesian aviation through the CONOPS project as an
operational concept is urgently needed to assist in the orderly formation of the new
organisation. Discussions with advisors to the implementation of the ANSP have
confirmed the absence of a CONOPS and the urgent requirement for one in this
context.
Also of significance for the immediate future is the concern of inadequate safety levels
in some Indonesian airspace as traffic levels are exceeding the safe capacity of the
existing ATM arrangements in some locations. There are a variety of factors
contributing to this but some that can be improved include the airspace and route
structure as they are configured at the present time. This safety aspect and the
associated efficiency improvements is the subject of two of the Proposed Projects.
Other projects being undertaken locally may have some effect on the Proposed
Projects.
INDONESIAN AIRSPACE
25
Table 9: Indonesian ATM Context

Characteristic
Embryo single ANSP
Effect
Major opportunity but
considerable
uncertainty
Remarks
Opportunity to provide substantial benefit to
Indonesian aviation;
New ANSP is major (silent at present)
stakeholder with no operational functions for
some time;
Possibly some competition between sections of
AP I, AP II and DGCA.
Outdated airspace and

route structure
Driver for Capacity

Analysis and Resectorisation Projects
In some sectors safe capacity exceeded on a

regular basis this needs urgent attention
Route structure inappropriate for current traffic
demands
Route structure uses conventional navigation
Significant inefficiencies manifested as
delays both on the ground and in the air
have significant cost and environmental effects
Increasing air traffic

increasing demand for
scarce airspace
Current congestion
problems will get
worse further
diminishing safety and
efficiency
Estimated current 8% annual increase in

aviation sector;
Increasing workload on ATCO;
increasing demand for pilots to work extended
hours;
ASEAN Open Skys policy (starting in 2013)
will introduce more carriers
Major technology
changes pending
CONOPS needed to
ensure suitability and
uniformity; capability
could affect Resectorisation
Change from JAATS to eJAATs (emergencyJAATS) until new JAATS replacement is

sourced and commissioned. New JAATS
should be sourced using CONOPS
requirements;
ATFM and CDM under investigation
(separately) by both AP I and AP II seen as
partial solution to airspace congestion
problems;
PBN only in the earliest stages of
implementation still many regulatory and
operational requirements to be satisfied;
ADS-B ground stations in place but aircraft
fitment not yet mandated;
26
INDONESIAN AIRSPACE
Characteristic
Effect
Remarks
Limited experience in
some areas for vital
functions to implement
changes
Need to develop
capability including
procedures for
development, approval
and implementation of
changes
Very little or no experience the development of

safety cases and risk assessment for ATM
changes;
No experience in capacity analysis using FTS
or other metrics;
Limited experience in change management
generally;
Limited or no experience in route structure
changes;
Limited experience with the implementation
and regulation of PBN;
Disparate functions
and roles across all
three primary aviation
agencies
4.3
Possible difficulty
getting agreement
form stakeholders
Mitigated by formation of new ANSP
ASSESSMENT OF INDONESIAN AGENCIES CAPABILITIES
The Indonesian aviation agencies have some appropriate resources to attend to the
proposed changes, however, they are generally only available for such projects if they
work extra overtime. In some areas, however, they lack the expertise, experience and
tools needed to undertake the Proposed Projects. As well, with so much change taking
place at the present time resources are be stretched.
The factors outlined in the following table could or will have some effect upon the
Proposed Projects.
Table 10: Indonesian Aviation Capabilities
Characteristic
Significant
technical
competence within
agencies
Effect
Positive benefit if it
can be harnessed
and utilised in the
Proposed Projects
Remarks
Experience and expertise in ATM can be utilised by
proposed projects. It is envisaged that embedding
staff in the project team will provide project
resources, foster ownership by local agencies and
allow the projects to continue beyond the timeframe
(and funding) of the Proposed Projects.
Some of the Proposed Projects offer the potential for
staff to extend expertise and experience into valuable
new areas and enhance their CVs. This is a very
positive selling point for the Capacity Analysis project
and, to a slightly lesser extent, the Re-sectorisation
project.
INDONESIAN AIRSPACE
27
Characteristic
Significant
understanding of
the need for
airspace change
Effect
Driver for Proposed
Projects
Remarks
There is an appreciation of the urgent need to attend
to re-sectorisation for safety reasons particularly
from pilots (they feel their own and their passengers
lives are at risk) and ATC (their clients are at risk as
well as their careers). Efficiency is also a lesser and
mostly corporate consideration.
Existing projects for re-sectorisation are evidence of
this understanding. There is also an understanding
that the route structure needs updating including
introducing PBN.
These projects have been undertaken by operational
staff in their spare/extra time which probably
means they are more protective of these projects.
After enthusiastically presenting their proposed resectorisation, AP II were reluctant to have further
discussions.
It is generally recognised that capacity modelling is
needed to provide a scientific basis for both route
changes and re-sectorisation.
Lesser interest for

and understanding
of the need for
CONOPS
Potential impediment
to CONOPS
Because the benefit was seen to be longer term.
Lack of
understanding of
and experience
with risk and safety
management as
well as change
management
to Re-sectorisation
project
Existing re-sectorisation plans are not supported by a

safety case or risk assessment. This is part of the
reason they have not been approved.
Understanding of
and experience
with regulatory
approval
processes
to Re-sectorisation
project
4.4
Changed attitude because of the formation of the

new single ANSP. Now there is a very immediate
need for this project And an urgency to prepare a
CONOPS to help organise the business activities of
the new ANSP
Change management procedures are generally not

considered necessary by the Indonesian agencies.
There is a lack of understanding of regulatory

functions generally including the approval processes
for changes to ATM arrangements.
POTENTIAL FOREIGN AID CHARACTERISTICS AFFECTING THE PROJECTS
During the course of the Scoping Project there was some surrounding debate about the
reluctance of Indonesian agencies to work with aid agencies and about agencies not
28
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cooperating with each other. Some attitudes to aid projects are briefly outlined below.
These are generally restricted to attitudes that may affect the Proposed Projects.
Table 11: Potential Foreign Aid Characteristics & Effect on Projects
Characteristic
General attitude to
foreign aid projects
Effect
Unlikely to be a
problem for the
Proposed Projects as
most agencies
enthusiastic
Remarks
There was also some discussion about the
reluctance of some Indonesian agencies to
cooperate with aid projects. This could be for
the reasons outlined below.
There were some difficulties getting the
attention / support of some agencies /
managers during the Scoping Study.
Cultural differences and sensitivities may affect
the outcome of projects
NB: Australians appear to be well received by
most.
Uncoordinated
projects from different
aid agencies
Possible but unlikely

impediment
During the course of the Scoping Study there

was discussion between aid donors and
agencies in an attempt to coordinate efforts;
some aid agencies were unwilling to cooperate.
Some aid initiatives would appear to be
intended to gain commercial benefit for
companies from the donor state.
The duplication of effort and the attitude of
donor agencies can engender some suspicion
about foreign aid projects.
Some previous
projects seen as
failures (failure may
occur for a variety of
reasons ranging from
under-funding of
projects to lack of
cultural sensitivity)
Possible impediment
mostly for the
CONOPS project
because of its
relationship to the
ATM Masterplan
If some effort has been made by local agencies

and an aid project is perceived to be a failure
there may be a reluctance to make an effort for
the next project.
All managers dealt with in DGCA mentioned
the failure of previous projects where the result
didnt suit the current and evolving
circumstances. The IndII sponsored ATM
Masterplan is seen in this light. Consequently,
there was some initial suspicion about both the
Scoping Project and the Proposed Projects.
A project is more likely to receive support if:
o the products of a project are tangible.
o a project is perceived to be developing local
capability (knowledge / technology transfer).
Thus there is probably greatest local support for
the Capacity Analysis project followed by the
Re-sectorisation project.
INDONESIAN AIRSPACE
29
Characteristic
Effect
Some project
outcomes perceived to
be of little or no
benefit; therefore not
translated into
implementation
mostly for the
CONOPS project;
Capacity and Resectorisation have
more tangible outputs
and develop capability
Remarks
Lack of benefit possibly because results not
suited to organisational culture or relevant to
current circumstances.
Projects that appear to provide advice only are
less likely to be effective: there appears to be
an appetite for projects that produce tangible
results rather than just provide advice.
Stakeholders exhibited the least interest in the
CONOPS project, possibly because it is the
most abstract and has longer term benefit (ie,
less tangible now in relation to pressing
concerns). The inception of the new single
ANSP has changed this because it is
recognised that it will help in the definition and
organisation of the core business of the new
ANSP.
Desire to undertake
and complete tasks
without aid
4.5
possibly for the for
the CONOPS project
because an internal
ATM Masterplan is
being developed;
there may be some
sensitivities with
respect to the
sectorisation project
because of project
already initiated.
Natural reaction from some managers.

however, the key managers in DGCA and
some managers in the APs do not have this
attitude.
Some may be protective of (their own) existing
projects, including: DGCA/DAN ATM
Masterplan; proposed route changes; proposed
re-sectorisation; and PBN implementation
projects.
RISK PROFILES
4.5.1 Application of Risk Management for Change

Two aspects of the Indonesian environment that directly affect the application of risk
management are as follows:
there is either no effective method of assessing and stating the risk of any change
(either forced or prospective) or else, there is an existing method but, it is not
generally well known or understood; and
there is no birds eye view of the consolidated strategic risk profile versus the risk
appetite of organisations.
Both of these factors need to be in place to manage not only risk at an organisational
level but also to manage change; these two factors are very much interrelated.
30
INDONESIAN AIRSPACE
The development of a safety case should be a necessary part of both change and risk
management. Any future changes, such as airspace changes, should not occur unless
under the control of a recognised change management methodology, such as Project
Management, and subject to rigorous hazard analysis as part of a safety case.
4.5.2 Risk Exposure

An overall impression of the risk profile of both the regulator and the ANSPs was
gained during the scoping projects. Based on observations, the issues that have been
identified have been evaluated using a simplified failure mode analysis, as follows:
1. Some key issues and risks, observed during this project, have been identified and
analysed within Table 12 below. These are assessed against their perceived hazard
level.
2. The likelihood and consequence of each issue negatively affecting the organisation
has been (simply) evaluated. The hazard represented to the organisation has been
plotted against the standard risk matrix, which is derived from ISO/ASNZ 4360, and
is shown at Figure 16 below. Superimposed on this is the risk appetite is the ICAO
risk level of ALARP as the upper level of what should be the risk appetite for any
organisation in this industry. This is stipulated in ICAO Document 9859 as ALARP.
3. The level of control available for each of these issues/risks has been assessed. Note
that this assessment is based on feedback as a result of the discussions and
workshops and as well as personal observations and analysis and so should be
considered as order of magnitude or anecdotal. More rigorous risk
management processes will need to be applied to any future project activity. The
results have been plotted against a risk appetite that is assumed to be ALARP.
Table 12: Preliminary Qualitative Risk Assessment
No
Situation - Anecdotal
Hazard Level
It appears that traffic levels regularly

exceed what is generally accepted as
reasonable capacity in some ATC
sectors within 200nm of Jakarta.
Unacceptable
Attempts are being made to change.

However, the safety and regulatory
assessment and approval
processes are too slow to keep up
with the increasing traffic demands
and the increasing complexity of
airspace and technology.
ALARP
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Controls
Low
Given all the other circumstances
outlined in this document, the
organisational controls that are
available to manage this risk are
inadequate.
Medium
Given management endorsement, a
simple SOP, and safety training this
could occur quite rapidly.
31
No
Situation - Anecdotal
Hazard Level
There are no tools in use to assist in

simulating current or future traffic
flows and no way of empirically
obtaining capacity figures.
ALARP
Future development of ATM is not

controlled by a single policy level
vision to guide future capital and
other works.
ALARP
Controls
Medium
A conservative approach and
theoretic calculations might assist.
Low
Unless this occurs it will lead to a
continuation of the adhoc
development of ATM; however, it
wont directly affect safety except
that disparate and incompatible
systems limit the capability to safely
handle unusual circumstances.
Each of the risk categories defined in the table above are also depicted graphically in
Figure 16 and Figure 17 below.
Figure 16: Risk Assessment
For details of Categories A, B, C & D, refer to Table 12 above.
32
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Figure 17: Risk Profile
For details of Categories A, B, C & D, refer to Table 12 above.

The results of this analysis fed into the key findings of this report, and were also take
into account during the development of the Scopes of Work for the three proposed
projects resulting from this work.
4.6
SCOPES OF WORK (SOWS) CONOPS, CAPACITY ANALYSIS, RESECTORISATION
The results of the synthesis of workshop and interview outcomes, review of Indonesian
regulatory and Indonesian and international standards, guidance and other relevant
material, as well as review of the key findings were all considered when developing the
Scope of Work (SOW) for each of the required projects: Development of a CONOPS,
Capacity Analysis, and Resectorisation.
The three (3) SOWs are self-contained documents and each has been treated as a
separate deliverable. Note that each SOW also includes project objectives and key
performance indicators in relation to the projects.
The SOWs are discussed further within the context of Project Implementation in the
following chapter regarding project implementation.
INDONESIAN AIRSPACE
33
CHAPTER 5: PROJECT IMPLEMENTATION

5.1
INTRODUCTION
The lifetime of the Re-sectorisation project will be shorter than the time-span required
for implementation of the changes recommended by the project. There are several
reasons for this:
Full implementation of re-designed routes and airspace may be staged to lessen

the risks associated with this process; and
The effort required for full implementation would be greater than the available
using only the available resources of the agencies concerned.
As well, ongoing change will be required because of:
The introduction of new technology (ATM the new eJAATS and JAATS systems;
navigation Performance Based Navigation; and surveillance ADS-B) may mean
that further airspace and route changes are beneficial / required following initial
changes;
Changes to route structure will be required as traffic requirements / demand

changes; and
Change may be required (for example, to procedures) following the new ANSP
starting operations.
Therefore, ongoing FTS will be required beyond the life of the Capacity Analysis
project: for the Re-sectorisation project; and for other airspace and /or airport studies.
Ongoing route changes will also be required as demand changes in the medium and
longer terms.
The Concept of Operations should, under normal circumstances, remain unchanged for
some time; however, with the abnormal circumstance of the formation of a new ANSP
this may not be the case. The new ANSP may wish to modify the CONOPS in some
fashion after it becomes operational.
The implementation of these projects has to take these factors into consideration.
5.2
PROPOSED IMPLEMENTATION STRATEGY
5.2.1 Objectives
The objectives of each of the projects are:
34
To produce data, results and reports containing recommendations.
INDONESIAN AIRSPACE
To develop the skills, expertise and experience through education and mentoring
of local staff in the subject areas of the particular project.
To develop the skills, expertise and experience in the Change and Risk
Management and the preparation of Safety Cases.
To develop SOPS, that suit local requirements, as needed for undertaking project
tasks and obtaining approval for implementation of the outcomes. This should
include the development of metrics that validate the benefits of the changes.
5.2.2 Approach
From the above it can be seen that the potential for changes after the Proposed
Projects are completed is considerable. In fact, these projects are largely about
introducing expertise and change management. Therefore, rather than merely
producing: a CONOPS; some data and reports from a Capacity Analysis study; and a
revised route structure and revised airspace sectorisation, it is better to focus upon the
development of local capability for ongoing local (non-aid funded) projects - to
continue where the IndII-sponsored projects leave-off.
Development of capability is also desirable from the point of view of the local
stakeholders, both on a personal and organizational level. Because of this the local
agencies should more readily and easily take ownership of the project products. It is
also desirable from the funding agencies point of view in that it limits the funding
required for each project but gives greater ongoing benefit.
The SOWs for these projects have been developed around this approach. With the
orientation of the projects directed towards the development of capability, there are a
number of additional phases in each of the projects (except the CONOPS project):
inducting and, possibly initially educating, some of the local staff; developing Standard
Operating Procedures for various phases of the project; education or mentoring
concerning change and risk management, development of safety cases and, possibly,
regulatory approval processes; implementation planning (although this might be
included anyway); and project hand over.
Some of the necessary labour resources for the more labour intensive parts of the
project, which do exist in both the Capacity Analysis and the Re-sectorisation projects,
should come from local staff. This should offset some of the work in the additional
phases. It is in the consultants interest to make sure that this happens.
5.2.3 Inclusion of the Approach in the SOWs

Example project phasing and suggested deliverables are provided in each of the Scopes
of Work. These are provided only because it is a convenient means of describing the
detailed requirements and outcomes of the developing capability approach. This
INDONESIAN AIRSPACE
35
provides management within the local agencies with a better understanding of the
projects and should allow them to better manage their resourcing for the projects.
It is expected that consultants tendering for the project might suggest alternate
phasing and deliverables but such alternatives should provide similar outcomes.
5.3
PROJECT ORDER, RESOURCES AND TIMEFRAME
The interdependencies, requisite ordering and the urgency of the Proposed Projects
are outlined in the table below.
Table 13: Project Prioritisation
Project
Concept of Operations
Estimated Effort
Required &
Timeframe
Effort required is
estimated to be 9
person months plus
some time for a local
consultant and
project
management.
The elapsed time for
the project would be
4-6 months.
Capacity Analysis
Effort required is
estimated to be 11
person months plus
consultant and
project
management.
the project is
estimated to be no
less than 6 months.
36
Ordering, Urgency and Comments

This project is not dependent on either of the
other projects.
This project is urgently required for the orderly
development of operations within the new
ANSP.
This project is required for the Re-sectorisation
project.
Urgency for this project also derives from the
fact that it needs to be completed before the
Re-sectorisation Project.
This project is not dependent upon either of the
other two Proposed Projects.
This project is required for the Re-sectorisation
Project.
The urgency for this project derives from the
fact that it needs to be completed before the
Re-sectorisation Project.
This project has a high degree of acceptance
(more than the others because it includes the
provision of software) and should bolster
confidence in the other Proposed Projects if
properly implemented. After the perceived
failure of the IndII-sponsored ATM Masterplan
this might be necessary in some quarters).
INDONESIAN AIRSPACE
Project
Re-sectorisation
Estimated Effort
Required &
Timeframe
Ordering, Urgency and Comments
Effort required is
estimated to be 18
person months plus
consultant and
project
management.
This project is dependent on both the other

projects which must be complete before this
project can start because the CONOPS will
define some of the standards to be used and
the Capacity Analysis results are required as a
starting point. Capacity Analysis will also be
required throughout the project.

the project is
estimated to be no
less than 9-12
months;
This project is urgent because its outcomes can

improve safety. Since it is felt that safety is
comprised at present it has a high level of
urgency. Because the other two projects are
required for this project they inherit the urgency
of this project.
The timeframe depends somewhat on proposals provided by potential consultants.
5.4
ESTIMATED RESOURCES AND COST
A summary of estimated resources and costs is shown in the following table. The costs
are based upon IndII standard rates for consultants; travel (assumed to be travel
to/from Australia); accommodation; and per diem allowances. Included are allowances
for: a part-time Indonesian aviation consultant who has appropriate local knowledge; a
full-time Indonesian administrative assistant; project management part-time project
management; and an allowance for management overhead.
Project
Concept of
Operations
Projected Costs
Estimated costs are
AU$365,000
Costs are calculated
based on:
1 part time project
manager;
2 consultants (average);
1 part time local
consultant;
1 admin assistant;
per diems + travel +
management overhead
INDONESIAN AIRSPACE
Experience of Resources
Project Manager experience with aviation
agencies and project management
experience
Two or more consultants with experience
developing CONOPS for ATM systems
more than two experts may be required
depending on subject matter areas of
consultants
One local consultant with experience with
and knowledge of the local agencies, ATM
systems, airlines, etc
37
Project
Capacity Analysis
Projected Costs
Estimated costs are
AU$445,000
Software Cost estimated
at AU$250,000 +
AU$30,000 for software
training no travel is
included with the training
based on:
1 part time project
manager; 1 consultants;
1 junior consultant (for a
data gathering and
input);
1 part time local
consultant;
1 admin assistant;
management overhead
Re-sectorisation
Estimated costs are

AU$660,000
based on:
1 part time project
manager; 2 consultants
(average);
1 part time local
consultant;
1 admin assistant;
management overhead
38
Experience of Resources
experience
One senior consultants (with back up by one
junior consultant) with experience in
airspace and aerodrome FTS
systems, airlines, etc for part-time
involvement during various phases of the
project

experience
Two senior consultants with experience in
air route and airspace design
systems, airlines, etc for part-time
involvement during various phases of the
project
INDONESIAN AIRSPACE
CHAPTER 6: METRICS & KEY PERFORMANCE

INDICATORS
CHAPTER 6: METRICS & KEY PERFORMANCE INDICATORS

6.1
INTRODUCTION
Metrics to be used as design constraints as part of any resectorisation works are most
likely to be agreed following completion of capacity analysis, whilst also taking into
account the constraints and opportunities associated with ATC facilities and resources.
With regard to analysis of total Air Traffic Management (ATM) system capacity, there
are three generic methods of assessing airspace and facility capacity:
Simple Allocation (Static) Model
Fast Time Simulation (FTS)
Derived Functional Model
This section discusses the measurement of ATM system performance using methods
other than Fast Time Simulation (FTS)3 because FTS is proposed as the method to be
used for the Capacity Analysis project itself. The rationale for providing an overview of
more simple, alternate methods to provide information to the DGCA and the ANSP
organisations on methods that may be used by them in the intervening period (prior to
commencement and completion of the proposed Resectorisation project).
The discussion focuses upon two different approaches, used for different purposes, for
measuring the performance of an ATM system. These are:
Metrics that can be derived using deductive methods or algorithms; generally,

these can be used to estimate the capacity of routes and/or airspace. Several
methods are briefly referenced and one, that seems to offer potential because of
its simplicity, is discussed in some detail. A detailed example is provided for this
method; and
A set of Key Performance Indicators that can be used to monitor the performance
of the ATM arrangements (routes, sectors and ATC procedures) in terms of
common performance characteristics.
The first of these approaches is appropriate as a tool for technical analysis to be used
in airspace or air route studies. This focuses on simple measurement of ATC procedures
and the physical properties of the airspace and it ignores many other factors. The
subject of the second approach is a set of measures of aspects of system performance
that taken together, and used over time, can be used as a management tool. These
Tools that might be used for Fast Time Simulation (FTS) are not considered in any detail in this
report. This topic is covered in some detail in a separate report (Briefing Paper: Airspace
Capacity Assessment Methods and Tools) produced as part of Project #290.
INDONESIAN AIRSPACE
39
provide management with an indication of overall performance hiding many of the

underlying variables and details.
The relationship between these two approaches is obvious: some of the performance
indicators directly reference capacity, which can be approximated using one of the
deductive methods. There is also an obvious relationship between deductive methods
and FTS as they are both attempting to measure or infer the same parameter sector
or route capacity using vastly different methods.
6.2
BACKGROUND
While movement statistics are maintained by both FIRs there is no sophisticated

analysis of this data; both Jakarta and Makassar centres record total movements and
hourly numbers of sector and aerodrome movements. While obtaining this data has
proved to be problematic, sufficient cross sectional data has been obtained for the
development of a SOW. While these statistics are not directly useful in FTS or the
theoretical analysis (because they include the results of the problems that one is trying
to investigate) they might be useful as input for the Key Performance Indicators.
There is no experience of FTS in Indonesia; however, some simple (internally
developed) metrics have been used as a means of assessing sector capacity when
undertaking studies for proposed re-sectorisation. There is also no experience or
training in the development and implementation of measurement of performance
using Key Performance Indicators.
There is the capability to measure actual performance; for example, sector
performance can be measured in part by the numbers of aircraft within the sector at
any one time and over a given hour but at present these are not necessarily measured
against any particular benchmark. Hence, what is required are metrics and standards
that can be used to assess results and monitor performance over time. These will
provide a basis for answering the question: Is 35 aircraft in an ATC sector acceptable
at any given time?
Some ATC staff have expressed a desire to gain experience and knowledge in capacity
and performance analysis. Because they are often inordinately busy they understand
that the system is overloaded and they are searching for some resolution. Some of the
operational staff and management believe that the EJAATS system, a Flow Control
system and a re-sectorisation will solve these problems. There is, however, an
understanding that the benefits of each of these changes need to be validated;
explaining the desire for the tools and experience to model the demand and capacity.
6.3
CAPACITY DETERMINATION USING ANALYSIS METHODS
There are various means of calculating theoretical capacity from ATC workload. Some
examples are described below.
40
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INDICATORS
ICAO Sector Capacity measurement can be based on the DORA TASK or the
MBB methods. These are referred to in the Air Traffic Services Planning Manual
(Doc 9426), Appendix C. DORA TASK relies on FTS whilst MBB requires many inputs
and complex mathematical computations.
FAA - Sector capacity is defined as the optimum number of flights in a given sector,
over a specified period of time, which can be managed safely and efficiently. This
method uses the following algorithm:
o For each 15 minute period, determine the average sector flight time, in minutes
by observing the number of flights in a sector in a 15 minute period.
o Add the number of minutes each flight spends in the sector and divide that by
the number of flights during this period
o Multiply the average sector flight time in minutes by 60 seconds to get the
average sector flight time in seconds
o Divide the average sector flight time in seconds by 36 seconds. This 36 seconds
is a value established for use in the United States by human factor experts and
represents the average time a controller interacts with a flight while in a sector
6.4
CALCULATING A METRIC USING DEDUCTIVE METHODS
A deductive methodology, utilising performance measures, can also be used to identify

airspace problems. This is not as data-intensive as developing and validating a model
for a large simulation. A deductive method is described below.
Brazil This is a deductive method developed, in Brazil, for use locally, and also
submitted to ICAO SAM region for adoption in the region4. The number of aircraft that
can be controlled simultaneously by a single controller (N referred to below as ATC
capacity) in a given sector is estimated using the following formula:
N = ( m m)-1
The variables in this equation are as follows:
The controller availability factor, defined as the percentage of time

available for planning aircraft separation procedures.
Average distance flown by aircraft in the sector, which is a function

of the paths and en route or terminal procedures established for
each sector.
Methodology to estimate airport and ATC Sector capacity ICAO SAM refer
http://www.lima.icao.int/eDocuments/ATM/ATFM/4ATFM%20Calculation%20Guide%20Airpo
rt%20and%20ATC%20Sector%20Capacity%20Eng.pdf
INDONESIAN AIRSPACE
41
Number of communications for each aircraft in the sector, which

should be limited to the least possible number required for an
understanding between the pilot and the controller. This number
can be minimised by issuing a complete clearance sufficiently in
advance for flight planning.
m:
Duration of each message. This factor can be minimised by issuing

messages objectively, without long explanations that are
detrimental for an understanding between the pilot and the
controller.
m:
Speed of aircraft in the sector.
If and m are replaced with the average flight time of the aircraft in the
sector (T), this formula can be replaced with a simpler version:
N = T ( m)-1
The values of factors , T, and m can be obtained empirically.
For example, we can consider T= 12 minutes, m = 9 seconds, = 60%, =
6, which gives a number of aircraft N = 8 simultaneously controlled by the
controller in the given sector. In other words, in this sector and under
these conditions, a controller would be expected to simultaneously
control a maximum of 8 aircraft.
This methodology might be used as a starting point for any simulation exercise for the
following reasons:
The model can be used in any circumstance to measure capacity.
It has been published as a result of an ICAO project so it should be reliable.
It is a low cost methodology that does not require any software.
It does not require constant values derived from databases.
Practical experience on the use of the model can be acquired immediately,

resulting in the creation of a standard database for statistical purposes.
Supports the requirements of a Flow Control system.
However, care should be taken in using it as it can give inconsistent results. In the
above example:
o If one considers a 12 minute period in which the demand is at maximum
capacity for the whole of the period (that is, as one aircraft leaves the airspace
as another enters unlikely but it avoids complications in the calculations)
o Each aircraft requires 54 seconds of communication (m = 9 seconds x = 6) so
7.2 minutes are required for communication; hence
o Sixty percent of the 12 minute period is required for communication so there
cant have been 6 0 percent available for planning
42
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INDICATORS
Note also an apparent discrepancy: simply rearranging the formula gives the following:
N ( m) T-1 =
The left hand side is the percentage of total time communicating with all aircraft.
However, the ICAO study team defined to be the percentage of time available for
planning.
6.5
APPLICATION OF THE BRAZILIAN MODEL TO AN INDONESIAN SECTOR
This demonstrates the application of the above methodology to busy Indonesian ATC
sector with some sample data taken from AP II. This is an example only and a full
analysis would need to be conducted complete with some form of sensitivity analysis;
however it does serve to show the order of magnitude of the issue.
To simplify the calculation it will refer to Upper Semarang Class A airspace within
Jakarta FIR along the routes of W16 and W45 (refer to Figure 18 below Profile of
Upper Semarang (US) sector) which is considered one of the busiest route in Asia.
(Other considerations are: there is generally good surveillance and VHF coverage;
appropriate ATC automation within JAATS; and high reliability of ground-to-ground
coordination communication between Jakarta and Ujung Pandang Centres.)
The same formula to calculate sector capacity will be:
N = T ( m)-1
Figure 18: Profile of Upper Semarang (US) Sector
Source: AP II
INDONESIAN AIRSPACE
43
Upper Semarang airspace (W16)

Let us assume flights inbound to Jakarta via W16 transfer from the upper control
sector to Lower/TMA after 7 minutes entering sector (MADIN). With surveillance
separation service provided and most of required flight data available before traffic
entering the sector, where = 5 then N will be:
N = (7 x 60 x 80%) / (9 x 5) = 336 / 45 = 7 aircraft.
Upper Semarang airspace (W45)
ATS route W45 is an outbound route for flights departing from Soekarno-Hatta to the
eastern part of Indonesia such as Surabaya, Bali, Makassar and many others located
within the Ujung Pandang FIR. With a no issues regarding condition such as
surveillance, VHF com, ATC automation where the average T = 10 then N will be:
N = (10 x 60 x 80%) / 9 x 5 = (600 x 80%) / 45 = 480 / 45 = 10 aircraft
To estimate the sector capacity we need to calculate the average time aircraft spend in
the sector. If we assume that W16 has 50% more traffic than W45 the proportion of
traffic in each sector is W16 = 60% and W45 = 40%. So the average time of aircraft in
the sector is:
T = TW16 * 60 % + TW45 * 40% = 7 * 60% + 10 * 40% = 8.2 minutes
Using the formula again for the sector:
N = (8.2 x 60 x 80%) / (9 x 5) = (492 x 80%) / 45 = 394 / 45 = 8.7 aircraft
Information collected from ATC at Jakarta indicated that average traffic for the Upper
Semarang Sector is 22 aircraft at any one time and anecdotal evidence shows up to 35.
Even though there has been no formal capacity study it is evident that the traffic
numbers far exceed the expected maximum this calculation has produced.
There are several factors that are constantly influencing the number N and that are
directly related, such as the size of the sector or route modification, CNS
infrastructures and standard separation applied. Consequently, whenever a significant
change is observed, the value obtained must be updated.
Under ideal conditions, data collection must be done with busy traffic. Therefore, the
selection of the ideal period is a factor to be taken into account, since it has a direct
impact on the final result.
Notwithstanding the anecdotal nature of this exercise, a simple sensitivity calculation
of 100% error shows peak traffic still outstrips the theoretical capacity of the sector.
44
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INDICATORS
6.6
ADDITIONAL METRICS
Whilst the metric above is an example of how we can capture an important but single
metric for baselining and the on-going measurement of performance of sectorisation,
it is not the only metric that could be used. It is necessary to have a range of indicators
to order to obtain a cross section of performance against a number of result areas,
each of which are important in having a holistic view of the sectorisation.
It is recommended that the following three result areas be adopted in that they are
broadly recognised within air navigation service providers (ANSP). Examples of Key
Result Areas (KRA) can be found within the Civil Aviation Navigation Service (provider)
Organisation (CANSO) reports.
Productivity (business indicator)
Efficiency and Effectiveness (operational indicators)
Safety
An example of one performance measure in relation to productivity is provided below.

This measure applies to the total airspace and not just one sector. It is a metric for
which data is easily gathered and indicates how productive the entire sectorisation is
for one Centre. It can be used to compare productivity against international standards
and also between different Centres in Indonesia. It should not, in itself, be used as a
sole driver for sectorisation as increasing productivity can lead to detrimental
impacts on safety; accordingly, it must be viewed as part of a suite of metrics.
Figure 19: CANSO Productivity Figures
INDONESIAN AIRSPACE
45
Another is the set of indicators are those that show efficiency and effectiveness. These
areas refer to operational performance; however, they are two different aspects to the
same operational situation, they can have multiple metrics, and they are sometimes
confused. A dictionary definition of these terms is listed below:
Effective (adj.) Adequate to accomplish a purpose; producing the
intended or expected result.
Efficient (adj.) Performing or functioning in the best possible manner,
with the least waste of time and effort.
In an operational sense, a metric for efficiency (of an ATC sector in terms of ATC
workload) would be the metric covered above (the Brazilian method); maximum sector
occupancy. However, this is also a safety indicator, and so the value used for the metric
should contain a buffer. An accepted practice in systems is to pitch system load at 70%
of theoretical total capacity and so the maximum sector occupancy should be modified
accordingly.
Effectiveness has a different context in that it also looks at the maximum sector
occupancy with a view to the least possible delay to the overall ATM system.
According, the metrics here can refer to holding time or additional time in sector due
to (self induced) delays.
Safety metrics can also be based, in part on sector occupancy. Exceeding theoretical
sector occupancy is a significant indicator that would require management to research
underpinning reasons for this. It may be a resectorisation is required, or it may even
mean the metric is wrong.
6.7
TAXONOMY FOR PERFORMANCE MEASURES
There is a need to place performance measures within a taxonomy, or classification

schema. The examination to date represents a selection of indicators. The following
framework is recommended as it provides some form of traceably as to the reasons
why the indicator is required, and what the scope of the metric covers.
Table 14: Performance Areas & Metrics
Key
Performance
Area
Productivity
46
Planned Outcome
To meet industry
standards for the cost of
delivering Air Traffic
Services for the Asia
Pacific area.
Scope
All operational Air Traffic
Control staff within the
ACC including direct
supervision.
Metrics
1400 IFR flight hours of
aircraft in the FIR, per
operational ATC Officer
per annum.
INDONESIAN AIRSPACE

INDICATORS
Key
Performance
Area
Planned Outcome
Scope
Metrics
Efficiency
Utilise air route, airspace,

and ATC resources to
provide the most efficient
outcome for users.
Provide Capacity at all

times to match the
approved metric
measured over the 3
busiest hours for each
sector.
Meet demand at or about

70% of theoretic or FTS
derived Capacity for each
sector
Effectiveness
Harmonised arriving air

traffic (en-route to
terminal area to
aerodrome) and
harmonised departing air
traffic (aerodrome to
terminal area to en-route)
should translate to
reduced arrival and
departure holding times
and thus reduced fuel
burn and carbon
emissions.
Match Capacity to meet

Demand averaged over 3
busiest hours for that
sector.
Average planned
time=Average actual time
in sector.
Ensure the highest

standards of operational
safety are maintained.
Applies to all individual

ATC sectors.
Traditional Approach:
No incidents when
operating at more than
70% of maximum
theoretical or FTS derived
Capacity for that sector.
Safety
As per ICAO Doc 9859

SMM, Ed 3 (2012,
advanced):
establish High (& Lower)
Consequence Indicators
(Safety Indicators, Alert
Levels & Target Level
Criteria)
Traditional Metric:
Measured average over 3
busiest hours.
SMM Ed 3 Metrics:
Scope by Individual
Sectors, which also
permits aggregate results
for FIRs.
Refer to latest ICAO
SMM for guidance
material.
(Note this may be

replaced dependent upon
the new ICAO Carbon
emission standards)
Transition to ICAO SMM

Ed 3 Methods:
Safety Performance
(SP) Indicator:
40 airspace incidents
per 100,000 hours
flown
SP Alert Level:
2 (SD) change (eg,
occurrence increase),
reset annually
SP Target:
30% reduction over
the 5-year moving
average
INDONESIAN AIRSPACE
47
CHAPTER 7: CONCLUSION
This chapter contains a brief summary of conclusions.
7.1
NEED FOR THE PROJECTS
There is an increasing need for each of the three proposed IndII Projects. The particular
needs and urgency for each project are:
CONOPS: the new single ANSP will need a CONOPS to assist in organising the
operational components of its business. This is very urgent as the formation new
organisation is starting to take place. There is also some urgency derived from it
being a pre-requisite for the Re-sectorisation project;
Re-sectorisation and Revised Route Structure: There are two imperatives for this
project: safety and efficiency. Both these attributes of aviation in Indonesian, which
also affect international and over-flight operations, will deteriorate as the volume
of air traffic continues to increase. So urgency derives from the need to prevent
any catastrophic accidents; and
Capacity Analysis: This is required to support the revision of the route structure
and re-sectorisation.
The underlying requirements for these projects will not be fully satisfied within a
realistic project timeframes. So capability needs to be developed within the Indonesian
agencies to allow (potential) ongoing development of the CONOPS and development of
it into concrete plans, ongoing capacity analysis to support ongoing revision of the
route structure and sectorisation as traffic requirements and technology
implementation change over time. Developing this capability requires the involvement
of local agency staff in each of the projects.
Additional developed capability in the areas of risk assessment, safety case
development and change management would be highly desirable side products of
these projects as it appears (from anecdotal evidence concerning existing local
projects) skills in these areas are lacking. Also, because of the working arrangements of
local staff outside resources are necessary to bootstrap capability in these areas.
7.2
POTENTIAL DIFFICULTIES
Many of potential difficulties are briefly mentioned in the chapter Key Findings. Briefly
they are:
48
Local staff involvement: Local staff have the commitments of their normal
operational responsibilities. This may not allow sufficient involvement in the
INDONESIAN AIRSPACE
CHAPTER 7: CONCLUSION
Proposed Projects to fully develop local capabilities. Negotiation with local

management may be required to overcome this potential impediment.
Changing organisational environment: The introduction of the new singe ANSP will
mean that the existing ANSPs and some staff within DGCA will be distracted by
work on formation and other taskforces. There will also be some distraction caused
by competition between the two existing organisations for positions and power.
Changing technology environment: There are substantial technology changes in

navigation (the introduction of Performance Based Navigation), surveillance (the
introduction of ADS-B) and ATM (change over to the EJAATS system and the
procurement and commissioning of the new JAATS replacement system);
introduction of Flow Management, Collaborative Decision Making and Flight Plan
2012). These changes add to both the uncertainty surrounding the Proposed
Projects and the number of issues that must be considered in each project, and the
workload on the agencies themselves.
Suspicion about foreign aid projects: There is a natural suspicion about some aid
projects following earlier failures, some duplication, and possibly too many aid
projects aimed at giving advice and/or recommendations only.
7.3
POTENTIAL SUCCESS FACTORS FOR THE PROJECTS
While there are difficulties as outlines above, there are also factors that will contribute
to the success of the projects. These are:
Enthusiasm for the Projects: There is considerable enthusiasm for the projects
amongst senior management within most of the agencies. This is partly because of
the nature of the projects (they are seen as being very necessary) and because they
offer the promise of developing local capability.
Use of local resources: This has the potential to lessen workload on the consultants
undertaking the projects, allowing them to focus more on a mentoring role. Not
only is it a good method for knowledge transfer, through the commitment of local
resources by stakeholder agencies it will also foster buy-in; essentially converting
their enthusiasm to tangible buy-in and better ongoing commitment.
Tangible nature of the results: Unlike many other aid projects they are not just
undertaking investigations with the output being reports with recommendations.
While, undoubtedly, reports and recommendations will result from these projects
there will also be software, trained staff, data, risk assessments and safety cases,
implementation plans, some changes to route structure and airspace, possibly new
regulations and Standard Operating Procedures. Many of these are much more
tangible than the advice given from some previous projects and therefore provide a
more substantial value proposition to all parties concerned.
INDONESIAN AIRSPACE
49
ANNEXES
ANNEXE 1: STRENGTHS, WEAKNESSES & THREATS
Strengths and Resilience

The ANSP and Regulatory staff have a solid level of technical competence. As with any
such organisations there is, however, an uneven distribution of expertise and
competence. The scoping study has found many staff that are very enthusiastic,
understand that changes need to occur to meet future challenges, and in many cases
have sufficient technical knowledge. Whilst it easy to focus on negative aspects of the
environment, this strength and resilience is probably the industrys most valuable
resource as these people will form the basis of the future ATM system.
Contextual Analysis
There are currently large levels of change within the Aviation Industry. The reasons for
these changes are both push and pull. The ATM system is stressed because of
excessive traffic and complexity. The range of newer aircraft in the Indonesian fleet
and the inevitable wish to use the advanced navigation capabilities to maximum
commercial advantage means that there is an increasing need to move towards PBN
concepts in ATM and airspace management. The demand for domestic and
international air travel is growing at a rate that is unsupportable in the long term
without major multi modal transport policy changes. In the short term the number of
new regional jets anticipated to join the fleet starting in 2013 will increase the load,
whilst overloaded routes cannot be serviced by larger aircraft because of limitations of
ground facilities outside of Jakarta.
In this environment of increasing demand, limited only by a departure slot allocation
framework at Soekarno Hatta, AP II is in the process of moving to an interim RDP/FDP
system whilst a more permanent replacement for the aging Jakarta Air Traffic Control
System can be found. There is a belief within the DGCA and ANSPs that new systems
will generate capacity where there is none today. This might be so in the longer term
but international experience indicates there is likely to be less capacity unless there is a
significant airspace reorganisation to facilitate the increasing traffic loads. In short, a
trust that technology will solve capacity problems is ill conceived without looking at the
other components of the ATM system, the people, the processes, and the airspace
architecture.
In the face of the challenges of the future, the DGCA and ANSPs have been assisted in
the past by a range of external agencies. The known range of these agencies has been
identified within this document. They range from the altruistic endeavours of friendly
50
INDONESIAN AIRSPACE
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nations such as Australia and the United States to the purely commercially motivated
Governments seeking to support the commercial interests of client companies.
Whatever the motivation, the result has been a set of reports, plans, and
recommendations undertaken on behalf of and or requested by the Indonesian
authorities. These plans have been uncoordinated and together are discordant as they
represent the attitudes and positions of other ATM frameworks and cultures, and not
that of Indonesia. Apart from the examples where Indonesian ANSPs have engaged
directly with foreign ANSPs to work directly together on a problem, the result is largely
that of forgotten manuscripts gathering dust on shelves within DGCA.
The IndII ATM master plan was an excellent attempt to bring together all the disparate
requirements of ATM in document and yet it still lacks a level of policy and strategy
that will be required in the future.
This analysis supports the need for a concept document for Indonesia and
recommends a support a project to provide this document.
Technical Analysis
There is a level or urgency to address airspace and ATC capacity because the limits are
now being tested with growing demand from a high growth industry, and new airborne
technology. Anecdotal evidence shows that this is approaching the edge of safety in
some areas. In designing appropriate metrics for demand and capacity of sectors, a
Brazilian methodology was used to validate one sector. This sector is arguably the most
complex sector within both the Jakarta and Makassar FIR in that it contains high traffic
levels, converging air routes with no lateral separation, climbing and descending traffic
and a hand off to another system. The calculations for this sector indicated that no
more than 17 aircraft at any one time should be in the sector. The scoping team have
been shown radar images with up to 35 aircraft at any one time. Given that any
theoretic calculation will have to be tested empirically, it is understood that this figure
is an order of magnitude only. However, with ATC experts very uncomfortable about
the situation combined by such a large divergence between calculated and actual
traffic figures constitute a real risk and a warning that some action is required.
There are local initiatives that are before the Regulator for approval to resectorise the
current ATC high-level airspace in both Jakarta and Makassar FIRs. These
resectorisation proposals have merit and are relatively low risk in that they divide
some of the current sectors into two sectors based on relatively independent air
routes. There are no tools to simulate traffic flows and review demand and capacity so
this proposal is based on expert advice and knowledge only.
There is an initiative to implement a (dynamic) Flow Management Unit with locally
produced software; however, it is proving problematic as there are no tools to
measure capacity against demand and no SOP for the theoretical calculation of
capacity limits. There are also issues of training and rating flow control personnel.
There is an initiative to increase the capacity of the runways at Soekarno-Hatta
INDONESIAN AIRSPACE
51
aerodrome by using dedicated runways for approaches and departures and (assumed)
different control towers.
Notwithstanding the attempts to resectorise and other initiatives, they will be largely
ineffectual unless the underlying high level and Jakarta terminal air routes are
reviewed and simplified. In addition major conflict points and coordination points
should be reviewed and simplified. This could form the first step in the implementation
of PBN, but in any case it would provide a high value of return on investment rather
than a large green fields review of all airspace management. It is recognised that the
major issues in terms of demand and capacity and ATC loading occur within 200nm of
Jakarta and within an airspace corridor that goes from the Malay Peninsula and
Singapore, over Java and outwards towards Denpasar and Australia. This constitutes
some of the busiest air routes in the world. Outside these areas, traffic is currently at
relatively lower levels and well within the limits of (assumed) capacity. It therefore
makes sense to target any work around these areas and utilise the Pareto principle to
gain the best value for the investment dollar. The SOW for sectorisation refers to an
incremental approach and targets simplification of air routes and major conflict points,
as well as simplification of terminal airspace arrangements and procedures. This,
together with simulation technology will allow the Indonesian authorities to gain the
maximum capacity from the airspace at the lowest cost. It is recommended that
Airspace Reorganisation Project is progressed as soon as possible as well as a project to
facilitate the needs of understanding demand and capacity.
It is worth noting that none of the change proposals this project observed have
provided the regulator with a risk management plan or a solid form of substantiation
for the change, even though any casual technically competent observer would note
that immediate change is required. The issue here is one of approval processes and
what level of substantiation is required for changing airspace architecture.
Organisational Analysis
Currently there are several organisations providing services (ANSPs) within Jakarta and
Makassar FIRs:
Angkasa Pura (Makassar)
Angkasa Pura 2 (Jakarta)
DGCA
Private
The number and level of private ANSPs is not clear but understood to consist of private
traffic as well as weather advisory services for mining and similar operations. These
will, and should, continue into the future. However the situation between AP I, AP II,
and DGCA will change substantially in the future with the Law (22 of 2012) establishing
one primary ANSP. The impact on current organisations is unknown; however, the
remit and scope of the single ANSP and the timing of the changes are detailed in the
52
INDONESIAN AIRSPACE
ANNEXES
Law. In the meantime, any changes to airspace architecture will need to be negotiated
across three organisations, noting that the current remit of DGCA is both as a
Regulator and a service provider. The current organisational structures lack of clear
SOPs, and a silo culture means that any change is difficult to achieve. This is especially
so as there are no dedicated staff for change or initiatives. Staff within the DGCA and
the Service Providers give extra time on top of their day to day duties to undertaken
initiative such as redesigning ATC sectors. The lack of resources, the current structures,
and the lack of knowledge of project and change management make it difficult and
time consuming to undertake and gain approval for any large changes.
Business Rules for Future Implementation

The issue of implementation is key to the success of the proposed projects. As
discussed earlier in this document, there are a plethora of recommendations and so
the approach proposed in this report is to enable an end-to-end process. What is
essential is that some key business principles are laid down and adhered to in the
prosecution of any future assistance work.
It is clear from the analysis and information that the past activities of providing
strategic advice and analysis have provided less than acceptable results. Where ANSPs,
such as Airservices Australia, engage directly and do work on site with counterparts,
progress and sustainability occurs and the results are satisfactory. This is an example of
where something works because it is hands-on and direct assistance and mentoring.
Where strategic advice and reports are provided, especially those motivated by
transparent commercial motives, what is left is a proliferation of uncoordinated
recommendations and plans and no action. Therefore what is recommended is that a
hands-on approach to be adopted for the proposed projects and that the primary focus
should be implementation and not providing advice. A hands-on assistance approach
needs to embrace not only Air Traffic Management skills, but also Project and Change
Management.
The difficulties in both internal and external coordination have been discussed. It is
therefore recommended that any future work be undertaken from within a central
project team with accountability for delivery of all activities from start to finish. This
does not mean that aid agencies should take over what is rightly the responsibility of
the ANSP or the Regulator: it means that what is missing are core resources dedicated
to a technical solution and not day-to-day operation, and the necessary Project and
Change Management skills and processes. The Regulator must be encouraged and
assisted in setting up and running parallel and complementary task forces to deliver
their portion of a fully implemented change.
The need for an enabling team does mean that there is not a need for technical
support. Whist there is considerable technical knowledge and ability within ANSP and
the Regulator, there does need to be on site support with ATM expertise. There is a
view, supported by many reports, which encourage the implementation of ICAO
targets in relation to Performance Based Navigation and other long-term objectives.
INDONESIAN AIRSPACE
53
These are worthy objectives; however the basic building blocks of good Airspace and or
Air Traffic Management need to be put in place before this can occur successfully.
Large green field approaches carry with them a high cost and high risk.
It is recommended that any future enabling project in the short term undertake work
along the Pareto principle (commonly known as the 80%/20% principle), and
acknowledges the heuristic that 80% of most endeavours are obtained with only 20%
of the required effort or resources. That is, we should seek best return on investment
in the basic building blocks of ATM, rather than large, technically sophisticated Eurocentric, FAA NextGen or ICAO cutting edge ATM paradigms.
54
INDONESIAN AIRSPACE
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ANNEXE 2: METHODOLOGY
The general approach taken in considering how the proposed three projects might be
undertaken was to consider not only the technical requirements but also the
organisational and cultural requirements and impacts. The three proposed projects are
related and the requirements and impacts for all three were investigated
simultaneously.
It was originally envisaged that the team would consist of the nominated consultants
with the assistance of identified stakeholders who could act as counterparts
representing the interests of the various aviation agencies. This approach was proved
not possible because:
The diverse and bureaucratic nature of the three key organisations made the
identification of representative counterparts difficult;
The short timeframe was insufficient for this identification process; and
The short timeframe allowed for each project individually (and even both projects
together) was insufficient for organising and conducting workshops and individual
interviews with the appropriate stakeholders (excluding time for follow-up
interviews, analysis and full documentation of the project, including development
of the Scopes of Work). Some of the reasons are the number of agencies that
necessarily had to be involved, the Indonesian meeting culture, and the
complexity and importance of the subject matter.
Past experience indicates this approach has merit and it is worth pursuing in the
future. This requirement for a counterpart team approach has been included in the
Scopes for Work for all three projects which are anticipated to result from these
projects (IndII Activities #289 and #290).
Whilst there was no impact on the outcome and deliverables of Project #289, the
parallel and interrelated Project #290 was delayed by ill health of the nominated
consultant and this changed the original scheduled dates for some activities and
contributed to delay in completion of both projects.
Work Plan
An overview of the work plan for the original six-week project period is provided below
in Figure 20.
INDONESIAN AIRSPACE
55
Figure 20: Original Work Plan and Schedule for Project 289 (Project 290 was similar)
Activity
Responsibility
Project Plan
Off Site
(PA&JMc)
Prepare Stakeholder
Meetings
On Site (NM)
Mobilise
PA
Analysis
Team
Meetings & Workshop
Team
Prepare & QA Report
Team
Deliver Report
Team
Week
1
Week
2
Week
3
Week
4
Week
5
Week
6
Work originally planned to be done off-site was actually conducted onsite in Jakarta.
The on-site work was started early with the intention of avoiding an overlap with
Ramadan. The detailed project planning, in accordance with the project management
methodology, was undertaken on site. This original planning indicated that the work
could be undertaken within a six week period; however, subsequent project activities
were modified because of the need to accommodate activities within the timeframe
for project 290. The detailed project schedule for Project 289 (see Figure 21) shows the
planned activities and milestones and the actual outcomes.
Figure 21: Project Schedule - Actual vs Baseline
The project outcomes have been successful in that all project deliverables have been
provided in accordance within cost constraints, with an appropriate quality and with
only a slight delay.
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INDONESIAN AIRSPACE
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Stakeholder Engagement
Preparation for, and obtaining acceptance of the SOWs, required significant
consultation with various stakeholders. Interaction was undertaken utilising several
methods as follows:
1. Workshops
2. Personal Interviews
3. Visit to ATS facilities
4. Structured Questionnaire
A detailed stakeholder engagement plan was utilised to plan and monitor these
activities. This plan is provided within 0. An assessment of stakeholders and their
reactions during this project is provided in the main body of the report.
Workshops
An initial workshop to identify and inform stakeholders at both the Business and
Operational levels of the relevant organisations was planned. When onsite, the
consultants used a more direct approach of conducting interviews with some of the
relevant management. A record of these interviews is provided in ANNEXE 5:.
An executive level workshop that focused the organisational responses required,
meeting both external stakeholder and customer expectations into the future was
planned and delivered on the 5th of July. This provided insight into the specific
requirements for the development of a Concept of Operations and issues relating to
Capacity and Airspace Management. The minutes and outcomes of this workshop are
contained at ANNEXE 5: Minutes of Workshops, and Formal Meetings
and Presentations.
An Air Traffic Management workshop that focused on the operational, technical and
organisational requirements for Re-sectorisation and Capacity Analysis was delivered
on the 12th of July. This provided insight into the specific technical requirements for a
future resectorisation review in accordance with the Concept of Operation and utilising
the results from the Capacity Analysis. This workshop attempted to have a
comprehensive cross section of industry in attendance including airlines users, ATM
providers, the regulator, and professional organisations. The workshop was only
partially successful in that it did not attract the attention of as many stakeholders as
hoped, but it did lead to meaningful discussion and dialogue with some parties.
A workshop was envisaged as an exit exercise. It was decided that the aims of this
exercise could be more effectively achieved using a presentation on the proposed
Scopes of Work to individual key stakeholders. A presentation was made to the
Director Air Navigation, the sub directors of Air Navigation. Several discussions were
also held with the Secretary General.
INDONESIAN AIRSPACE
57
Once draft versions of the Scopes of Works were available these were presented to
various stakeholders for review. Received comments were incorporated in the final
versions.
Records and minutes of workshops were used in the analysis that led to the Scopes of
Work and are provided at ANNEXE 5:.
Interviews with Other Key Stakeholders

In addition to workshops, formal and other discussions were held with other key
stakeholders. Some of these have been recorded and are also available in ANNEXE 5:
to this document. Discussions were held with:
1. Lion Air
2. Garuda
3. AP I (Planning Manager and others) and AP II (ATS Manager and those involved
with the proposed re-sectorisation)
4. ICAO (PBN Implementation)
Questionnaire
A questionnaire was distributed to all staff invited to attend the formal workshops to
elicit opinions concerning the issues and risks associated with airspace management,
capacity and demand. Only one response was received despite repeated attempts to
have them returned. This is discussed further in ANNEXE 4:.
Integration of Project #289 with Project #290 (Capacity Study)

This Project #289 was to be undertaken in parallel with Project #290. Project #290
objectives were to review capacity issues and provide a SOW for a capacity analysis
project and most of the stakeholders were the same for both projects. Additionally,
the proposed Re-sectorisation project will be reliant upon the outcomes of the
proposed Capacity Analysis project.
During the on-site work for Project #289, it became impossible to mobilise the
principle consultant for Project #290. Fortunately, both projects had been awarded to
the one company, Strategic Airspace, and the expertise and experience of the
consultants for both projects overlapped. As such, all ensuing activities undertaken
during the progress of this project were designed to support the data gathering and
stakeholder management requirements of both projects. This provided the support
required to the principle consultant to conduct the analysis and to construct the SOW
58
INDONESIAN AIRSPACE
ANNEXES
for #290 whilst located in Australia. This was only possible because the subject areas of
both projects are closely interrelated.
INDONESIAN AIRSPACE
59
ANNEXE 3: STAKEHOLDER ENGAGEMENT PLAN
STAKEHOLDER MANAGEMENT
INTRODUCTION
Goal
To facilitate and effectively manage stakeholders and changes associated with the IndII
project 289, a scoping study for resectorisation and other airspace management
activities, and the development of a comprehensive Concept of Operations for
Indonesia.
Objectives
The objectives of the stakeholder engagement plan are as follows:
1. Recognise and define the key stakeholders, and guarantee timely involvement and
buy-in from them. This includes relevant unions, other business units and external
parties.
2. Develop and implement an appropriate project communication plan aimed at
ensuring suitable and effective communication between project members, key
stakeholders and all employees within DGCA, AP I andAP II.
3. Work closely with the DGCA, AP I and AP II staff and provide advice and support as
necessary on Air Traffic Management and Change Management.
4. Identify and manage the barriers and issues that may provide opposition to the
successful and complete implementation of the project(s) being scoped.
5. Recognise, and act upon, opportunities to enhance the open exchange of ideas and
information between members of the project team and stakeholders.
Engagement Strategy
Project #289 and #290 were conducted concurrently and are interrelated. They
therefore have almost the same set of stakeholders. Therefore all public activities were
conducted together to bring about efficiencies in time management within both
projects and to avoid over exposure to stakeholders.
The team planned to engage stakeholders as follows. The activities are not necessarily
in chronological order.
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INDONESIAN AIRSPACE
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Activity
Strategy
Conduct Induction Workshop
This will be conducted by way of personal interviews and

explanation to senior management staff. The reason for this is
the lack of a full set of stakeholders within the timeframe and the
apparent stakeholder weariness towards workshops observed.
Stakeholder communication
management plan
The team will maintain a stakeholder listing to ensure

stakeholders have been identified and listed. This will be used to
track and manage the communication.
Management Workshop
Conduct a workshop with senior management to discuss high

level concepts and needs in relation to both airspace
management and concept of operation.
Technical Workshop
Conduct a workshop with technical specialists from
Interview with Key Stakeholders
Obtain permission from Air Navigation to work directly with

technical experts within DGCA.
Circulate a Questionnaire
Provide a questionnaire in both English and Bahasa to obtain

information from stakeholders.
Visit to ATC Centre
Visit the Jakarta ATC Centre to interview both staff and engage
them.
Use technical experts to advise

on the scope of work
Provide the provisional results of the project to both gain data

and to continue to engage them.
Conduct Exit Workshop
This will be conducted by way of personal interviews and

explanation to senior management staff. The reason for this is
the timeframe and the apparent stakeholder weariness towards
workshops observed.
Stakeholder Management Plan

The following stakeholder management plan is dynamic document that was
maintained by the team to ensure the communication and engagement of
stakeholders was planned, tracked and recorded.
Table 15: Stakeholder Management and Communication
#
Name
Job Title
Organisation
Role
Pak Ischwai
Director of Air
Navigation
DGCA
Director
Ibu (Fifi) Arfiyanti

Samad
Secretary to the
Director General
DGCA
Planning
INDONESIAN AIRSPACE
61
Name
Job Title
Organisation
Role
Pak Novie Riyanto

Rahardjo
Deputy Director
DGCA
Standardisation &
Certification of Air
Navigation,
plus Systems & Procedures
Pak Wisnu Daryono
Deputy Director
DGCA
Air Traffic Management
Pak Djokom
DGCA
Director
Pak Bang Bank

Tjahyoo
Director of Airports
DGCA
Director
Pak Haryoso
Director of Operations
AP I
Manager, Airspace &

Aerodromes
Pak Salahudin Rafi
Director of Operations
AP II
Manager Aerodromes &

Airspace
President
Indonesian Air
Carriers
Association
Airline Association
62
INDONESIAN AIRSPACE
ANNEXES
ANNEXE 4: AIRSPACE QUESTIONNAIRE
The following airspace questionnaire was circulated to all technical workshop

attendees and all those who were invited. On the version that was circulated, there
was space for anybody to respond on the page below the questions.
Submitted by _______
th
Please return this to IndII project office no later than 19 July 2012:
Fax:
62 21 72780517; or
e-mail:
soraya@indii.co.id
Indonesia Infrastructure Initiative (IndII) menemukenali adanya kebutuhan untuk studi

kapasitas ruang udara dan sectorisation sebagai kegiatan untuk memungkinkan pelaksanaan
Manajemen Lalu Lintas Penerbangan (ATM) Masterplan. ATM Masterplan mengungkapkan
adanya kekurangan dalam sectorisation saat ini di Indonesia dan studi ruang udara yang
direkomendasikan adalah untuk menentukan sectorisation paling efisien untuk memenuhi
kebutuhan masa depan dan pengembangan model untuk memungkinkan penilaian kapasitas
wilayah udara sebagai akibat dari perubahan sistem wilayah udara masa depan.
1.
2.
3.
4.
5.
6.
7.
8.
9.
What are the main issues, problems and risk with the current enroute air route structure
within the Indonesian FIRs?
What do you see as the main issues, risks and problems concerning airspace management
including ATC sectorisation, airspace categories and rules of the air?
What do you think are the main issues and constraints that limit the capacity of any
particular air route or airport?
What do you think are the main issues and constraints of the current Communications,
Navigation and Surveillance (CNS) Systems relating to efficient and safe ATM, sectorisation,
airspace usage and aircraft operations?
What do you think are the main issues and constraints of the current ATC staffing and
training relating to efficient and safe ATM, sectorisation, airspace usage and aircraft
operations?
Are there any proposals or planning for new air routes, CNS, sectorisation and ATC staffing
and training?
Which organisations provide forecasts of airport and airspace movements?
Which organisations provide computer simulation and modeling of current and forecast
airport and airspace movements? What are the simulation and modeling tools used?
Given your comments to the questions above, do you have any suggested actions or
changes to systems or processes to address your concerns.
INDONESIAN AIRSPACE
63
ANNEXE 5: MINUTES
OF
WORKSHOPS,
AND PRESENTATIONS
AND
FORMAL
MEETINGS
WORKSHOP 1 - MANAGEMENT WORKSHOP

Administration
Location: Secretary of Directorate General Meeting Room 5th Floor, Karsa BuilidingMoT.
The participants consisted of the following staff from IndII and DGCA and AP II.
Peter Atkins
Novaro Martodihardjo
John McCarthy
Novie Riyanto R. (Deputy Director of Standardization & Certification of Air

Navigation-DGCA)
Elvrita (Airspace Management-DAN)
Aulia (ATS requirement and certification-DAN)
Moh. Hasan Bashory ( Chief Of Standardization Of Air Navigation-DGCA)
BAMBANG P SIGIT / SRI MARDI ISMOYO, (Angkasa Pura II HO)
DAMA, ANGGA, HARI, BUDI, DAN (CNS infrastructure)
SRI LESTARI /QORY, DAN (Aeronautical Data Management)
HERU / MEGA, DAN (Charts and Publication)
Maria Renny, Riffa Hadiya Santi, Revy Petragradia, Annety Ngabito, Soraya (IndII)
Overview of Workshop
This was the executive level workshop to allow the consultants to develop project
scope and tender specifications for future projects. These future activities will provide
the RI with an ATM Concept of Operation, a revised airspace configuration including
sectorisation and air route structures, and the tools and methodologies to measure
and manage capacity, as required by the ATM Master Plan.
Briefing Points:
Mr. Peter Atkins explained that the ATM Master Plan is an excellent a start but lacked a
strategic policy level concept of operations. The approved ATM Master Plan
64
INDONESIAN AIRSPACE
ANNEXES
recommended a series of short term activities including airspace management and

demand and capacity management activities. The Master Plan was subject to review by
DGCA and AP I/AP II facilitated by consultants from IndII and recommended priority
activities including; development of an Operational Concept Document and airspace
redesign.
Based on the need to now proceed with some of the ATM Master Plan recommended
actions, the consultant needs the participants to provide him with an understanding
regarding the issues including:
What is the status of air routes and the associated airspace management including
ATC sectorisation
What plans do you have in place to address any issues, forecast increase in
movements, risks or changes to procedures and technology?
Who is responsible for any of those plans and what is the expected timeframe for
them?
Apart from the ATM Master plan, what other plans are being used for strategic
guidance for example the blueprint plans.
What other corporate, strategic or business plans are expected to be provided in

the next 12 months?
Who is responsible for any of those plans and what is the timeframe?
Table 16: Key Comments by Stakeholders
Person /
Representative
1.
HASAN BUSHORI:
DAN (ATS routes and
SID/Starr Section)
Summary of Comments
Indicated that ATS route network within Indonesia needs to be
reviewed considering domestic traffic has increase substantially over
the last 5 to 10 years. In addition the traffic patterns no longer
represent the city pairs on the air routes.
Performance Based Navigation has a plan but there has been no
implementation to date.
2.
ERVITA:
DAN (Airspace
Management)
DAN (Airspace Section) in cooperation with AP I and AP II had

initiated a modification of some ATS route within Jakarta and
U.Pandang FIRs. This is ongoing and she offered to supply the
documentation
Referred to question on duty and function on IDSC, she mention that
because IDSC regulates domestic slots at the airport rather than
aerodrome, it causes disruption in regulating the flow of traffic onto
aerodrome and into airspace. She further mentioned that a CASR
relating to slot management is being developed.
INDONESIAN AIRSPACE
65
#
3.
Person /
Representative
AULIA:
DAN (ATS
requirement and
certification)
4.
DAMA, ANGGA,
HARI, BUDI, DAN
(CNS Infrastructure)
Summary of Comments
He mentioned that some domestic routes are already saturated and
need to be reviewed. This could done by implemented new routes or
exploiting new technology to reduce separation and thereby increase
route/airspace capacity.
According to him, there is a need to develop new requirement on
minimum ground systems on specific route to support reability of
communication and surveillance. There is no such identified plan or
programme.
In preparation to ATN implementation DGCA is conducting technical
testing on ATN with Singapore. No specific test report.
There is a need to improve surveillance capabilities in order to
support increasing of traffic density on airspace without radar
coverage. A question about any policy to implement ADS-B in the
near future. Indonesia will mandated ADS-B out for 2016 and an AIC
on the requirements is expected to be published sometime in 2013
(no specific date identified).
Ervita added that DAO is involved on ADS-B implementation.
5.
SRI LESTARI /QORY,

DAN (Aeronautical
Data Management)
Aeronautical Information Service in Indonesia now is progressing

from AIS to AIM. They are currently implementing ISO 9000 for
Aeronautical Data Management.
Detail programme/planning available and accessible.
6.
HERU / MEGA, DAN

(Charts and
Publication)
AIS is continuing to publish several maps and charts to complete

Indonesia AIP, such as Type A map as required for international
aerodrome.
7.
BAMBANG P SIGIT /
SRI MARDI ISMOYO,
(Angkasa Pura II
HO)
AP II recorded that number of traffic operating within Jakarta reached

1950 / day consisting traffic arrive/depart from Soekarno-Hatta and
international overflight.
In relation to airspace/route density they gave an example of two
airspaces Upper Palembang (UP) with 61 flight / hour and Upper
Semarang 51 flight/ hour. They dont know whether those two
airspaces already exceeding the capacity or not, however from an
ATC point of view it is already exceeding capacity. What the they
need to ascertain is the optimum capacity.
AP II has already re-sectorised their airspaces and the result had
been send to DAN (Airspace) for review and approval.
To manage traffic arrive to Jakarta FIR a new tool is being developed
to assist specific positions within JAATS to identify whether incoming
traffic to Jakarta FIR will exceeding the capacity at a certain period.
AP II is aware that this is not an easy task as there is no real
standard or capacity calculated for any route or airspace. They are
66
INDONESIAN AIRSPACE
ANNEXES
Person /
Representative
Summary of Comments
having trouble with assimilating flight plan data into the tool as there
are so many errors in flight plans received.
Even though it is planned to commission the tool in 2013, there is no
concept on its use, training on flow control or standards.
Summary, Observations and Outcomes
DGCA and AP I/AP II had already started to calculate airspace capacity however
they still need further guidance and some example.
DGCA/AP II has reviewed the existing ATS route structure, however there has been
no interaction with AP I.
Sectorisation has been reviewed within Jakarta FIR (for Upper Sector) however no
indication when it will put into operation as they are awaiting approval from DGCA.
There is a desire (but no plan) in DGCA to regulate an increase minimum

Communication and Surveillance reliability depending on the traffic density at a
given route/sector.
No information was forthcoming on an operation concept.

A lack of enthusiasm for more reports and an appetite for doing things was observed.
This could also partly stem from previous projects that had not delivered the results
expected by the stakeholders.
Good disposition towards a joint task force from different organisations to ensure
things are managed from start to finish and embedded in the organisation (project and
change management)
WORKSHOP 2 - TECHNICAL WORKSHOP

Administration
Location: Secretary of Directorate General Meeting Room 5th Floor, Karsa BuilidingMoT.
The team consisted of the following staff from IndII
Peter Atkins
The meeting was attended by the following personnel.
INDONESIAN AIRSPACE
67
Name
Position
Organisation
Ulul Azmi
DNP
DGCA
Cpt. Ali Nahgi
Captain
Indonesian Pilot Federation (FPI)
Cpt. Hasfrinsyah
Captain
Aji Mulyono
Inspector
M. Imam Maski
Head
DPC IATCA-Jakarta
Gatot Prianggodo
General Secretary
DPC IATCA-Jakarta
Moeji S.
Executive Secretary
IATCA-Jakarta
Robert Triaswanto
Supervisor ACC
AP II
Rusmanto
Manager Area Controller, ATS
AP II
Didi Purwadi
Manager ATS
AP II
Mursit B.U
ATC
AP II
Djoko Roempoko
MLLP
AP I
This was the working level workshop following on from an Executive level discussion
on the 5th of July to discuss airspace management at a technical level with staff from
DGCA, AP I, AP II and other stakeholders including airlines and industrial organisations.
It was to allow the consultants to develop project scope and tender specifications for
future projects. These future activities will provide the RI with an ATM Concept of
Operation, a revised airspace configuration including sectorisation and air route
structures, and the tools and methodologies to measure and manage capacity, as
required by the ATM Master Plan.
This workshop was undertaken using the following format.
A brief introduction with a PowerPoint presentation by the facilitator to ensure the

participants understood the aims and objects, and that the objectives of IndII
project 289 and #290 were understood and:
The facilitator led a structured discussion and attempted to involve all participates
so both the facilitator and the other participants understood the issues and
problems regarding Air Space and Capacity Management.
The facilitator summed up the outcomes and thanked the participants.
68
INDONESIAN AIRSPACE
ANNEXES
Discussion Points:
1. Airspace Management:
The integrated nature of air routes, sectorisation and capacity issues were explored
and discussed. Participants had the opportunity to explain technical and non technical
issues relating to Air Traffic Management and Capacity.
2. Concept Of Operation:
The facilitator led a discussion on the nature of the current ATM Master Plan and the
relationship between it and other documents as well as some perceived gaps at a
policy level.
The following are some brief points extracted from the discussion:
1. Air Routes and Sectorisation
Robert- AP II:
In relation to ATS Capacity, there are many issues that are a problem and lead to a lack
of capacity. These range from a lack of systems for flow management, no tools or
methodology to measure capacity and demand, and a lack of training. There are long
term plans but what is needed is a short term solution to some of the problems. One
solution which they are keep to progress quickly is the simple resectorisation of upper
airspace to solve a sector overlod situation. This plan needs to be approved by DGCA.
Communication and surveillance systems
Waya Fadini-DGCA
Waya questioned how to develop metrics for effective communication and the
standards against communications. Also, which is the best infrastructure for
communication and surveillance for any given airspace volume.
Andri-DGCA
Andri stated that a problem was the technology within modern aircraft is more
sophisticated than the technologies within the ground based system
Training
Hasfrinsyah- Indonesia Pilot Federation/FPI
Inadequate facilities for airspace management whilst input from aviation is all about
technology. For the application of these technologies training is required and he
thought that was a point there better training and procedures could greatly assist in
better capacity. How this was to be achieved seems to be a big issue. For example, he
believes that control tower staff would benefit from more training to assist in their
INDONESIAN AIRSPACE
69
ability to manage the traffic effectively. Training, procedures, and technology should
be walking together.
2. Flexible Air Space
There is some good co-ordination with the Military on some routes. However it would
be much better if air routes could cross military airspace as it would be much more
efficient

Industry representatives did interact with DGCA and AP I staff present.
A focus of industry for air routes is to make it simple and to be able to use the
technology they have (Lion Air). They would trade some additional track miles if it
means less delay. The air routes are far too complicated.
The resectorisation in the short term of Jakarta upper airspace should be expedited as
it seems to be a safety issue. Sector loading figures for upper airspace at some times of
the day are, prime facie, far in excess of the capacity of the Both DGCA and AP II may
need some support in terms of capacity modelling and metrics for this to be approved.
Flow control was seen to be a priority. Staff are keen to obtain flow control skills and
certification. They are developing their own software for pre departure and Enroute
flow control.
Strategic flow control by way of slot allocation was seen not to be working. Both ATC
and industry agree on this although they have opposite views on why.
An interesting systems engineering view by the federation of air pilots representative.
This is not the usual view and should be encouraged.
A common view that whatever the technology, proper training and experience was the
key to operating a high levels of demand.
An observation by the facilitator was that although air routes, sectorisation, and the
ability to model and measure capacity were components of increasing capacity, they
are only a part of the solution. Other issues are outside of the remit of this scoping
study.
An observation by the facilitator was that the participants were keen to see action
rather than another report as an outcome of this exercise.
An observation was the keen discussion and participation from all those present and
our thanks to them for their active participation.
70
INDONESIAN AIRSPACE
ANNEXES
WORKSHOP 3 DISCUSSION WITH AP II MANAGEMENT AND STAFF

Administration
Location: meeting room ATC Tower, Angkasa Pura II
The project team arranged a meeting with key ATC stakeholders in Angkasa Pura 2 at
Soekarno-Hatta airport. This activity was a part of the IndII Project 289 and #290 and
was intended to meet and discuss air route, ATC sectorisation, and capacity issues,
problems and solutions. It was also intended as an intelligence gathering exercise to
facilitate project #290 capacity study.
The team consisted of the following staff from IndII
Peter Atkins
John McCarthy
Novaro Martodihardjo
Annetly Ngabito
Soraya
The meeting was well attended by ATC and other staff from AP II.
Name
Position
Bapak Saryono
General Manager of ATC
Azmi Jamalullail
ATS Operation Coordinator
Rusmanto
Manager Area Control Centre
Budi Hendro Setiyono
Deputy General Manager of ATS Operational
Arief Widyantoro
ACC Controller-team of JAATS
Didi Purwadi
Manager ATS
Anton Krishna Caputra
ATS Automation Junior Manager
Isyar
ATS Regional Operation
Yuda
ACC Jakarta
Ali Sodikin
ATC
Muhamad Sobirin
ATC PBN Manager
Rahman
ATC Regional office Indonesia
Robert Triaswanto
ACC Supervisor.
INDONESIAN AIRSPACE
71
This meeting started with introduction from IndII regarding the purpose of the meeting
then continued with presentation from ATC, led by Bapak Saryono (General Manager
ATC) regarding the current state of staff and equipment at AP II and regarding issues
and current plans for improvement of ATM within the Jakarta FIR. Key points of the
PowerPoint presentation are listed below:
ATS Personnel at AP II.
Working hours
Runway characteristics and runway & taxiways characteristics
ATS Services Area have two runway: two flight right and two flight left (25 and 07).
The runway is about 3 km with runway capacity/hour is 52 until 74 (in peak
season).
Presented traffic movement graphics (2-8 July 2012), 1118 landing excluding Halim
Perdana Kusuma Airport, Halim itself has 150 landing.
Presented ARR & Dep. Traffic Movement graphics, there are more than 1900 traffic
hour/day flying over 245 height including Aceh and Pekan Baru. Each data available
in each area.
Facility, include:
1. Communication, VHF/HF Ground to Air, AFTN, Ground to ground (Airband),
VCCS (VSAp), Telecommunication.
2. Data movement of aircraft 2000-2001
3. Example traffic movement/ day, 52/hour
4. Forecast traffic movement (data 2003-2010), 2010-2030 only 3% and 20102012: 11%
5. Comparison of flight schedules, July 2011-July 2012 average increase of 7%. On
July 8, drop on the chart occur due to the school holiday.
Problem of Soekarno-Hatta Indonesia Airport (SHIA) was over capacity
Movement based on aircraft type
SHIA Traffic Services Program:

1. ATS Program (1)
a. Engineering: ATS human resources, AWOS-MET
b. ADC & APP-TMA:
72
Implementation the new sector and procedures (TWR) etc. There is no

study about this, but shortly (23rd August) will be open runway.
Operations will run on September. PBN is a business that has been
done on July 2, 2012 but still a step by step. The problem found are not
INDONESIAN AIRSPACE
ANNEXES
all aircraft operate in Indonesia having ability to implement the new

sector, for that ATS will provide training for them.
A-SMGCS
RNAV-I, barriers are not a hundred percent done cleaning for

compliance, within a few days to do SOP, training and practice.
Independent Departure Approach Parallel Runway (2012)
The New Sector & Procedures for Departure only (2013)
ATS Human Resources
c. ACC-En Route
Developing ATFM basic (jetfast)
RLS on Route B470, G579 by using surveillance 40 miles.
Re structurisation route (M 635, M 774, L 504)
Implementation of RNP-10 (UM & UK)
Re structurisation sector (2013), expected from 7 sectors to 11 sectors
ATS Human Resources, expected additional 200 people as air traffic

human resource
Improving of facilities and services: ADS-CPDLC (may be implemented in

2013).
d. ATS/BO and SYSFOR
Developing E-AIS/Briefing Offices
A-MHS-ATN Network Systems already installed in SHA and current

status was trial connection with Singapura, next week will try to have a
connection with Melbourne.
New Flight Plan Format, new format capable to 130 hours in advance
but Indonesia will using 150 hours, the operator behavior is not stable
yet.
Up grading data billing systems (2013), will make separate systems to

billing and statistics
ATS Human Resources, expected come from FPTI
2. Master Plan Grand Design Soekarno-Hatta Airport

This was the physical development plan for the aerodrome with the main point being
the proposal for a third runway that should increase capacity.
INDONESIAN AIRSPACE
73
Question & Response:

1. Ali Sodikin, ATC
ATC is currently anticipating the addition of a flight with a project designed to 2013.
Azmi, ATS operation coordinator
There are many more flights handled by ATC than are theoretically possible. The
runway theoretic capacity is 49/52 and in fact there were 72 flight movements per
hour at peak times. This will become a greater problem between 16 August and 3 Sep
this year as there 200 extra flight planned by 3 airlines.
2. Arief, ACC Controller:
Commented that the capacity issue can, in part, be blamed on airlines as they do
accept slot times they have no intention of abiding by. They accept an early slot and
delay their flight plan causing overload at peak times. Azmi, ATS operation coordinator
He requested aid by way of tools and assistance to guide the resectorisation process.
3. Arief, ACC Controller:
What is the next step will IndII do after this meeting is completed.
Asked for assistance with tools for capacity and sectorisation and training in those
tools.
How to make the airlines adhere to the schedule they made, what steps can IndII take
to help cope with the planned delay that resulted in traffic?
Pak Novaro provided an answer that one way to overcome this is to reject any delay
that comes with a regulation based on the CISR because AP I has the right to reject for
the sake of discipline and based on existing legislation (CISR), strict to the regulation.

There are few support resources to plan and undertake major changes such as flow
control, capacity studies, and resectorisation. Mostly, line personnel provide their time
and effort after their normal shift.
Whilst not in our scope of work it is noted that, prima facie, a significant part of the
capacity problem can be solved by regulation, letters of agreement, and enforcement
of agreed slot and departure times.
An effort has been made to resectorise from 7 to 11 upper sectors. This is based on
dividing current sectors along discrete air routes to divide the work and risk. This has
74
INDONESIAN AIRSPACE
ANNEXES
not yet been approved by DGCA, as there is insufficient justification or a safety case to
support it as yet. (Note our previous commitment to DGCA to provide advice on safety
case processes, which should assist this.)
Note the above point and a common them for tools and training on capacity and
sectorisation. The team undertook to provide some advice as soon as possible
regarding the sectorisation and other capacity/demand tools and training, as well as
ensuring it will be scoped within the (new) project.
The team provided a list of data they would be interested in gathering to support the
scoping study. AP II undertook to discuss this with the team on a convenient day in
week beginning 30 July and provide whatever information they could to support the
scoping study.
An observation was the keen discussion and participation from AP II staff and our
thanks to them for their active participation.
WORKSHOP 4 INDIVIDUAL PRESENTATIONS AND REVIEW OF SCOPE OF WORK

Early drafts of the Scopes of Work were provided to the key stakeholders for comment
before finalisation. The stakeholders and their comments are shown in the following
table:Stakeholder
Organisation
Response
Ibu (Fifi) Arfiyanti Samad
DGCA Secretariat
None
Novie Riyanto and staff
Sub-Directorate of Air
Navigation
Signified that the SOWs were

satisfactory.
Wisnu Daryono and staff
Sub-Directorate of Air
Navigation
Comments provided
Pak Maskon and Staff
AP II
Comments provided
AP II
INDONESIAN AIRSPACE
None
75
REFERENCES
The following documents have been referenced as they were useful resources to guide
the scoping study and assist in formulating the Scope of Work. In addition documents
have been referenced that may be useful for any entity responding to the scope of
work or in entering into the work against the scope of work.
ATS. (1992). ATS Planning Manual, Part 2. Methods of Application Employed by ATS. Air
Traffic Services (ATS).
ATS Jakarta. (2012). Air Traffic Services, Soekarno-Hatta Airport.
ATSP FG & CNS/ATM Focused Team. (1999). Airline Metric Concepts for Evaluating ATS
Performance.
CANSO. (2012). Air Navigation Service Provider Performance Results 2006-2010. Canso
ATM Report & Directory 2012.
CANSO. (2012). Accelerating Air Traffic Management Efficiency: A Call to Industry. Feb
2012. CANSO & Boeing.
Daily Aircraft Movement 00.00 12.59 And 13.00-23.59 April 2012.
De Nijs LLJ, Thijssen BA, Ruigrok RCJ, The Use of Aircraft Intent Information in the
Ground ATM System: Initial Results of Real-Time Human-In-The-Loop
Simulation Experiments. FAA-Eurocontrol Workshop on The Impact of
ATM/CNS Evolution on Avionics and Ground Systems Architectures, June
2002,
Toulouse
France,
June
2002
Online: http://www.intentproject.org/papers/Paper_DeNijs_Toulouse.pdf
Direktorat Jenderal Perhubungan Udara. (2005). Cetak Biru: Transportasi Udara 20052024 (Konsep akhir)/PDF version. Departemen Perhubungan: Direktorat
Jenderal Perhubungan Udara.
Direktorat Jenderal Perhubungan Udara. (2005). Cetak Biru: Transportasi Udara 20052024 (Konsep akhir)/Word doc. version. Departemen Perhubungan: Direktorat
Jenderal Perhubungan Udara.
Dorfman, S., DeArmon, J., Devlin, C. J. & Williams, S. (2009). Integrated RNAV
Procedure Design: City-Pair Analysis. 28th Digital Avionics Systems Conference
October 25-29, 2009. The MITRE Corporation.
EUROCONTROL. (2003). Manual For Airspace Planning. European Organisation for the
Safety of Air Navigation (EUROCONTROL).
EUROCONTROL. (2003). Manual For Airspace Planning, Vol. 2. European Organisation
for the Safety of Air Navigation (EUROCONTROL).
76
INDONESIAN AIRSPACE
REFERENCES
EUROCONTROL. (2010). Airspace Concept Handbook for the Implementation of

Performance Based Navigation (PBN), EUROCONTROL Edition 2.0. European
Organisation for the Safety of Air Navigation (EUROCONTROL).
EUROCONTROL. (2010). Guideline, The ASM Handbook, Airspace Management
Handbook for the Application of the Concept of the Flexible Use of Airspace.
European Organisation for the Safety of Air Navigation (EUROCONTROL).
EUROCONTROL. (2012). European Airspace Design Methodology - Guidelines, Part 1.
European Organisation for the Safety of Air Navigation (EUROCONTROL).
EUROCONTROL. (2012). European Route Network Improvement Plan, Part 1. European
Organisation for the Safety of Air Navigation (EUROCONTROL).
Fedeau, A.D. (2011). Application for Operations Approval for Lion Air (MLI), RNP AR
Operations. Lion Air.
Federal Aviation Administration. (2005). Airspace Management Handbook. Version 2.2
December 2005. The Mitre Corporation.
Federal Aviation Administration. (2007). Concept of Operations for the Next Generation
Air Transportation System. Draft 5, Version 1.2. February 2008. Joint Planning
and Development Office.
Gupta S & Bertsimas D. (2011). Multistage Air Traffic Flow Management under
Capacity Uncertainty: A Robust and Adaptive Optimisation Approach. August
2011. MIT, research funded by NSF Grant and a grant from Lincoln Labs.
Gupta S. (2012). A Tractable Optimization Framework for Air Traffic Flow Management
Addressing Fairness, Collaboration and Stochasticity (PhD Thesis, MIT). June
2012.
Hilburn, B, PhD (2004). Cognitive Complexity in Air Traffic Control: A Literature Review.
Feb 2004. Center for Human Performance Research (NL)
ICAO Doc 9613. (2008). Performance-based Navigation (PBN) Manual. 3rd Ed.
International Civil Aviation Organization (ICAO).
ICAO Doc 9689. (1984). Air Traffic Services Planning Manual. 1st (Provisional) Ed.
ICAO Doc 9689. (1984). Air Traffic Services Planning Manual, Part II (Methods Of
Application Employed By Air Traffic Services). International Civil Aviation
Organization (ICAO).
ICAO Doc 9689. (1984). Air Traffic Services Planning Manual, Part III (Facilities Required
By ATS). International Civil Aviation Organization (ICAO).
INDONESIAN AIRSPACE
77
ICAO Doc 9689. (1984). Air Traffic Services Planning Manual, Part IV (ATS Organization,
Administration and Facility Management). International Civil Aviation
ICAO Doc 9689. (1984). Air Traffic Services Planning Manual, Part V (Term &
References). International Civil Aviation Organization (ICAO).
ICAO Doc 9854. (2005). Global Air Traffic Management Operational Concept.
ICAO Doc 9859. (2009). Safety Management Manual (SMM). 2nd Ed. International Civil
Aviation Organization (ICAO).
ICAO Doc 9859. (2012). Safety Management Manual (SMM). 3rd Ed (advanced edition).
ICAO. (2010). Annex 6, Part 1 - Operation of Aircraft, International Commercial Air
Transport Aeroplanes. 9th Ed. International Civil Aviation Organization (ICAO).
ICAO. (2011). Sixth Meeting of the Southeast Asia, Sub-Regional ADS-B Implementation
Working Group (Sea ADS-B WG/6). International Civil Aviation Organization
(ICAO).
ISO27k Forum. (2010). ISO 2700 Change Management for IT Security.
Jgare, P. (2011). Airspace Sectorisation Using Constraint Programming. Department of
Information Technology.
Jaurena, R. (2009). Guide for the Application of a Common Methodology To Estimate
Airport and ATC Sector Capacity for the SAM Region. Regional Project: ICAO
RLA/06/901. Lima, Peru, 6 to 17 July 2009. International Civil Aviation
JETFAST Team. (2012). The Concept of Airspace Upper Control Jakarta Restructuring,
Bahasa.
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Indonesian Airspace

INDONESIA INFRASTRUCTURE INITIATIVE

RELATIONSHIPS OF PROPOSED PROJECTS ............................................... 2

CHAPTER 2: CONTEXT ............................................................................................... 5

CHAPTER 3: STAKEHOLDERS ................................................................................... 19

CHAPTER 4: KEY FINDINGS...................................................................................... 25

CHAPTER 5: PROJECT IMPLEMENTATION ................................................................ 34

5.2.3 Inclusion of the Approach in the SOWs.................................. 35

CHAPTER 6: METRICS & KEY PERFORMANCE INDICATORS ....................................... 39

NEED FOR THE PROJECTS ................................................................. 48

STRENGTHS, WEAKNESSES & THREATS ...................................... 50

Figure 10: Ujung Pandang Current Sectorisation ....................................................... 14

Aeronautical Information Publication

Air Navigation Services Provider

Angkasa Pura formerly Angkasa Pura 1 (Airport and ATM Authority

Angkasa Pura 2 (Airport and ATM Authority Jakarta)

Air Traffic Control

Air Traffic Flow Management

Air Traffic Management

Air Traffic Services

Jakarta Soekarno-Hatta International Airport IATA Code (refer

Communication, Navigation and Surveillance

Communications, Navigation, Surveillance/Air Traffic Management

Directorate General Civil Aviation

Federal Aviation Administration (USA)

Flight Information Region

Fast Time Simulation

Human Machine Interface

International Civil Aviation Organization

Jakarta Air Traffic Control

Performance Based Navigation

Procedures for Air Navigation Services - Aircraft Operations,

Procedures for Air Navigation Services-Air Traffic Management,

Required Navigation Performance

Required Navigation Performance Approach Authorization Required

Standards and Recommended Practices

Soekarno-Hatta International Airport, Jakarta (refer also CGK, IATA

Safety Management System

Safety Risk Assessment

Standard Operating Procedures

World Geodetic System,1984

ii. A Resectorisation Plan for Indonesian airspace, including a re-design of the

Project: IndII Activity #290

New navigation technology: the introduction of Performance-Based Navigation

Introduction of Air Traffic Flow Management (ATFM) and Collaborative Decision

Estimated Effort & Timeframe

Consultants: 9 person mths

Elapsed: 4-6 months

Effort required is estimated to be

The elapsed time for the project

Consultants: ... AU $445,000

Consultants: ... AU $660,000

Figure 1: Proposed Project Indicative Schedule

various findings of the project team, as follows;

other background information that may be useful to the consultants undertaking

a summary of how the Scoping Study was conducted.

RELATIONSHIPS OF PROPOSED PROJECTS

Both these supporting projects are outlined below.

Development of a Concept of Operations for Air Traffic Management.

safety and diminishes efficiency. The inconsistencies develop because decisions

Development of Capacity Analysis Capability.

SCOPING STUDY OBJECTIVES

Define the roles of each of the aviation agencies in the