INTERNATIONAL CIVIL AVIATION DAY REGULATORY ISSUES

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1 BRIEFING INTERNATIONAL CIVIL AVIATION DAY REGULATORY ISSUES DECEMBER 2016 AS PART OF LEXIS NEXIS Q&A SERIES JEREMY ROBINSON ANSWERS FIVE QUESTIONS ABOUT THE AVIATION INDUSTRY COVERING ENTRY REQUIREMENTS, COMPETITION AND REGULATION, CARTELS AND ABUSE OF DOMINANCE, BREXIT AND SECTOR TRENDS AND DEVELOPMENTS. THIS ARTICLE WAS FIRST PUBLISHED IN LEXIS NEXIS ON 5 DECEMBER 2016 AS PART OF THE LEXIS NEXIS Q&A SERIES. In advance of International Civil Aviation Day on 7 December 2016, partner Jeremy Robinson considered the regulatory issues facing the industry. 1. WHAT ARE THE ENTRY REQUIREMENTS FOR AN AIRLINE TO ACCESS THE MARKET AND COMPETE? There are essentially three entry requirements. First, an airline must be licensed under the law where it is registered. Secondly, it must have the appropriate traffic rights for the routes it wishes to operate. Thirdly, it must not otherwise be prohibited from operating (e.g. for safety reasons). Unless otherwise stated, the rest of this section focuses on EU law (and principally, EU Regulation 1008/2008). It also comments on what might happen if the UK leaves the EU without remaining a member of the single aviation area. Operating licences Under EU law, an airline established in the EU needs an operating licence to be able to carry air passengers, mail and/or cargo for remuneration and/or hire. Two categories of air services are not subject to the requirement to hold a valid operating licence: air services performed by non-power-driven aircraft and/or ultralight powerdriven aircraft, and local flights.

2 2 Watson Farley & Williams The EU regime for airline operating licences operates at both the EU and the national level: the EU sets the criteria for obtaining an operating licence, and the competent licensing authorities of EU Member States administer the regime by granting licences, monitoring that the carrier has ongoing compliance with the requirements of obtaining a licence, suspending and revoking operating licences. The EU law requirements for obtaining an operating licence are objective, in the sense that any airline meeting the specified requirements will be entitled to receive an operating licence. These requirements are set out in Chapter II of the Air Services Regulation (EU Regulation 1008/2008). They include: Possession of a valid AOC specifying the activities covered by the operating licence; Having one or more aircraft at the operator s disposal through ownership or dry lease; Compliance with EU ownership and control requirements, that is, Member States and/or nationals of Member States own more than 50% of the undertaking and directly control it, whether directly or indirectly through one or more intermediate undertakings, except as provided for in an agreement with a third country to which the Community is a party; Compliance with the financial conditions; Compliance with insurance requirements. Air carriers must demonstrate that they have in place sufficient levels of insurance. There are differing minimum requirements for the separate insurance of passengers, baggage, cargo and third parties; and Compliance with provisions on good repute. For further information about the application of these rules at UK level, see: THE PRACTICAL EFFECT OF THIS IS THAT ANY EU CARRIER CAN OPERATE A ROUTE FROM ANY POINT IN THE EU TO ANY OTHER POINT IN THE EU. Traffic Rights A licensed airline can operate routes for which it has traffic rights. In the EU, a licensed airline may be referred to as a Community air carrier, that is, an air carrier with a valid operating licence. Community air carriers shall be entitled to operate intra-community air services. Member States may not subject the operation of intra-community air services to any permit or authorisation. The practical effect of this is that any EU carrier can operate a route from any point in the EU to any other point in the EU. Community air carriers are granted all nine freedoms of the air, including domestic cabotage, and this expansive grant of traffic rights has fostered the growth of the low cost carrier model in the EU since EU liberalisation. Traffic rights between the EU and the rest of the world, and between regions outside the EU, are subject to differing degrees of restrictions. For example, whether an EU airline can operate a route between a point in the EU and a point in a third country depends on the aviation relationship between the EU, the EU Member State in question and the third country. These aviation relationships vary between restrictive bilateral treaties between the individual EU Member State and the third country, to more liberal Open Skies treaties, such as that agreed between the EU and the US in 2007 (and amended in 2010), or the agreements between the EU and various neighbours which created the European Common Aviation Area, or the agreements for progressive market opening with other third countries. The expansion of EU s

3 International Civil Aviation Day regulatory issues 3 aviation agreements has progressively reduced the scope of its Member States freedom to conclude separate bilateral treaties. In particular, the EU has sought following the Open Skies judgments in 2002 to ensure that carriers from all EU Member States can take advantage of the traffic rights granted in each Member State s bilateral treaties with third countries. The necessary change to the treaties can be made individually to each treaty, or by the EU acting on behalf of its Member States. THE COMMERCIAL CONSEQUENCE MAY BE A DECLINE IN THE ROUTE CONNECTIONS AVAILABLE TO BE SERVED BY UK OR EU CARRIERS BETWEEN THE UK AND THE REMAINING MEMBER STATES OF THE EU. Brexit If the UK leaves the EU s single aviation market without any replacement arrangements, the legal consequences may be complex and the commercial consequence may be a decline in the route connections available to be served by UK or EU carriers between the UK and the remaining Member States of the EU. Among the consequences are: The UK may revert to its pre-existing bilateral treaties with other EU Member States, which are not harmonised between each other, in the sense that each involves a different exchange of traffic rights and restrictions, and none are as liberal in scope as the existing single aviation area under Regulation 1008/2008; The UK could fall outside the EU-US Open Skies arrangements; whether the UK could fall back on its pre-existing bilateral treaty with the US may depend on the status of ratification of EU-US Open Skies at that time; and EU carrier designation clauses in EU Member State bilaterals with third countries might no longer avail the UK outside the EU; similarly UK bilaterals permitting EU carriers to take advantage of UK traffic rights may be scaled back. EU air safety list The EU air safety list, contained in Regulation (EC) No 2111/2005, is an absolute barrier to entry for airlines (or countries whose airlines are) failing to meet EU safety standards. For further information on the EU s policy here, see: 2. WHAT ARE THE MAIN AREAS OF COMPETITION AND HOW ARE THEY REGULATED? The Civil Aviation Authority (CAA) is the UK aviation regulator, and its powers include the ability to apply the Competition Act 1998 concurrently with the Competition and Markets Authority (CMA) - to airport operation services (aircraft management/arrival and departure of passengers, baggage and cargo) and the supply of air traffic services (provision of information and advice to manage air traffic flow). Airport economic regulation The CAA is the economic regulator for airports. Currently, two airports Heathrow and Gatwick are subject to price regulation under UK law. In addition, these two airports and several others are subject to the common framework on airport charging contained in the EU Airport Charges Directive (Directive 2009/12, as implemented in the UK by the Airport Charges Regulations 2011) because their annual passenger numbers exceed five million. For 2016 and 2017, these airports are: Heathrow, Gatwick, Luton, Stansted, Birmingham, Bristol, Manchester, Glasgow and Edinburgh. The common framework includes rules requiring consultation on airport charges; information on how charges are calculated; timely information on

4 4 Watson Farley & Williams changes to charges; and consultation on major infrastructure projects. Airports are subject to an obligation of non-discrimination. The CAA is also the regulator supervising the operation of the ground handling rules contained in EU Directive 96/67 and the Airports (Groundhandling) Regulations In 2011, Ryanair successfully challenged Gatwick Airport s charges as discriminatory. Slot coordination and schedules facilitation in the UK is undertaken by Airport Coordination Limited. Slot allocation is regulated at EU level under Regulation 1995/1993, Regulation 892/2002, Regulation 1554/2003 and Regulation 793/2004. Airport competition Airports in the UK have been investigated or faced court proceedings over allegations of abuse of dominance. Heathrow lost a challenge in the High Court to Purple Parking over a claim that the airport had abused its dominant position in the provision of meet and greet services. Luton airport similarly lost a case to Arriva the Shires, where the terms on which it had tendered for the operation of bus services from the airport forecourt were considered abusive. In the UK, BAA was broken up after a Competition Commission market investigation which found an adverse effect on competition from the common ownership of the BAA airports. BAA sold Gatwick, Stansted and Edinburgh airports. Airlines Airlines have been subject to antitrust scrutiny for cartels/other restrictive agreements, abuses of dominance and mergers. Worldwide, regulators have attacked airline cartels, most notably the air freight cartel. Code share agreements, which are extremely common in the airline industry, have on occasion faced scrutiny. Recently, in October 2016, the EU Commission issued a Statement of Objections concerning the TAP Air Portugal and Brussels Airlines code share. ABUSE OF DOMINANCE CASES IN AVIATION HAVE BEEN VARIED AND HAVE INCLUDED THE UNUSUAL SITUATION OF AN AIRLINE BEING ACCUSED OF PREDATORY PRICING ON A ROUTE IN WHICH IT WAS A NEW ENTRANT. Abuse of dominance cases in aviation have been varied and have included the unusual situation of an airline being accused of predatory pricing on a route in which it was a new entrant: see Airline mergers may be subject to EU merger control under the EU Merger Regulation, or national merger control. The unusual case of Ryanair/Aer Lingus involved proceedings both at EU level (on the third attempt to take over Aer Lingus) and in the UK (on Ryanair s then extant 29.82% shareholding in Aer Lingus). The hostile takeover was blocked by the Commission; and the (then) UK Competition Commission required Ryanair to sell down its stake to 5%. In less troublesome cases, airlines have succeeded in having deals cleared by offering a package of remedies, including divestment of slots at congested airports, permitting interlining, joining frequent flyer programmes, entering into special prorate agreements etc. to facilitate market entry by new competitors; see, for example, Case M IAG/BMI.

5 International Civil Aviation Day regulatory issues 5 THE EU COMMISSION HAS BEEN INCREASINGLY VIGILANT IN POLICING STATE AID IN THE AVIATION SECTOR. State Aid The EU Commission has been increasingly vigilant in policing State Aid in the aviation sector. Orders for recovery against airlines receiving State Aid have in some cases led to airlines closing, notably, Malév (Hungary). In the last ten years, there have been numerous investigations into alleged State Aid granted to airports, or via airports to airlines (often, low-cost carriers) to promote new routes, often from secondary airports. While in some cases the funds were found not to constitute State Aid or to be compatible State Aid; in other cases, the recipients were ordered to repay. For example, on 11 November 2016, the Commission found that Austria s public funding of Klagenfurt airport did not breach the State Aid rules, but that certain airport services and marketing agreements concluded between the airport operator and Ryanair, Hapag-Lloyd Express and Tuifly were illegal State Aid. 3. HAVE THERE BEEN ANY NOTABLE CARTELS AND ABUSE OF DOMINANCE CASES? Cartels There have been several cartel investigations involving airlines at both a UK and EU level. Competition law (Article 101 TFEU, together with the national laws of the EU Member States) requires each airline to set fares independently without collusion with other airlines. Cartel agreements (such as price-fixing) may attract criminal liability for individuals: UK law provides for up to five years imprisonment and unlimited fines for participating in price-fixing. In 2015, the Court of First Instance of the EU annulled fines on 10 out of the 11 parties whom the Commission had fined in total 799.5m. The Commission is said to be working on a new decision, which is of particular importance given the longrunning follow-on damages litigation. In May 2016, the UK Supreme Court refused permission to appeal a Court of Appeal ruling that struck out UK cargo-cartel claimants (Emerald Supplies) claims, first, that air carriers including British Airways, Air France-KLM and Lufthansa conspired to injure shippers, and second, for disclosure of confidential data from the EU s cartel decision. Abuse of dominance In 2014, the High Court upheld Arriva the Shires claim against Luton Airport that the terms of its proposed concession agreement with National Express were abusive. The ruling was on the question of abuse only; the question of dominance was assumed for the purpose of the proceedings. The Court found that the grant of a seven-year exclusive deal to National Express, a right of first refusal for National Express to operate new services to London, and discriminating in favour of easybus all distorted competition between coach operators; further, there was no objective justification. 4. HOW DO YOU ENVISAGE BREXIT AFFECTING THE CIVIL AVIATION INDUSTRY WITH REGARDS TO COMPETITION AND REGULATORY ISSUES, WILL THERE BE ANY ADVERSE CONSEQUENCES? See question 1 above.

6 6 Watson Farley & Williams 5. ANY OTHER INTERESTING TRENDS/DEVELOPMENTS AFFECTING THE CIVIL AVIATION INDUSTRY OF NOTE? Drones Airlines are beginning to explore using drones for maintenance of their aircraft. Drone technology can be employed for: Damage inspection; Scheduled maintenance operations; Delivery of spare parts; and Detection of defects. The use of drone technology can avoid the need for human engineers to be on site. The most prominent use of Unmanned Aerial Vehicles (UAVs) within the aviation industry as of late is currently direct visual inspection of lightning strike damage. At present EasyJet is reported to be experimenting with drone inspection of fuselages after either identified or suspected damage. 3D Printing The civil aviation industry is already a global leader in the adoption of 3D printing and contributed 12% to the industry s revenue back in Additive manufacturing is itself no longer new, but the rapid adoption of the technology will bring significant change. Global aviation emissions agreement reached On 6 October 2016, the International Civil Aviation Organisation (ICAO) at their 39th Assembly, reached an historical agreement to control and reduce international aviation emissions. Airlines will be obliged, through a Global Market-Based Measure (GMBM), to combat the growth of their CO₂ emissions through buying and surrendering emission units. The ICAO Resolution seeks to limit emissions from international aviation to their 2020 level making aviation the first ever industry sector to adopt a global carbon market. The voluntary participation of a large number of states in the GMBM from its outset will permit the ICAO s Carbon Offsetting and Reduction Scheme for International Aviation (CORSIA) to contribute positively to the reduction of greenhouse gas emissions across the globe. CORSIA was designed by the ICAO to complement measures amongst the air transport community to mitigate CO₂ emissions from international aviation. THE AGREEMENT WILL HAVE SIGNIFICANT IMPLICATIONS FOR THE ENTIRE AVIATION INDUSTRY The agreement will have significant implications for the entire aviation industry, for example: airlines, manufacturers, financiers, carbon-offset project developers and carbon traders/trading registries. Much of the detail of the GMBM is yet to be worked out: monitoring, reporting and verifying individual airline s emissions; what offset credits can be used to meet compliance obligations; the registries for holding and transferring credits; and the fines and penalties applicable are still to be agreed.

7 International Civil Aviation Day regulatory issues 7 FOR MORE INFORMATION Should you like to discuss any of the matters raised in this Briefing, please speak with a member of our team below or your regular contact at Watson Farley & Williams. JEREMY ROBINSON Partner London D jrobinson@wfw.com VINEET BUDHIRAJA Associate London D vbudhiraja@wfw.com Publication code number: v2 Watson Farley & Williams 2016 All references to Watson Farley & Williams, WFW and the firm in this document mean Watson Farley & Williams LLP and/or its Affiliated Entities. Any reference to a partner means a member of Watson Farley & Williams LLP, or a member or partner in an Affiliated Entity, or an employee or consultant with equivalent standing and qualification. The transactions and matters referred to in this document represent the experience of our lawyers. This publication is produced by Watson Farley & Williams. It provides a summary of the legal issues, but is not intended to give specific legal advice. The situation described may not apply to your circumstances. If you require advice or have questions or comments on its subject, please speak to your usual contact at Watson Farley & Williams. This publication constitutes attorney advertising. wfw.com

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