Explanatory Statement
Civil Aviation Regulations 1988
Direction — number of cabin attendants
Legislation
Subsection 98 (1) of the Civil Aviation Act 1988 (the Act) provides that the Governor-General may make regulations for the Act and in the interests of the safety of air navigation.
Under regulation 208 of the Civil Aviation Regulations 1988 (CAR 1988), CASA may give directions as to the operating crew required to be carried on an aircraft having regard to the safety of air navigation. Subparagraph 6.1 (b) of Civil Aviation Order 20.16.3 (CAO 20.16.3) was made under regulation 208 and provides, among other things, that aircraft carrying more than 36 and not more than 216 passengers must carry a cabin attendant for each unit of 36 passengers or part of that number.
The requirements in subparagraph 6.1 (b) of CAO 20.16.3 have remained in the same form since 1960 and as such represent a 52 year gap since a reassessment of cabin attendant numbers against a criterion of allowable seating rather than passenger numbers.
Embraer 170-100 certification of the aircraft relates to the design of the floor plan and the seating configuration in relation to the location of exits. CASA does not call for a re‑evaluation of the aircraft design; instead, CASA accepts the design criterion. CASA does require operators to demonstrate the safety procedures that are specific to the operator, which are evaluated, thus there is a distinction between the certification criterion and an operator-imposed safety procedure which may or may not enhance the evacuation of the aircraft in an emergency evacuation.
CASA is satisfied that the evacuation of a full complement of passengers for the Embrarer 170-100 aircraft is able to be achieved in a time of 90 seconds. CASA is satisfied that the evacuation procedures adopted by Capiteq Limited, trading as Airnorth (the operator), to support their application to operate with the certification criterion of 2 cabin attendants to a maximum of 78 seats fitted to the aircraft have been demonstrated successfully. The maximum permitted time of 90 seconds is set out as a condition in Schedule 1 of the instrument.
The other conditions include a requirement that the briefing of passengers in self-help exit rows must be as approved by CASA and in the manner set out in the operator’s operations manual.
Legislative Instruments Act
Under subparagraph 6 (d) (i) of the Legislative Instrument Act 2003 (the LIA), an instrument is a legislative instrument for section 5 of the LIA if it is declared to be a disallowable instrument under legislation in force before the commencement of the LIA. Under regulation 5A of CAR 1988, if CASA has issued a Civil Aviation Order (CAO), and CASA later issues a direction that affects the operation of the CAO, the later document is declared to be a disallowable instrument. The instrument affects the operation of subparagraph 6.1 (b) of CAO 20.16.3. As a legislative instrument, it is subject to tabling and disallowance in the Parliament under sections 38 and 42 of the LIA.
Consultation
This instrument replaces instrument CASA 489/11 which stopped having effect at the end of May 2012. CASA had consulted both internally and with the operator prior to issuing that instrument. The instrument is also similar to instruments issued to other operators that have been the subject of consultation within CASA and with other bodies.
Senate Committee concerns
This direction provides for the operator to meet a new standard for cabin crew numbers. The new standard differs from that currently promulgated in CAO 20.16.3, but it is considered to be a standard consistent with international safety standards and practice.
The development and preparation of suitable CAO amendments to avoid the need for individual directions and set a suitable standard for cabin crew numbers is also continuing.
Compatibility with human rights and freedoms
This instrument is compatible with the human rights and freedoms recognised or declared in the international instruments listed in section 3 of the Human Rights (Parliamentary Scrutiny) Act 2011 as it does not raise any human rights issues. It does not engage any of the applicable rights or freedoms.
Commencement and making
The instrument commences on the day after registration and stops having effect at the end of 31 May 2013.
The direction has been issued by a delegate of CASA under subregulation 11.260 (1) of the Civil Aviation Safety Regulations 1998.
[Instrument number CASA 196/12]
Overview
The Civil Aviation (All Aircraft) Instrument 2012 (No. 1) was enacted to address a longstanding issue regarding the number of cabin attendants required on aircraft based on passenger numbers, a criterion that has remained unchanged since 1960. This legislation amends the Civil Aviation Regulations 1988 to provide for a more contemporary and safety-oriented approach to cabin crew requirements, particularly in the context of modern aircraft configurations. The Civil Aviation Act 1988 empowers the Governor-General to make regulations for aviation safety, and this instrument is a manifestation of that power. The primary policy objective is to ensure that cabin crew numbers are aligned with contemporary safety standards and practices, thereby enhancing passenger safety during evacuations. The instrument is subject to disallowance under the Legislative Instruments Act 2003 and was developed following consultation with the relevant operator and internal stakeholders within CASA. The instrument also aims to harmonise with international safety standards and practices while ensuring compatibility with human rights and freedoms as recognised in relevant international instruments.
Scope and Application
The Civil Aviation Regulations 1988, as amended, and the associated Civil Aviation Order 20.16.3, pertain to the requirements for cabin attendants on aircraft. These regulations apply to aircraft operators within Australia, ensuring that the number of cabin attendants on board is commensurate with the safety of air navigation. Specifically, aircraft carrying more than 36 and not more than 216 passengers must have a cabin attendant for each unit of 36 passengers or part of that number, as stipulated under the Civil Aviation Order. The application of these regulations is overseen by the Civil Aviation Safety Authority (CASA), which has the authority to issue directions to ensure compliance with safety standards. The legislation extends its application through subordinate instruments, such as the Civil Aviation Order, which is subject to tabling and disallowance in the Parliament under the Legislative Instruments Act 2003. This legislative framework ensures that cabin crew numbers align with international safety standards, addressing concerns from both regulatory bodies and the Senate Committee. The regulations do not specify any exclusions or thresholds beyond those already established by the Civil Aviation Order.
Key Provisions
The Civil Aviation Regulations 1988, as amended, specify the number of cabin attendants required on an aircraft based on the passenger capacity. Under section 98(1) of the Civil Aviation Act 1988, the Governor-General may make regulations for the Act, and regulation 208 of the Civil Aviation Regulations 1988 (CAR 1988) allows the Civil Aviation Safety Authority (CASA) to issue directions regarding the operating crew needed for safe air navigation. Specifically, subparagraph 6.1(b) of Civil Aviation Order 20.16.3 (CAO 20.16.3) states that aircraft carrying more than 36 but not more than 216 passengers must have a cabin attendant for each unit of 36 passengers or part of that number. This requirement has not been updated since 1960, representing a significant gap in reassessment.
The obligations imposed by the Civil Aviation Regulations 1988 are clear and straightforward. Operators of aircraft must ensure that they comply with the number of cabin attendants specified in CAO 20.16.3. For aircraft carrying between 36 and 216 passengers, they must provide a cabin attendant for each unit of 36 passengers. For example, an aircraft carrying 72 passengers must have two cabin attendants. Furthermore, operators must demonstrate to CASA that their safety procedures, including emergency evacuation procedures, are adequate. This demonstration is crucial to ensuring that the evacuation of all passengers can be completed within the stipulated 90 seconds.
There are no specific offences or penalties outlined in the Civil Aviation Regulations 1988 for failing to comply with the cabin attendant requirements. However, non-compliance with CASA directions or orders could potentially result in broader regulatory consequences. These may include fines, operational restrictions, or other enforcement actions taken by CASA to ensure compliance with safety regulations. The specific consequences would depend on the nature and severity of the non-compliance. It is also important to note that the instrument is subject to tabling and disallowance in Parliament, as per the Legislative Instruments Act 2003.
This direction is designed to meet a new standard for cabin crew numbers, which is consistent with international safety standards and practices. The new standard differs from the existing requirements in CAO 20.16.3 but is considered more aligned with contemporary safety expectations. The instrument also states that it is compatible with human rights and freedoms, as it does not raise any human rights issues and does not engage any of the applicable rights or freedoms. The instrument commenced on the day after its registration and will cease to have effect at the end of May 2013, providing a temporary measure until more comprehensive amendments to the CAO can be implemented.