SERTIFIKASI LEMBAGA PENYELENGGARA PELAYANAN LALU LINTAS PENERBANGAN DI INDONESIA

POKOK PERMASALAHAN

1. Belum ada mekanisme usaha penjaminan mutu (quality assurance) secara terpadu bagi lembaga penyelenggara pelayanan lalu lintas penerbangan di Indonesia.

2. Direktorat Jenderal Perhubungan Udara belum melakukan inisiasi penerbitan Peraturan Keselamatan Penerbangan Sipil (PKPS) yang terpadu terkait dengan sertifikasi penyelenggara pelayanan lalu lintas penerbangan sebagai petunjuk pelaksanaan dan teknis.

3. Lembaga penyelenggara pelayanan lalu lintas penerbangan di Indonesia belum bisa melakukan penyusunan dokumen operation manual dan kelengkapan dokumen lainnya sebagai syarat untuk mengajukan permohonan untuk mendapatkan sertifikat pelayanan lalu lintas penerbangan.

KENDALA IMPLEMENTASI

Dalam hal usaha implementasi Peraturan Keselamatan Penerbangan Sipil (PKPS) terkait dengan rencana pelaksanaan sertifikasi lembaga penyelenggara pelayanan lalu lintas penerbangan di Indonesia terkendala beberapa hal sebagai berikut:

a. Adanya potensi penafsiran yang membingungkan tentang jenis pelayanan navigasi penerbangan dan Lembaga penyelenggara pelayanan navigasi penerbangan yang wajib memiliki sertifikat pelayanan.

Berdasarkan Undang Undang no 1 Tahun 2009 tentang Penerbangan pada pasal 270, disebutkan bahwa:

Jenis pelayanan navigasi penerbangan sebagaimana dimaksud dalam Pasal 261 ayat (4) huruf d meliputi:

1) Pelayanan lalu lintas penerbangan (air traffic services);

2) Pelayanan telekomunikasi penerbangan (aeronautical telecommunication services);

3) Pelayanan informasi aeronautika (aeronautical information services);

4) Pelayanan informasi meteorologi penerbangan (aeronautical meteorological services); dan

5) Pelayanan informasi pencarian dan pertolongan (search and rescue).

Sedangkan pada 275 yang berbunyi sebagai berikut:

1) Lembaga penyelenggara pelayanan navigasi penerbangan wajib memiliki sertifikat pelayanan navigasi penerbangan yang ditetapkan oleh menteri.

2) Sertifikat diberikan kepada masing-masing unit pelayanan penyelenggara navigasi penerbangan

3) Unit pelayanan penyelenggara navigasi penerbangan terdiri atas:

a) Unit pelayanan navigasi penerbangan di Bandar udara

b) Unit pelayanan navigasi pendekatan dan

c) Unit pelayanan navigasi penerbangan jelajah

Sedangkan Keputusan Menteri / Peraturan Keselamatan Penerbangan Sipil No.172 tentang Lembaga Penyelenggara Navigasi Penerbangan (Air Traffic Service Provider), menyebutkan bahwa :

Each air traffic service provider have to have certificate as according to each service unit as follows:

1) Air Traffic Control Unit

a) ACC (Area Control Centre);

b) APP (Approach Control);

c) ADC (Aerodrome Control)

d) Communication Operation Unit :

2) FIC (Flight Information Centre);

a) FSS (Flight Service Station)

b) AFAS (Aerodrome Flight Advisory Service)

c) AFIS (Aerodrome Flight Information Service)

d) Un-Attended Aerodrome (Aeronautical Mobile Service)

e) Aeronautical Station

f) AFS (Aeronautical Fixed Service)

3) Aeronautical Informaton Service Unit

a) Air Traffic Service Reporting Office

b) Notam Office

4) Meteorology Office

Dari uraian diatas disimpulkan bahwa terdapat potensi ambiguitas penafsiran yang ditunjukan UU no 1 tahun 2009 pasal 270 tentang jenis pelayanan navigasi penerbangan yang tidak serta merta mencerminkan unit pelayanan navigasi penerbangan yang harus disertifikasi.

Potensi ambiguitas ini juga ditunjukkan antara UU no 1 tahun 2009 dengan PKPS no 172 yang menunjukkan adanya perbedaan unit pelayanan navigasi penerbangan yang harus disertifikasi.

b. Peraturan perundangan baik dalam bentuk Undang-Undang (UU), Peraturan Pemerintah (PP) dan Keputusan Menteri (KM) atau kemudian disebut sebagai Peraturan Keselamatan Penerbangan Sipil (PPKS) atau Civil Aviation Safety Regulation (CASR), baru pada tahap memberikan amanat baik kepada Menteri Perhubungan melalui Direktorat Jenderal Perhubungan Udara untuk melakukan sertifikasi kepada lembaga penyelenggara navigasi penerbangan di Indonesia.

Dalam hal petunjuk pelaksanaan tugas bagi para regulator dalam melaksanakan kegiatan sertifikasi belum terbit Staff Instruction (SI).

Dalam hal petunjuk pelaksanaan tugas bagi para operator/ lembaga penyedia jasa navigasi penerbangan dalam melaksanakan kegiatan sertifikasi berupa manual of Standar (MOS) dan Operation Manual (OM) belum diterbitkan Advisory Cirvcular (AC).

KERANGKA RESOLUSI

Sebuah peraturan untuk dapat dilaksanakan perlu dilengkapi dengan petunjuk pelaksanaan operasional (Advisory Circular) dan petunjuk teknis pelaksanaan (Staff Instruction).

Civil Aviation Safety Regulation Part 172 belum dapat diimplentasikan karena Direktorat Jenderal Perhubungan Udara belum menetapkan petunjuk pelaksanaan operasional (Advisory Circular) dan petunjuk teknis pelaksanaan (Staff Instruction).

Sesuai Civil Aviation Safety Regulation Part 172 pemerintah perlu menetapkan Manual of Standards (MOS) Air Traffic Services Provider yaitu panduan yang harus dipenuhi oleh Air Traffic Services Provider dalam malaksanakan pemberian pelayanan lalu lintas penerbangan dan Operations Manual Air Traffic Services Provider adalah dokumentasi Air Traffic Services Provider dalam mematuhi isi dari Manual of Standards (MOS) Air Traffic Services Provider sebagai petunjuk pelaksanaan operasional (Advisory Circular) dan petunjuk teknis pelaksanaan (Staff Instruction) sebagai panduan bagi petugas Direktorat Jenderal Perhubungan Udara dalam melakukan penilaian terhadap pelaksanaan sertifikasi terhadap Air Traffic Services Provider.

1. Rancangan Manual of Standards (MOS) Air Traffic Services Provider, Operations Manual Air Traffic Services Provider dan Petunjuk Teknis Pelaksanaan (Staff Instruction)

a. Rancangan Manual of Standards (MOS) Air Traffic Services Provider

Secara garis besar Manual of Standards (MOS) Air Traffic Services Provider sesuai CASR Part 172 pasal 172.022 berisikan :

1) Standard for procedures, systems and documents used to provide an air traffic services.

2) Standard for facilities and equipments used to provide an air traffic services

3) Standard for the training and checking of an ATS provider”s personel

4) Procedures of affectivity evaluation was in air traffic service.

Standard for procedures, systems and documents used to provide an air traffic services sesuai CASR Part 172 division 172.C.2 berisikan :

1) Standards for air traffic service

2) Aeronautical telecommunications procedures

3) Priority of procedures

Standard for facilities and equipments used to provide an air traffic services sesuai CASR Part 172 division 172.C.2 berisikan :

1) Air Traffic Service Provider have to ensure the guarantee of equipment and facilities for air traffic service can be used by personel in accordance with manual of standard.

2) Equipment must be standardized in accordance with the equipment type that measurement available at manual of standard

3) Equipment and facilities used by Air Traffic Services Provider in accordance with Chapter 6 annexes 11.

4) Air Traffic Services Provider used control tower, have to ensure the guarantee of control tower building is designed, allocated, built, equipped and maintained in accordance with manual of standard.

Standar untuk training dan checking bagi personel sesuai CASR Part 172 division 172.C.4 menjelaskan Training yang harus diberikan kepada personel Air Traffic Services Provider yaitu :

Air traffic service units must guarantee training program and checking in accordance with MOS, their personnel who done their function and duty for air traffic service is competence personnel to execute the function.

Dan sesuai Advisory Circular Part 69, training yang harus diberikan kepada personel adalah :

1) Semua training baik training dalam pemberian pelayanan lalu lintas penerbangan dan training peralatan baru.

2) Emergency training

3) Refresher training

Procedures of affectivity evaluation was in air traffic service sesuai CASR Part 172 sesuai Division 172.C.7 berisikan:

1) Reference Material

2) Document and record

3) Document and record control system

4) Logbooks

Selain yang tersebut diatas Manual of Standards Air Traffic Services Provider sesuai CASR Part 172 sesuai Division 172.C.6 tentang persyaratan yang harus dipenuhi sebagai ATS Provider yaitu :

1) Personel

Sesuai CASR Part 172 Subpart 172.110 menyatakan, “Air traffic service provider must have enough personnel quantities and qualification and training were suitable with their duty and function in provided air traffic service”

2) Safety Management System

Sesuai CASR Part 172 Subpart 172.145 menyatakan :

a) Unit of air traffic service must have and execute system of safetymanagement covers policy, procedure, and execution required to provide air traffic services as contained in safety approval

b) System of safety management must in accordance with MOS

c) The unit of air traffic service must maintain to recheck the system ofsafety management and take some action which against correctional needed to ascertain operate properly.

3) Contingency Plan

Sesuai CASR Part 172 Subpart 172.150 menyatakan

a) Unit of air traffic service must have contingency plan according to MOS and procedure in accordance with SOP with one reason is interrupted by user.

b) Plan must covers :

(1) Action must be taken by competence personnel given service

(2) Alternative priority for giving service ; and

(3) Normal operation priority for continuance service

4) Security Program

Sesuai CASR Part 172 Subpart 172.155 menyatakan

a) Air traffic service must have and execute security program relate todesigned procedure to protect personnel, and facilities and equipments as used in provided air traffic service

b) Security Program must in accordance with MOS

Adapun dokumen yang dijadikan referensi untuk menentukan standar yang harus ditetapkan didalam MOS ATS Provider adalah sebagai berikut :

NO	Materi	Peraturan Indonesia	Peraturan ICAO	Perbedaan
1. 2. 3. 4. 5. 6. 7. 8. 9. 10. .	Provision Air Traffic services Aeronautical telecommunication Procedure Standard for facilities and equipment Standard training and checking Personel Safety Management System Contingency Plan Security Program Document and record Document and record control system Logbooks	AC Part 170-02 AIP Part 1 and 2 No regulation AC Part 69 AC Part 69 PKPS Sistim Manajemen Keselamatan CASR Part 170 No regulation No regulation No regulation AC Part 69	Annex 11 Doc 4444 Annex 10 Doc 9426 Doc 9426 Doc 9426 Doc9859 Doc 9426 Doc 9426 Doc 9426 Doc 9426 Doc 9426	Comply Comply No comply Comply Comply Comply Comply No comply No comply comply

b. Rancangan Operations Manual Air Traffic Services Provider

Isi Operations Manual Air Traffic Services Provider sesuai CASR Part 172 pasal 172.060 yaitu :

1) Air Traffic Services Provider must maintain operation guidance pursuant to Manual of Standard (MOS) according to CASR Part 172 Subparts 172.022.

2) Air Traffic Services Provider has to have Standard Operating Procedure(SOP)

3) Completion of SOP input into the Operations Manual as an separated amendement of SOP

Selain itu Operations Manual Air Traffic Services Provider sesuai CASR Part 172 pasal 172.105 berisi :

Air Traffic Services Provider must keep organization in accordance with type and management structure to be able to provided air traffic service pursuant

Dan sesuai Subpart 172.125 tentang agreements with service providers menyatakan :

1) Service Provider meant legal body which given certificate of air traffic service operation

2) Air Traffic Services Provider has to have agreement with provider of telecommunication service or service of flight navigation, aeronautical information service, aeronautical meterology service and SAR needed for supporting air traffic service.

Kemudian Subpart 172.130 tentang agreement with Aerodrome Operators menyatakan :

Air traffic service provider that provided air traffic service at air region of airport, Air Traffic Services Provider has to have agreement with airport operator cover arrangement of plane, vehicle and people in region of airport movement.

Kemudian sesuai Subpart 172.135 Operations Manual tentang arrangement for transfer of information menyatakan:

1) Unit of air traffic service must guarantee continuously to get air traffic control services and aeronautical communication services in their responsibility region.

2) Unit of air traffic service must guarantee kept performance capability for up to date information related to their air traffic service to others that their duty or function needed the above information.

c. Rancangan Petunjuk Teknis Pelaksanaan (Staff Instruction)

1) Persyaratan Yang Diperlukan

Sesuai CASR Part 172 Subpart 172.215 menyatakan :

a) Legal body must forward the written application as a unit of air traffic service.

b) Letter of intention as referred at item a) as contain :

(1) Application address

(2) Name, office address and owner personel who are the licence holder of air traffic services

(3) Other information networked

(4) Enclosed networked document according to MOS

Dan Subpart 172.025 menyatakan :

Requirement to get certificate of air traffic service in accordance with Subpart 172.215 and must accompanied by :

a) A copy of the applicant”s operation manual

b) A written statement setting out air traffic services that the applicant propose to provide

c) Enough information to identify, for each air traffic service :

(1) The location from which the service is proposed to be provided

(2) Delegation of air traffic service at airspace selected by government

d) Organization structure

2) Proses Verifikasi

Sesuai CASR Part 172 Subpart 172.230 menyatakan :

DGCA ask the applicant for verification the certificate of legal body establishment from the applicant

Kemudian Subpart 172.255 menyatakan :

a) DGCA can ask applicant by written for verification statement in proposal

b) DGCA must refuse an application regarding a type of air traffic service at a Particular air space and movement area, if has been already served by other unit of air traffic service

c) If DGCA ask applicant for verification statement, DGCA have not enable to process the application till the applicant give statements intended.

3) Proses Penilaian

Sesuai CASR Part 172 Subpart 172.240 menyatakan :

a) DGCA can ask the information supplement or document by written

b) Information supplement or document as mentioned at item a) to be made consideration for approval of certificate

Dan Subpart 172.230 menjelaskan:

a) DGCA may require demonstrations of procedures or equipment

b) DGCA can ask the application to the application, by written, to conduct demonstration of their procedures or equipment, to evaluate applicant can properly give ait traffic service.

c) The applicant must explain and execute demonstration as mentioned at item(1)

d) Demonstration must be done under supervision by DGCA inspector

e) Authorized DGCA asked for demonstration as mentioned at item (1), to support certifier considered unit and operation of air traffic service

4) Hal-Hal Yang Menjadi Pertimbangan Untuk Memberikan Sertifikat

Sesuai CASR Part 172 Subpart 172.250 menjelaskan :

a) For making decision for an applicant, DGCA consider

(1) Supported data existing in the application or other document submitted

(2) Important record concerned the applicant performance

(3) The content of the certificate of legal body establishment, or one of delegation from applicant or according to sub Parts 172.245

(4) Demonstration for equipments and procedures which conducted by applicant according to Subpart 172.230

b) Before consider important records concerned applicant performance as intended at item a) (2), DGCA must notify to applicant by written regarding their job experience in Part of ATS.

5) Pertimbangan Untuk Memberikan Persetujuan

Hal-hal yang dipertimbangan dalam memberikan persetujuan sesuai CASR Part 172 Subpart 172.260

a) To get certificate as an approved unit of air traffic service should be obliged :

b) An application has been expressed competent to be able to approved

c) Other supported requirement fulfilled or in relation with the applicant have fulfill the approved standard

d) DGCA can approve applicant just for some Parts of air traffic service as contained at application

e) DGCA must refuse an application regarding a type of air traffic service at a Particular air space and movement area, if has been already served by other unit of air traffic service

f) DGCA can approve if the applicant fulfills certain condition for safety of flight navigation service

6) Lama Waktu Penilaian

Waktu yang diperlukan untuk proses persetujuan sesuai CASR Part 172 Subpart 172.265 menyatakan :

a) If DGCA have not yet make decision during time 6 month counted from time when an application was received, by automatically the application to be refused

b) If DGCA ask according Subpart 172.230 and 172.240, then commenced time between DGCA make request to the applicant conduct demonstration, interview, or to support information to dgca or ask copies, excluding time determined

c) If DGCA ask according Subpart 172.245 and 172.255, then time between DGCA ask the applicant to execute intended activities and till applicant deliver to, excluding time determined

d) If DGCA ask according Subpart 172.250, then between DGCA asked applicant to give explanation and up to applicant gives explanation, excluding time determined

e) If item b, c), d) has been fulfilled by the applicant then DGCA must give a decision of approval or refuse the intended application

7) Pemberitahuan Keputusan

Setelah melakukan penilaian dan memutuskan maka sesuai CASR Part 172 Subpart 172.270 DGCA harus :

After making an application, DGCA must notice to the applicant by written, for immediately execute :

a) The intended decision

b) If refused decision is, then DGCA must immediately submit the refused reason the applicant – the reason for decision

8) Pengembalian Sertifikat Jika Persetujuan Ditolak

Apabila persetujuan dibatalkan maka yang harus dilakukan oleh pemilik sertifikat sesuai CASR Part 172 Subpart 172.280 adalah :

A certificate which has been cancelled, the certificate owner must immediately deliver the intended certificate to DGCA

9) Perubahan Persetujuan

Permohonan untuk merubah persetujuan dilakukan dengan cara sesuai CASR Part172 Subpart 172.290 adalah, unit of air traffic service forward to DGCA for certificate change

10) DGCA Berkuasa Untuk Menyesuaikan Kondisi Persetujuan

Penyesuaian kondisi persetujuan dilakukan DGCA dengan pertimbangan sesuai CASR Part 172 Subpart 172.295 adalah :

a) By reason of importance of air navigation safety, DGCA can change certificate or explanation certificate according to existing condition

b) In certain condition, DGCA can direcly specify change of certificate contained the existing condition according to regulation currently

c) DGCA must notify by written to unit of air traffic service concerned certificate change and explanation inside

d) If DGCA cancel certificate change, then not changed previous certificate with explanation inside

KESIMPULAN

1. Direktorat Jenderal Perhubungan Udara telah mengeluarkan Civil Aviation Safety Regulation Part 172 tentang Air Traffic Services Provider Dalam rangka melaksanakan penjaminan mutu pelayanan lalu lintas penerbangan yang bertujuan memberikan pelayanan lalu lintas penerbangan yang selamat, aman, tertib, teratur dan efisien di Indonesia,

2. Direktorat Jenderal Perhubungan Udara belum menetapkan Manual Of Standards (MOS) dan Operations Manual yang berfungsi sebagai panduan bagi lembaga penyelenggara lalu lintas penerbangan dalam menjalankan sertifikasi dan belum ditetapkan Staff Instruction (SI) yang berfungsi sebagai panduan bagi petugas direktorat jenderal perhubungan udara dalam melaksanakan sertifikasi. Sehingga Sertifikasi Lembaga Penyelenggara Lalu Lintas Penerbangan di Indonesia belum bisa dilaksanakan.

3. Direktorat Jenderal Perhubungan Udara perlu menetapkan Manual Of Standards (MOS), Operations Manual Dan Staff Instruction. Untuk dapat melaksanakan sertifikasi Lembaga Penyelenggara Lalu Lintas Penerbangan di Indonesia.

PUSTAKA

International Civil Aviation Organization, Document 9426, Air Traffic Service Planning Manual, Montreal, Secretary General, 1984.

International Civil Aviation Organization, Document 4444, Air Traffic Management, Montreal, Secretary General, 2006.

International Civil Aviation Organization, Document 9859, Safety Management Manual, Montreal, Secretary General, 2006.

Undang undang Republik Indonesia No 1Tahun 2009 Tentang Penerbangan.

Indonesian Civil Aviation Safety Regulation Part 69 Tahun 2009, Tentang Air Traffic Service Personil Licensing Rating, Training and Proficiency Requirement.

Indonesian Civil Aviation Safety Regulation Part 170 Tahun 2009, Tentang Air Traffic Rules

Indonesian Civil Aviation Safety Regulation Part 172 Tahun 2009, Tentang Air Traffic Service Provider

Indonesian Civil Aviation Safety Regulation Part 175 Tahun 2009, Tentang Aeronautical Information Service

Indonesian Advisory Circular Part 69 Tahun, Tentang Guidance Material and Procedures of Air Traffic Controller License and Rating.

Indonesian Advisory Circular Part 170-02 Tahun 2009, Tentang Manual of Air Traffic Service Operational Procedure.