PURPOSE AND SCOPE

This manual contains advice to States, aircraft operators (civil and military), air navigation services providers (ANSPs) and other entities deemed appropriate on the subject of risk management for civil aircraft operations over or near conflict zones. It contains consolidated guidance to support implementation of relevant International Civil Aviation Organization (ICAO) Standards and Recommended Practices (SARPs), ICAO guidance material and industry best practices. It covers the risk from both deliberate acts and unintentional hazards to civil aircraft operations over or near conflict zones.

States should issue and/or enable warning of threats and hazards in their sovereign and delegated airspace, including to aircraft operators and ANSPs, and coordinate activities so as to minimize threats and hazards. With the objective of assisting in this, this manual aims to provide guidance to identify the main risk factors that States could take into account.

Ultimately, aircraft operators and ANSPs are the entities responsible for conducting safety risk assessments specific to the geographical location, type and extent of their operations. Assessments should be an integral part of the risk management process implemented by these entities.

The manual focuses primarily on the risk posed by long-range surface-to-air missiles (SAMs) as these are currently considered to pose the most significant risk to civil aircraft operating over or near conflict zones. The manual does not cover the risk that arises at lower altitudes (including during take-off and landing phases) from shorter-range SAMs such as Man-portable air defence systems (MANPADS), which has been the subject of other assessments.¹ However, some of the considerations and conclusions may be applied to MANPADS that have the capability of reaching aircraft from the ground to altitudes in excess of 25 000 ft (7 600 m) above ground level (AGL) and would also apply to air-to-air missiles launched from manned or unmanned aircraft.

The decision as to whether a civil aircraft will be flown over or near conflict zones is the responsibility of the various parties involved, i.e. the State(s) (and regional civil aviation authority or authorities if applicable) where the conflict zone is located and their ANSPs, the State of the Operator, the aircraft operator, and other relevant stakeholders. This manual describes the roles, responsibilities and/or activities of such parties, which are largely based on the applicable provisions contained in Annex 6 — Operation of Aircraft, Part I — International Commercial Air Transport — Aeroplanes t, Annex 11 — Air Traffic Services, Annex 15 — Aeronautical Information Services, Annex 17 — Aviation Security — Safeguarding International Civil Aviation Against Acts of Unlawful Interference and Annex 19 — Safety Management, as well as related guidance material (Docs 8126, 8973 (Restricted), 9426, 9433, 9554, 9859, 9985, 10088, and 10108 (Restricted)). The manual also describes the risk management processes, including risk assessment and mitigation, such as conducting closure and reassessment of conflict zone airspace to safeguard civil aviation operations over or near conflict zones. It provides best practice examples drawn from States and industry.

When introducing restrictions for aircraft operators to fly over or near conflict zones, States should take into consideration that any aircraft may, at any moment in time, need to divert from the air traffic control clearance and/or dedicated flight profile if an emergency occurs, which may lead to a diversion or forced landing in a conflict zone or overflying closed airspace.

When introducing restrictions, States should also take into consideration the potential range of different types of ground and air-based weapons used during armed conflict or military exercises.

^1. Aviation Security Global Risk Context Statement (Doc 10108 – Restricted), Third Edition, September 2022; and Man-Portable Air Defence Systems (MANPADS) - Information and Airport Vulnerability Assessment Guide (Restricted), First Edition, July 2015.