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1 European Organisation for the safety of air navigation Central route charges office GUIDANCE ON THE ROUTE CHARGES SYSTEM Edition June 2012 (EN)2 3 A first edition of the Guidance was approved by the enlarged Committee for Route Charges at its 57th Session in June It was submitted to the Provisional Council at its 5th Session, on 16 July 1999, during which the following decision was taken. The PROVISIONAL COUNCIL: a. took note of the production of a booklet on "Guidance on the Rules and Procedures of the route charges system"; b. supported the enhanced role of the Central Route Charges Office as summarised in paragraph 6 of the report by the President of the enlarged Committee ( ); and c. noted that the role and participation of user organisations were clearly recognised in the booklet. According to the enlarged Committee's decision at its 57th Session, the Guidance is to be periodically reviewed by an appropriate group of experts. The Guidance is produced in English and in French (which are the working languages of the Agency). Other languages are delivered on request. This is the sixth edition of the Guidance, approved by the enlarged Committee on 28 June 2012.4 The Guidance is not a part of the EUROCONTROL Principles for establishing the cost-base for en route charges and the calculation of unit rates (hereinafter the Principles - version approved on 20 September 2011 and entered into force on 1st October 2011). The information contained in this Guidance is intended to guide and support the users of the EUROCONTROL route charges system in the application of the Principles. Its use is therefore intended to be on a voluntary basis. It does not replace a legal text or change the law; however it aims to elucidate the Principles which are the binding instruments. The Guidance is the result of extensive discussions with users and reflects a broad consensus. The Guidance is a living document which is amended periodically in the light of the development of the route charges system. All texts extracted from ICAO documents (Document 9082 "ICAO's Policies on Charges for Airports and Air Navigation Services" and Document 9161 Manual on Air Navigation Services Economics, current versions) and from the Principles are in italics.5 TABLE OF CONTENTS Page Introduction... 1 Part I: GENERAL Section 1: Role of the Central Route Charges Office General definition Practical arrangements Member States Integration of new Member States into the System Compliance by non-member States with the Principles... 6 Section 2: Procedures and processes Timing for the communication of the reporting tables (Annexed II and III to the Principles) Preliminary data Final data Service units forecasts (Preliminary and Final Data) Consultation Multilateral Bilateral Bilateral agenda Time-table for the presentation of preliminary and final cost and traffic data... 9 Part II: GUIDANCE ON HOW TO APPLY THE PRINCIPLES Section 1: Questions relating to the determination of costs by nature Introduction Staff costs Other operational costs Cost of capital Introduction Determination of the capital employed Weighted average cost of capital Investment costs/costs to capitalise General: costs to capitalise Pre-operational phase Research and development costs Land / Buildings Treatment of interest receivable i6 7. High inflation General Depreciation Net Interest Establishment of forecast costs Establishment of actual costs Establishment of actual revenues Application of Current Cost Accounting principles (CCA) Section 2: Questions relating to the determination of costs by services Air traffic management Communication Navigation Surveillance Search and Rescue Aeronautical information Meteorological services Supervision costs Other State costs Section 3: Questions relating to cost-allocation Introduction Allocation between en route and terminal air navigation services Allocation between aeronautical and non-aeronautical users MET services SAR services Allocation between GAT and OAT services Allocation between IFR and VFR users Section 4: Questions relating to cost-accounting systems General guidance for setting up cost-accounting systems General guidance for annual accounts General guidance for the reporting tables/separate reporting of costs Section 5: Questions relating to the full-cost recovery method Reporting tables Table 1 (Total costs) Reporting tables Table 2 (Unit rate calculation) Section 6: Questions relating to the determined cost method Description of Tables 1 & Reporting tables Table 1 (Total costs) Reporting tables Table 2 (Unit rate calculation) Yearly adjustments of determined unit rates Adjustment for inflation (items 3.2 & 4.2) Carry-overs due to traffic (items 3.5 & 4.3) Traffic cost-sharing (items 3.4 & 3.5) Uncontrollable costs items 3.6 & 4.4) Bonuses and penalties (item 3.7) Carry-overs of under-/over-recoveries incurred before the first reference period (items 3.8 & 4.5) ii7 Section 7: Financial incentives for airspace users and for air navigation services providers 55 ANNEX 1 IFRS and EUROCONTROL Principles ANNEX 2 List of IFRS particularly applicable to ATM service providers ANNEX 3 Example for the calculation of cost of capital Reference list iii8 iv9 INTRODUCTION 1 This introduction outlines the structures, bodies and legal obligations connected with the multilateral System. The main body of the Guidance is then split into two parts. Part I gives a general outline of the route charges system, and is further split into sections on the role of the Central Route Charges Office (CRCO) and on procedures and processes. Part II is of a more technical nature, and gives detailed guidance on interpreting the Principles. Brief description of the structure of the route charges system: 2 The EUROCONTROL route charges system is governed by the Multilateral Agreement relating to Route Charges (hereinafter the Multilateral Agreement ), an international agreement signed on 12 February 1981 and entered into force on 1 January 1986, by which Contracting States decided to adopt a common policy, to create a joint system for the calculation, billing and recovery of their route charges and to use for this purpose the services of EUROCONTROL. The accession to the EUROCONTROL Convention requires simultaneous accession to the Multilateral Agreement. 3 The enlarged Commission for Route Charges (hereinafter the enlarged Commission ), consisting of the Ministers of Transport of the Member States or their alternates, is the decision-making body governing the common route charges system. It takes formal decisions, generally by unanimity, on all issues of major importance, as listed in Article 3.2 of the Multilateral Agreement. 4 The enlarged Committee for Route Charges (hereinafter the enlarged Committee ) is the executive body, in charge of supervising the operation of the system, and of preparing the decisions of the enlarged Commission. It is assisted in this function by the CRCO (the role of the CRCO will be described in detail in Part I of the present Guidance). It enables the States to monitor the proper functioning of the common system. It holds at least three sessions per year (in March, June and November), and constitutes the main forum for multilateral consultation with the user organisations. 5 The user organisations in the route charges system are the representatives of the main aircraft operators. Since 1997 they have attended, with observer status, the whole sessions of the enlarged Committee (with the exception of confidential items). 6 The multilateral consultations take place in the June session, where States present their first estimates for calculating their cost-base and unit rate(s) for the following year, and in November for the discussion on the final figures and calculation of the unit rates for the following year10 7 In addition to the above, the EUROCONTROL revised Convention was signed on 27 June 1997, but it is not yet in force. In the meantime, States have decided the early implementation of certain provisions of the revised Convention. A Provisional Council was established on 1 January It is composed of representatives of the Contracting Parties at Directors General of Civil Aviation (DGCA) level, and the user organisations have observer status. The Provisional Council, which meets two times a year, is now the body through which the enlarged Committee reports to the enlarged Commission in order to obtain policy guidance on issues of major importance. The enlarged Commission remains the decision-making body for the route charges system, pending a new legal order. 8 The Principles provide for two calculation methods for the unit rate within the common EUROCONTROL multilateral route charges system: the full cost recovery method and the determined cost method. The two methods are reported via the respective tables in the Annexes of the Principles11 PART I: GENERAL SECTION 1: ROLE OF THE CENTRAL ROUTE CHARGES OFFICE 1. GENERAL DEFINITION 9 The CRCO supports the enlarged Committee in the following areas: a. the definition and application of the Principles by Member States (and their service providers); b. the compliance by new Member States with the Principles as a prerequisite for their integration into the route charges system. 10 In addition, the CRCO shall ascertain the compliance with the Principles by non- Member States who have concluded bilateral agreements with EUROCONTROL relating to the collection of air navigation charges. Prior to the implementation of such an agreement, the CRCO needs to be satisfied, and report to the enlarged Committee, that the State s cost-base is properly constructed and that the amounts claimed are cost-related, and conform with the Principles. During the continuing learning process a more established Member of the system may also act as mentor to the non-member State offering guidance and advice based on its own experience. Such a partnering scheme would be beneficial both to the non-member State concerned and to the route charges system should the State subsequently become a Member. 11 The role of the CRCO does not include: a. auditing the accounts of States / Air Navigation Service Providers (ANSPs); b. judging the cost-efficiency of States / ANSPs; c. target setting; d. enforcement of compliance with the Principles. 2. PRACTICAL ARRANGEMENTS 12 The CRCO shall exercise its role as follows: 2.1 Member States Analyses initiated by users 13 As an initial step, concerns relating to possible non-compliance with the Principles may be raised by the users via a representative user organisation, e.g. at a bilateral consultation meeting with a State/service provider. The CRCO may attend such meetings and provide expert advice on request12 14 If this informal approach is unsuccessful, the users may address their concerns to the CRCO in writing. The CRCO shall take up the matter bilaterally with the State concerned and shall inform the users within four weeks of the agreement reached with the State. Any reasons for the State s possible non-agreement on certain points shall also be reported. 15 Should the users not be satisfied with the outcome of this procedure, they may bring their concerns, relating to possible non-compliance with the Principles, duly motivated, to the attention of the enlarged Committee in writing, at least three weeks before the meeting. 16 In this case, the enlarged Committee may formally task the CRCO to carry out an analysis of the situation. The CRCO shall submit a report to the next session, together with any dissenting views expressed by the State concerned. Analyses initiated by a Member State 17 As an initial step, concerns by a Member State (or an individual user through the Member State) regarding the possible non-compliance with the Principles by another State may first be raised on a bilateral basis with a view to reaching a mutual understanding. The CRCO may participate in any discussions between the States concerned and provide expert advice on request. 18 If this informal approach is unsuccessful, the enquiring State may address its concerns to the CRCO in writing. The CRCO shall take up the matter bilaterally with the other State and shall inform the enquiring State within four weeks of the agreement reached with the other State. Any reasons for the State s possible nonagreement on certain points shall also be reported. 19 Should the enquiring State not be satisfied with the outcome of this amicable procedure, it may bring its concerns, relating to possible non-compliance with the Principles, duly motivated, to the attention of the enlarged Committee in writing, at least three weeks before the meeting. 20 In this case, the enlarged Committee may formally task the CRCO to carry out an analysis of the situation. The CRCO shall submit a report to the next session, together with any dissenting views expressed by the State in question. Communication to the Provisional Council 21 If, after these stages, it proves impossible to reach a solution satisfactory to all parties involved, the enlarged Committee may inform the Provisional Council of the matter, irrespective of whether the analysis is initiated by user organisations or by a Member State. Analyses initiated by the CRCO 22 If, during the course of its routine analysis of cost-base data presented by the Member States, the CRCO finds apparent misinterpretation/misapplication of the Principles, it should contact the relevant State bilaterally in an attempt to clarify the situation13 2.2 Integration of new Member States into the System 23 It is a sine qua non condition to Membership that an applicant State should demonstrate its full compliance with ICAO Policies and EUROCONTROL Principles. 24 In accordance with Article 36 of the EUROCONTROL Convention, accessions to the EUROCONTROL Convention and to the Multilateral Agreement relating to route charges are effective at the same date. For various reasons the technical integration into the Route Charges System may not take place at the same date. 25 At its 79th Session in 1991, the Permanent Commission agreed to grant the State concerned a reasonable interval before requiring its practical participation in the Route Charges System. A State may present such request if it appears that the necessary amendments to the national legislation have not been made in time for the accession and the technical integration. By virtue of its accession to the Multilateral Agreement, a State is required to ensure that it can meet its legal obligations to adhere to the provisions of the Multilateral Agreement. This in turn necessitates the amendment of any legislation or regulation that would be incompatible with the said obligations. The legal implications of the State s accession to the Multilateral Agreement should therefore be addressed during the legislative process leading to the ratification of the Multilateral Agreement or at an earlier stage before the State applies for accession. Although the provision of the Multilateral Agreement would prevail over any conflicting national legislation or regulation, States should identify and solve such conflicts as soon as possible in the accession process. 26 Provision of assistance by the CRCO to an applicant State when constructing the cost-base, regarding the correct application of the Principles, will be an essential part of that State s timely integration into the route charges system. To this end, the CRCO shall, at the start of the integration process (roughly one year before the integration target date, see time line at the end of this Section), organise information sessions for the applicant State s staff to provide them with detailed explanations of the Principles. 27 The new Member State shall then be requested to establish preliminary forecast costbase figures for the June enlarged Committee session together with ancillary data as foreseen in the Principles. These data shall be carefully analysed by the CRCO and additional information may be required. 28 The requirement for a bilateral user consultation meeting shall be stressed by the CRCO, and the CRCO may attend such a meeting providing expert advice on request. Between June and November the refinement of the cost forecast shall be monitored by the CRCO. A detailed report analysing the applicant State s cost figures and giving a clear indication of the CRCO s informed judgement on the compliance with the Principles shall be prepared by the CRCO, and submitted to the enlarged Committee s November session with the consent of the applicant State or with its dissenting views. On the strength of this report, the enlarged Committee shall confirm the envisaged integration date or otherwise. In accordance with the Decision of the enlarged Commission, approval of a State s technical integration should be as soon as reasonably possible after accession14 2.3 Compliance by non-member States with the Principles 29 The procedures applying to non-member States with which EUROCONTROL has signed a bilateral agreement for the collection of charges on their behalf are similar to those described in 2.2 above, as far as the establishment of their initial cost-base is concerned. Subsequent enquiries initiated by the users in particular shall be treated by analogy with the proceedings outlined for existing Member States (cf. paragraph 2.1 above). Depending on the seriousness of the non-compliance, if any, with the Principles by the non-member State, the report to be submitted by the CRCO to the enlarged Committee may include a proposal to the enlarged Commission regarding the possible termination of the bilateral agreement. 30 The standard task schedule for the integration (on 1 January of the year n + 1 ) of States into the Multilateral System is as follows: As early as possible February year n March year n March-April year n May-June year n July year n September-October year n November-December year n - Appointment of a project co-ordinator - Appointment of specialised correspondents - Begin to set-up/modify RCO (e.g. new equipment, staff) - Examination of legal aspects - Set-up a communication system with the CRCO - Preparation of the cost base - Preparation of the decision on exemptions - Arrange co-ordination meeting - General information session - Meeting on cost base calculation - Two operational meetings (flight data collection and flight data transmission separately) - Transmission of the first traffic sample - Arrange bilateral consultation meeting with users - Operational meeting (claims) - Notification of the preliminary data by 1 June year n - June Session of the enlarged Committee - Transmission test completed - Notification of the decision on optional exemptions - Local training of the RCO - Transmission of the second traffic sample (1 October year n ) - Notification of the final data by 1 November year n - Operational trials (1 November year n ) - November Session of the enlarged Committee - Notification of the decision on military exemptions - Publication of regulations - Information to the users 1 January year n Technical integration into the route charges system - 6 -15 SECTION 2: PROCEDURES AND PROCESSES 1. TIMING FOR THE COMMUNICATION OF THE REPORTING TABLES (Annexes II and III to the Principles) 31 Financial information is provided in two stages: 1.1 Preliminary data 32 This data should be reported to the CRCO not later than 1 June. The Principles also stipulates that this data should be made available to users three weeks before the June meeting of the enlarged Committee. 33 Whilst every endeavour should be made to transmit accurate and nationally agreed data, it is more important to ensure the timely transmission of perfectible data rather than to withhold information for the sake of completeness or certitude. 34 Consequently, States can provide their information with caveats (e.g. subject to the approval of the Supervisory Board or information given on a provisional basis etc.) to indicate that some, or all, of the data provided is not approved, and therefore likely to be confirmed, updated or amended. 35 The preliminary estimates should only be the best possible figures, not the final ones. On the other hand, any gaps in the transmission of data should be justified in detail and in writing in the Additional Information. 1.2 Final data 36 In November the data provided by the States should be complete and accurate. No imprecision or gaps should be admitted, unless in exceptional circumstances and duly justified in writing (in the Additional Information). Should any State fail to provide necessary data in due time before the enlarged Committee session (see above), the CRCO would be entitled to use the latest available data to calculate the unit rate. 1.3 Service units forecasts (Preliminary and Final Data) 37 The CRCO will provide service unit forecasts for all Contracting States in view of consultations with users regarding preliminary and final data twice a year. The CRCO will also communicate these forecasts to the user organisations. However States are responsible for the service unit forecasts used in the calculation of the national unit rates. 2. CONSULTATION 38 Meaningful consultation is necessary for a productive working relationship between States / Air Navigation Service Providers (ANSPs) and their users. The underlying philosophy of the consultation process is transparency of information and the rationale of decisions. Elements such as a set of procedures and the timely provision of enhanced financial and traffic information, together with other relevant supplementary data will serve as prerequisites for meaningful consultation. The process should provide users with a better understanding of their costs and charges. It should be emphasised that this is a process, and not just an event16 39 The goal of consultation should be to reach consensus between the participants and this requires a spirit of openness and understanding from both sides. It is recognised that agreement cannot always be achieved, but decisions made following consultation should take into account the users views. Where users views are not accepted the reasons should be explained or justified. In the case of disagreement, users should have the right of referral to the competent authority or regulator. 40 There are two main types of formal consultation: multilateral and bilateral. 2.1 Multilateral 41 The common policy laid out in the Principles includes accounting policies, the specification of the information to be disclosed, and the consultation process. ANS is provided by statutory monopolies where airspace users have little economic option other than to use those services. It is therefore in the collective interest of the States to ensure that appropriate mechanisms are in place to support effective consultation and secure the confidence of all stakeholders in the system. This should be consistent with the Performance Review Commission s information disclosure policy, including the publication of business plans aimed at ensuring that comprehensive information is available to users and assisting performance review. 42 This multilateral consultation takes place primarily at the scheduled meetings of the enlarged Committee, and also at the various enlarged Committee Groups and Task Forces. These meetings allow the users representatives to raise issues regarding the common route charges system. This may be concerned with trends or themes as well as more specific matters. They also allow the users representatives to identify and request where there are requirements for bilateral consultations or follow-up actions. 2.2 Bilateral 43 The membership and size of the common route charges system does not facilitate detailed discussion with individual States / ANSPs at the enlarged Committee meetings. Users representatives therefore request more detailed bilateral consultations where necessary 1. Circumstances under which bilateral meetings are requested include, but are not limited to: a. relatively high increases in cost-base or unit rates; b. any unsubstantiated changes with insufficient information in commentary; c. new Member States. 2.3 Bilateral agenda 44 The agenda is usually agreed between the State/ANSP and the users representatives taking into consideration any special requests or issues. However, the following standard agenda is given as a minimum to structure bilateral consultations: a. Update on organisation and financing brief outline of provider organisation with particular reference to finance/charges position and reporting lines within the organisation; the relationship to Civil Aviation Authorities (CAA), Regulators and Ministries; methods of financing allowed and used; financial targets, rates of return and brief background of national economic factors affecting cost-base and charges. 1 States should note that the user organisations expressed the wish to hold the consultation meetings in English, or to benefit from interpretation from/to English, wherever possible17 b. Update on service issues a review of any significant service and facility issues; brief summary of capacity/delay situation. c. Capital expenditure brief summary of capital expenditure programme, with planned implementation dates, which impact on costs and charges. d. Review of year n - 1 actual results Update and reasons for any significant changes from earlier forecasts on traffic, costs and revenue. e. Latest estimates for year n Update and reasons for any significant variances from previous traffic, costs and revenue forecasts. f. Year n + 1 proposed cost-base and unit rate explanation and reasons for any significant variances in costs and traffic, and information on cost allocation methodology. g. Forecast cost-bases and unit rates for years beyond n + 1. This information assists users for route planning and budgeting purposes. 3. TIME-TABLE FOR THE PRESENTATION OF PRELIMINARY AND FINAL COST AND TRAFFIC DATA 45 1 June year n Latest date for the provision by States of preliminary data * to the CRCO. Data is dispatched to users and Member States without delay. Mid-June (or later) year n Consultation with users at the enlarged Committee s session. 1 November year n Latest date for the provision by States of final data* to the CRCO. Data is dispatched to users and Member States without delay. Mid-November (or later) year n Consultation with users at the enlarged Committee s session. Mid-December (or earlier) year n Approval by the enlarged Commission of the unit rates with effect from 1 January year n December year n Publication by States of the unit rates with effect from 1 January year n + 1. *: For States applying the full cost recovery method, preliminary and final data includes service unit forecasts for year n + 1 to n + 5. Establishing these forecasts is the responsibility of the States. In order to support States, the EUROCONTROL Agency publishes three service unit forecasts in February, May and October each year. The States applying the determined cost method send their reporting tables with initial forecast figures eighteen months before the start of a new reference period, i.e. for the June session of year N - 2 (new reference period starting on year N ). From that June session onwards, the States concerned prepare two sets of documents, one relating to the current reporting period and one relating to the new reference period starting on year N18 - 10 -19 PART II: GUIDANCE ON HOW TO APPLY THE PRINCIPLES SECTION 1: QUESTIONS RELATING TO THE DETERMINATION OF COSTS BY NATURE 1. INTRODUCTION 46 The costs of eligible services, facilities and activities shall be established in such a manner as to be consistent with the financial accounts. These accounts shall comply with the International Accounting Standards / International Financial Reporting Standards (IAS/IFRS). Where, owing to the legal status of the service provider, full compliance with the IAS/IFRS is not possible, the Contracting State shall ensure that the provider achieves such compliance to the maximum possible extent. A comprehensive list of the IFRS/IAS and a brief description of the main standards are included at Annex STAFF COSTS 47 Staff costs that are attributed to the en route cost-base consist not only of direct wages costs but may also contain a whole series of costs indirectly related to the employment of staff. 48 The staff costs may consist of the following elements: a. Gross wages, salaries and benefits These include all gross wages (including overtime hours, allowances paid to the personnel, income tax and other social security charges payable by employees) but exclude pension or social security contributions payable by the employer. b. State social security scheme contributions This comprises all elements of staff costs that represent a payment by the employer for the benefit of employees to the State or an agency, such as social security costs, health services. c. Pension contributions/payments Staff costs may also contain various elements related to pension. This means actual retirement payments, together with legal pension schemes contributions, additional retirement pay schemes and allocations to pension provisions. With regard to contributions to pension funds, Member States can decide either to follow IAS/IFRS or to use prudent assumptions according to the governance of the scheme or to national law, as appropriate. d. Other staff costs Some organisations may report certain operating costs (training costs, missions, ) as well as certain forms of services provision (temporary workers, consultants) as staff costs. This will depend on the relevance of such costs to en route ANS provision and the way the organisation is structured20 3. OTHER OPERATING COSTS 49 Paragraph of the Principles states that other operating costs shall include costs incurred through the purchase of goods and services used to provide en route services, in particular outsourced services such as communication, external staff such as consultants, material, energy, utilities, rental of buildings, equipment and facilities, maintenance, insurance costs and travel expenses. Where an air traffic service provider purchases other en route services, the service provider shall include the actual expenditure for those services in its other operating costs. Operating costs shall include non-recoverable taxes and be calculated net of ancillary revenues. Some examples of other operating costs are (but are not limited to): a. rental costs for land transmission lines; b. rental costs of land, buildings and other facilities including taxes and other charges, where applicable; c. costs of utilities including water, heating and all energy supplies; d. rental costs for communication lines; e. repairs and maintenance costs, excluding internal staff costs, but including non capitalised equipment, e.g. spare parts or other small expensed items; f. operating costs of other operational and technical support facilities, including administrative support, legal, consultancy and audit; g. costs of application software unless considered as an investment; h. bank charges and commissions, and exchange rate differences arising from the provision of ATM services; i. provisions related to operating costs. 50 Operating costs should take into account other revenues attributed to the provision of en route air navigation services (see paragraph of the Principles). 51 Write-offs are part of operating costs. 52 For write-offs, provisions should only be made for debts that are clearly impaired. Once a figure has been agreed the provision is established by charging the amount to the profit and loss account and creating a provision in the balance sheet. 53 The provision for doubtful debts is regularly reviewed, usually on an annual basis, and adjusted accordingly. It may be increased or decreased depending on the particular situation. It is important to note that any subsequent debts for users already included in the provision are added to this provision for doubtful debts in the balance sheet. Creating a provision does not mean that the normal credit control process should cease and, indeed, if a debt is subsequently recovered it must be written back. 54 Provisions for doubtful debts should be taken into account on the same grounds as amounts written off. Like write-offs, provisions for doubtful debts could also be established in accordance with the EUROCONTROL Financial Regulations. Net amounts, i.e. the difference between provisions in respect of year n - 1 and provisions in respect of year n - 2 are shown in the EUROCONTROL Balance Sheet and Administrative Accounts View more
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