Explanatory Statement
Civil Aviation Regulations 1988
Direction — number of cabin attendants in Boeing 737-800 series aircraft (Qantas Airways Limited)
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 (CAO) 20.16.3 was made under regulation 208 of CAR 1988 and provides 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 56 year gap since a reassessment of cabin attendant numbers against a criterion of allowable seating rather than passenger numbers. In a report published in 1990 named Review of policies and practices for first-of-type certification of imported aircraft, CASA recommended the recognition of the Federal Aviation Administration of the United States of America and the Joint Aviation Authorities (Europe), now European Aviation Safety Agency, certification standards. The recommendation was adopted.
Instrument
This direction allows Qantas Airways Limited (the operator) to operate an Australian registered Boeing 737-800 series aircraft engaged in regular public transport, or charter, operations if it carried 1 cabin attendant for every 50 passenger seats or part of that number. The cabin attendant ratio applies only to aircraft with maximum seating capacity of 189 passengers and with a type certificate data sheet that permits that ratio to be used. This instrument continues the direction given in instrument CASA 109/15, which expires at the end of July 2016.
The direction is subject to conditions in the interest of aviation safety. Among other things, the operator must ensure that only physically competent (able-bodied) persons may occupy seats in seat rows designated as emergency exit rows in order to assist, where required, effective evacuation of the aircraft. The operator must also ensure all passengers seated in the emergency exit rows receive and respond to briefing on the operation of emergency exits and the actions required during an emergency. The operator must also ensure that the aircraft can be evacuated in the maximum permitted time of 90 seconds.
CASA has assessed the operator’s safety risk assessment, which satisfactorily addresses concerns regarding the increase in passenger numbers per cabin crew member. The operator has continued to provide effective demonstration of emergency evacuation procedures with a 1:50 cabin attendant to passenger seats ratio. CASA is also satisfied the evacuation of a full complement of passengers for the aircraft is able to be achieved in a time of 90 seconds, and that the evacuation procedures adopted by the operator to support its application with the certification criterion for the number of cabin attendants have been demonstrated successfully.
The question of cabin attendant ratios under CAO 20.16.3 is subject to ongoing discussion, and the current instrument will only be in force up to the end of 31 July 2018. Instruments of this type are being issued for limited periods only. It is hoped that there will be a resolution of the issues involved, making the issue of individual directions to operators unnecessary.
Legislation Act 2003 (the LA)
Under section 57A of the LA, an instrument is a legislative instrument for section 8 of the LA if it is declared to be a disallowable instrument under legislation in force before 1 January 2005.
Under regulation 5A of CAR 1988 (which was in force before 1 January 2005), if CASA has issued a 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 LA.
Consultation
The instrument has been issued at the request of the operator and continues the direction under instrument CASA 109/15, which expires at the end of July 2016. CASA consulted internally and with the operator before issuing this instrument. Consultations included review of adequate safety risk management plans and systems in support of the operator’s application for the instrument.
Consultation has also taken place on the increase in the number of passengers to cabin attendants in relation to many instruments applying the same ratio. CASA is satisfied that it can safely continue to issue directions under regulation 208 on the basis of the criteria previously mentioned in this statement.
In these circumstances, it is CASA’s view that it is not necessary or appropriate to undertake any further consultation under section 17 of the LA.
Senate Committee concerns
This direction provides for the operator to meet a standard for cabin crew numbers that 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 standards with appropriate conditions is also continuing in conjunction with the preparation of new regulations applicable to all air transport operators.
Statement of Compatibility with Human Rights
A Statement of Compatibility with Human Rights is at Attachment 1.
Office of Best Practice Regulation (OBPR)
A Regulation Impact Statement (RIS) is not required for this instrument, because the instrument is covered by a standing agreement between CASA and OBPR under which a RIS is not required for directions (OBPR id: 14507).
Making and commencement
The instrument has been made by a delegate of CASA relying on the power of delegation under subregulation 11.260 (1) of CASR 1998.
The instrument commences on 1 August 2016 and is repealed at the end of 31 July 2018.
[Instrument number CASA 80/16]
Attachment 1
Statement of Compatibility with Human Rights
Prepared in accordance with Part 3 of the
Human Rights (Parliamentary Scrutiny) Act 2011
Direction — number of cabin attendants in Boeing 737-800 series aircraft
(Qantas Airways Limited)
This legislative 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.
Overview of the legislative instrument
This instrument allows Qantas Airways Limited to operate an Australian registered Boeing 737-800 series aircraft engaged in regular public transport, or charter, operations if it carries 1 cabin attendant for every 50 passenger seats or part of that number, for a maximum seating capacity of 189 passengers.
The primary purpose of the legislative instrument is to allow the operator, in relevant circumstances, to operate those aircraft with fewer cabin attendants than would otherwise be required by Civil Aviation Order 20.16.3. The direction is subject to conditions, imposed in the interests of aviation safety, about seating and briefing of passengers, and the ability to quickly evacuate the aircraft.
Human rights implications
This legislative instrument does not engage any of the applicable rights or freedoms.
Conclusion
This legislative instrument is compatible with human rights as it does not raise any human rights issues.
Civil Aviation Safety Authority