INTERNATIONAL CIVIL AVIATION ORGANIZATION
DRAFT
MANUAL ON AIR TRAFFIC FLOW MANAGEMENT
Published by XXXX
Manual on Air Traffic Flow Management
Table of Contents
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Manual on Air Traffic Flow Management
FORWARD
Purpose of this Manual
The purpose of this Manual is to provide guidance and harmonize the development and
implementation of Air Traffic Flow Management (ATFM). The implementation guidance in this
manual is intended to support collaboration among the different stakeholders involved in ATFM:
a) air navigation service providers, including;
1) policy/decision makers;
2) airspace designers; and
3) operational ATC staff;
b) aircraft operators:
1) policy/decision makers;
2) senior pilots; and
3) technical staff;
c) airport operators including:
1) operations department; and
2) environment department;
d) aviation regulators; and
e) military agencies.
Future developments
Comments on this manual would be appreciated from all parties involved in the development and
implementation of CDO. These comments should be addressed to:
The Secretary General
International Civil Aviation Organization
999 University Street
Montréal, Quebec, Canada H3C 5H7
…………………….
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EXECUTIVE SUMMARY
This Manual contains guidance material on how ATFM is applied by using Collaborative DecisionMaking (CDM) processes in order to balance capacity and demand within Air Traffic Control (ATC)
and aerodrome environments. It therefore provides background and implementation guidance for:
a) air navigation service providers;
b) aircraft operators;
c) aerodrome operators, including airport slot coordinators as appropriate;
d) aviation regulators;
e) military agencies; and
f) manufacturing industry related to ATFM.
Key objectives of this manual are to:

establish globally consistent ATFM planning and operating practices;

encourage a cooperative approach to ATFM between States; and

encourage a systemic approach to ATFM, including all ATM components, aerodrome
operations (airside and landside where this affects aircraft operations) and airlines.
THE MANUAL NEEDS TO RECOGNISE AND TAKE INTO ACCOUNT THE VARIOUS NEEDS
AND THE DIFFERENT LEVELS OF DEVELOPMENT OF OPERATIONS OF AIR
NAVIGATION SYSTEMS AROUND THE WORLD. START WITH WHAT YOU HAVE!
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REFERENCES
ICAO Documents
ICAO Annex 11 (Section 3.7.5).
ICAO Doc 4444 (Section 3.2).
ICAO Doc 9426 (Part II, Chapter 1)
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TABLE OF CONTENTS
FORWARD.............................................................................................................................................. i
Purpose of this Manual................................................................................................................ i
EXECUTIVE SUMMARY ..................................................................................................................... 1
REFERENCES ....................................................................................................................................... 2
ICAO Documents .................................................................................................................................... 2
TABLE OF CONTENTS ........................................................................................................................ 3
ABBREVIATIONS................................................................................................................................. 6
DEFINITIONS ........................................................................................................................................ 7
CHAPTER 1 ........................................................................................................................................... 8
1.1 INTRODUCTION............................................................................................................................. 8
1.1.1 Air Traffic Flow Management Definition ......................................................................... 8
1.1.2 Air Traffic Flow Management Philosophy ........................................................................ 8
1.1.3 Air Traffic Flow Management Benefits ............................................................................ 8
1.2 AIR TRAFFIC FLOW MANAGEMENT OVERVIEW ..................................................... 9
1.2.1 ATFM Characteristics ....................................................................................................... 9
1.2.2 Air Traffic Flow Management Principles ........................................................................ 10
1.2.3 Collaborative Decision-Making Objectives and Principles ............................................. 12
1.2.4 CDM Requirements and Benefits.................................................................................... 12
1.2.5 CDM Organization and Structure.................................................................................... 12
1.2.6 Global CDM Resources .................................................................................................. 13
CHAPTER 2 ......................................................................................................................................... 14
2.1 ATFM System Planning ..................................................................................................... 14
2.1.1 Determining ATFM Requirements.................................................................................. 14
2.1.2 Traffic Management Initiatives ....................................................................................... 15
CHAPTER 3 ......................................................................................................................................... 16
3.1 ATFM DEVELOPMENT STRATEGY ......................................................................................... 16
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3.1.1 ATFM System Preparation .............................................................................................. 16
3.1.2 ATFM System Establishment.......................................................................................... 16
3.1.3 ATFM System Operation ................................................................................................ 16
3.1.4 Planning for Special or Unforeseen Events ..................................................................... 16
CHAPTER 4 ......................................................................................................................................... 18
4.1 INFORMATION EXCHANGE ...................................................................................................... 18
4.1.1 General ............................................................................................................................ 18
4.1.2 International Data Exchange Standards ........................................................................... 18
4.1.3 System Eligibility for Data Exchange ............................................................................. 18
4.1.4 Connectivity Specifications ............................................................................................. 18
4.1.5 Data Type Description and Harmonization ..................................................................... 18
4.1.6 Data Exchange Limitations and Regulations ................................................................... 18
4.1.7 Allowed Data Usage........................................................................................................ 18
4.1.8 Documentation ................................................................................................................ 18
4.1.9 Tools ............................................................................................................................... 19
4.2 COMMUNICATION ...................................................................................................................... 20
4.2.1 Background ..................................................................................................................... 20
4.2.2 Stakeholder ATFM Communication Structure ................................................................ 20
4.2.3 Coordination of ATFM Information and Traffic Management Initiatives ....................... 20
4.2.4 Exchanging ATFM Information ...................................................................................... 20
4.2.5 ATFM Message Components .......................................................................................... 20
4.2.6 Amendment ..................................................................................................................... 20
4.2.7 Cancellation .................................................................................................................... 20
4.2.8 Operations Plan ............................................................................................................... 20
4.2.9 Civil/Military Coordination ............................................................................................. 20
CHAPTER 5 ......................................................................................................................................... 21
5.1 POST-TACTICAL ATFM TASKS ................................................................................................ 21
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APPENDIXES ...................................................................................................................................... 22
APPENDIXES ...................................................................................................................................... 22
APPENDIX A: ATFM Communication Phraseologies ......................................................................... 22
APPENDIX B: ATFM Training Information ........................................................................................ 23
APPENDIX C: ATFM Traffic Management Measures ........................................................................ 24
APPENDIX D: ATFM Resources......................................................................................................... 25
APPENDIX E: Sample Data Exchange Agreement .............................................................................. 26
APPENDIX F: Special Event Planning Examples ................................................................................ 27
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ABBREVIATIONS
Air Traffic Control (ATC)
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DEFINITIONS
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CHAPTER 1
1.1 INTRODUCTION
1.1.1 Air Traffic Flow Management Definition
1.1.1.1 The definition of ATFM is as follows:
A service established with the objective of contributing to a safe, orderly and
expeditious flow of air traffic by ensuring that ATC capacity is utilized to the
maximum extent possible, and that the traffic volume is compatible with the capacities
declared by the appropriate air traffic service (ATS) authority.
1.1.2 Air Traffic Flow Management Philosophy
1.1.2.1 The objectives of ATFM are as follows:
a) without compromising safety, to ensure an optimum flow of air traffic during
times when demand exceeds, or is expected to exceed, available capacity of the air
traffic control (ATC) system;
b) to ensure the maximum utilisation of airspace, and balance the legitimate, but
sometimes conflicting, requirements of all users;
c) to develop a seamless and harmonised ATM system and ensure compatibility with
international developments;
d) to ensure that optimum capacity is provided in a flexible and timely manner; and
e) to minimise inefficiencies that affect ATM capacity.
Initially there are three phases of ATFM: strategic, pre-tactical, and tactical. Based on implementation
experience, there is a requirement for a fourth phase that involves analysis of data in order to assess
effectiveness of the ATFM system. This analysis can be used to make strategic changes to the ATFM
system and provide feedback to system users.
A key to the implementation of effective ATFM is to get States working together. The political
dimension should be considered when ATFM involves international air traffic, and without political
support any ATFM system will not be as effective as possible. While Letters of Agreement regarding
ATFM can be initiated without high-level political agreement, this may be necessary in some parts of
the world. INCLUDE HERE INFRMATION FROM THE EUR FASID.
1.1.3 Air Traffic Flow Management Benefits
INCLUDE REFERENCE TO IMPROVEMENTS IN ATC SECTOR CAPACITY WITH
EFFECTIVE ATFM AS WELL AS ECONOMIC AND ENVIRONMENTAL BENEFITS FOR
AVIATION AND COMMERCE. IT MAY BE POSSIBLE TO INCLUDE ECONOMIC BENEFIT
EXAMPLES THALES?. ATFM works to minimise adverse effects on irregular operations and can
enhance safety by reducing complexity. The benefits should also mention special or unexpected event
planning.
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1.2 AIR TRAFFIC FLOW MANAGEMENT OVERVIEW
1.2.1 ATFM Characteristics
1.2.1.1
ATFM is intended as a win-win enabler, to ensure the ATM system is compatible,
balances capacity, and is responsive to user needs. ATFM supports the introduction of new
technologies (such as probabilistic meteorological forecasting and ATS sector capacity assessment
tools) and procedures that enhance airspace capacity.
1.2.1.2
ATFM is evolutionary in nature, in order to manage a changing aeronautical environment.
Thus the nature of ATFM is one of a system that is constantly reviewed in terms of the airspace, ATS
routes and aerodromes, and the ATFM system effectiveness itself.
1.2.1.3
ATFM is integral to world economies, as it maximises aviation economic efficiencies and
returns, in turn supporting many other economic sectors such as tourism and freight carriage. ATFM
supports predictability in terms of inventories, and the efficient carriage of passengers and freight.
1.2.1.4
ATFM assists international cooperation, leading to an optimal seamless ATM
environment. Even relatively simple ATFM systems such as slot management can be as effective as
complex systems, to enable systems to cope with unexpected capacity deficiencies.
1.2.1.5
ATFM traffic data analysis can yield significant strategic benefits, especially when used in
conjunction with airspace and ATS route planning, in terms of future ATM systems and procedure
improvements. This is part of a continuous safety and service improvement loop (Figure x).
Figure xx: ATFM Cycle of Review and Improvement
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1.2.2 Air Traffic Flow Management Principles
1.2.2.1 It is evident that ATFM can be relevant to any ATC unit when that unit’s effect on aviation is
considered from a systemic (network) perspective.
An ATFM system can be either directive in nature when the Air Navigation Service Provider (ANSP)
also has regulatory and/or airspace authority functions, or more of a facilitator when this is not the case.
In any case, it is important to recognise that ATFM is very effective when ATFM objectives are
provided to ATC units, which are best placed in most cases to determine the actual means of achieving
the stated objective.
Though the principle of ‘first come, first served’ and ‘equitable access to airspace’ are laudable
concepts, it is inevitable when there are capacity issues that the ATFM system may focus on other
priorities, such as ‘appropriately equipped aircraft’ or type of traffic, in order to achieve optimal
airspace capacity and best network performance. IN THE FUTURE THERE MAY BE INCREASING
USE OF NEXTGEN AND SESAR IN PARTICULAR MAY SHIFT TO PRIORITISING THE BEST
EQUIPPED AIRCRAFT.
1.2.2.2 General principles of ATFM are as follows:
1.2.2.3

ATFM must seek to optimise available aerodrome and airspace capacity
without compromising safety;

ATFM must seek to balance the financial impact on stakeholders with safety,
and operational and technical benefits, taking into account global
interoperability;

ATFM must entail timely and effective co-ordination with affected parties,
including ATC units, aircraft operators, military authorities and aerodrome
operators as appropriate. Civil/military co-ordination ideally results in airspace
being shared, either simultaneously or on a time-share basis. ATFM must take
into consideration the requirements of the military, law enforcement, and
search and rescue.

Military aircraft operating as general air traffic should be subject to ATFM.

ATFM recognises that airspace is a common resource for all users, ensuring
fairness and transparency, while taking into account security and defence
needs.
Recommended ATFM practices:
ATFM planning should be prioritised for appropriate major traffic flows, instead of a
focus on regional ATFM; THIS MAY REQUIRE FURTHER REGIONAL
DISCUSSION

Recognising that the most efficient utilization of available airspace and airport
capacity can be achieved only if all relevant elements of the air traffic system
had been considered during the planning stage, applying a systems approach.
Quantitative data should be moderated by qualitative assessment using subject
matter experts to ensure the following factors, inter alia, are taken into
account:

airspace and airway complexity, structure and volume;
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
adjoining ATC sectors;

amount of climbing/descending traffic;

terrain;

military operations; and

special use airspace.
When flow management measures are necessary for certain areas, they should be
applied in a timely manner only for the period when expected air traffic demand will
exceed the capacity in those areas. ATFM measures should be kept to the minimum
and, whenever possible, be applied selectively only to that part of the system that is
constrained.
Advance information on overload situations should be provided to ATC and
aircraft/aerodrome operators.
Relevant air traffic statistics should be generated in order to promptly identify
bottlenecks in the system. Accurate and timely data should be continuously available
to support implementation and ongoing ATFM operations in the form of:

Static data identifying historical traffic loadings, for use as strategic
planning and trend analysis, and

Dynamic real-time data used for the tactical management of traffic in
terms of commencement of ATFM measures;

Flow control measures should be established and coordinated in such
a way that they will not cumulatively interact with each other on the same
flights;
The following types of flights should be granted exemption from flow control
measures:

emergency
interference;
flights,
including
aircraft
subjected
to

flights operating for humanitarian reasons;

medical flights specifically declared by medical authorities;

flights on search and rescue missions;

flights with ‘Head of State’ status; and

other flights as specifically required by State authorities.
unlawful

The use of appropriate automated tools should allow effective
application of ATFM;

Formalised CDM should be utilised to promote increased information
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sharing, awareness and acceptance;

States should ensure the use of the English language in a concise,
non-verbose manner in ATFM operations;

Whenever measures to control the flow of air traffic have to be
applied in the form of delays, they should, if possible, be applied by ATC
to aircraft on the ground rather than to aircraft in flight.

Whenever application of ATFM in the form of delays to airborne
aircraft becomes unavoidable, the flights concerned should be informed as
soon as possible.
The ATFM service should have the following basic strategic and tactical functions:
 collection, collation and analysis of data on air traffic, the air navigation
infrastructure and on the capacities of the ATS system and selected
aerodromes;
 determination of available airspace, ATS and aerodrome capacity;
 determination of a coherent picture of expected traffic demand;
 identification of areas and time periods of expected critical traffic loadings;
and
 in order to accommodate the growth of air traffic, an appropriate ATFM plan
should be established, aimed at optimising the airspace utilisation.
1.2.3 Collaborative Decision-Making Objectives and Principles
DEFINE CDM. CDM DESCRIPTIONS CAN BE DESCRIBED VERY SIMPLY AND WE
SHOULD FOCUS ON ITS VALUE.
Collaborative Decision-Making (CDM), as part of ATFM, ideally involves people skilled in
facilitation.
CDM is about sharing information, which allows an understanding of user and ATM requirements, in
order to achieve commitment, cooperation, and predictability. In effect, CDM allows the system to
work smarter, not harder.
Airport CDM must take into account airside (aircraft) and landside (passenger) movements.
CDM should be described through its fundamental philosophy of inclusion and process of sharing
information to make better system decisions.
1.2.4 CDM Requirements and Benefits
2.1
X
1.2.5 CDM Organization and Structure
2.2
X
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1.2.6 Global CDM Resources
2.3
x
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CHAPTER 2
2.1 ATFM System Planning
2.1.1 Determining ATFM Requirements
Determine Capacities
REFERENCES TO DEMAND-CAPACITY ANALYSIS, SHOULD FOCUS ON ACTION-VERBS
SUCH AS BALANCING TO SHOW THAT ATFM IS ACTION-ORIENTED AND NOT JUST
PASSIVE. THIS SHOULD INCLUDE AIRSPACE AND AERODROME CAPACITY. WRITE IN
POSITIVE TERMS.
Identify Capacity-Building Measures
x
Assess Demand and Need for ATFM
The emphasis in the future will be on ‘best equipped’ aircraft, not necessarily ‘fair’ access.
Determine Recommended ATFM Measures
Strategic ATFM (airports)

legal framework

slot allocation processes

designation of slot allocation coordinators or authorities
Strategic ATFM (airspace)
A region should have a single network operations plan.

inter-State agreements and political support

airspace design

route structure

procedures and separation standards

communications (data-link, ATM automation system integration)

coordination/acceptance agreements

capacity changes (ATM/CNS degradation)
Pre-tactical ATFM
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


determination and dissemination of acceptance rates
o
weather and other operational impacts daily/hourly
o
airport capability under varying conditions
o
airspace capacity changes
available methods to achieve pre-tactical arrival rates
o
gate delay
o
ground holding
o
en-route speed reductions
available methods to achieve pre-tactical movement rates (airspace)
o
re-routing
o
en-route traffic metering/spacing (including RTA)
Tactical ATFM

determining the sequence – ATC facilities and processes, automated and manual

gate times

pilot actions

speeds

runway occupancy
2.1.2 Traffic Management Initiatives
TMIS – REFERENCE SHOULD BE PROVIDED TO THE APPENDIX. DESCRIBE HERE AS THE
MITIGATION STRATEGIES USED TO BALANCE AIR TRAFFIC DEMAND WITH CAPACITY.
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CHAPTER 3
3.1 ATFM DEVELOPMENT STRATEGY
3.1.1 ATFM System Preparation
Consult with Stakeholders, including political entities as required
Improve ATFM knowledge, including TMI (use the term ATFM measures) information
Determine ATFM Facility and Personnel Requirements
Analyse the ATFM environment and develop documents with procedures
3.1.2 ATFM System Establishment
ATFM Staff Training and Competencies
Assessment and procurement of facilities
EXPERIENCE REQUIREMENTS FOR ATFM STAFF – CGNA USED AREA CONTROLLERS
WITH AT LEAST 10 YEARS’ EXPERIENCE. ASIA/PACIFIC NOTED THAT ATFM EXPERTS
ARE SPECIALLY TRAINED AT FACILITATION, SO SOMETIMES CONTROLLERS WITH A
DIRECTIVE APPROACH DO NOT MAKE THE BEST ATFM EXPERTS.
THE MANUAL SHOULD OUTLINE AT HIGH LEVEL THE PROCEDURES, AND HAVE A
STATEMENT THAT THE STAFF NEED APPROPRIATE TRAINING. THERE NEEDS TO BE
TRAINING OF ALL THE ATFM ACTORS.
3.1.3 ATFM System Operation
THE MANUAL SHOULD ADDRESS STRATEGIES TO DEAL WITH PROBLEMS REGARDING
RESTRICTED AREAS AND OTHER SUA.
Monitor the situation.
Establish strategies for the termination of ATFM measures.
3.1.4 Planning for Special or Unforeseen Events
The ATFM system needs to take into account responses to emergencies and special events. DON’T
CALL SPECIAL EVENT RESOURCES ‘CRISIS’ CELLS AS THIS HAS A NEGATIVE
CONNOTATION. CONDUCT POST ANALYSIS OF EVENTS.
SPECIAL EVENT MANAGEMENT IS SOMETHING THAT INTERMITTENTLY AFFECTS ALL
STAKEHOLDERS, BUT HAS A SIGNIFICANT IMPACT WHEN IT DOES, AND GLOBAL BEST
PRACTICES WOULD BE VERY VALUABLE. AN APPENDIX TO THE MANUAL WITH BRIEF
DETAILS OF RELEVANT EXAMPLES WOULD BE APPROPRIATE.
ATFM ASSISTS RESPONSES TO UNEXPECTED EVENTS IN TERMS OF TIMELINESS.
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CHAPTER 4
4.1 INFORMATION EXCHANGE
4.1.1 General
THE MANUAL MUST TAKE INTO ACCOUNT HOW STATIC/DYNAMIC DATA IS TO BE
ACQUIRED AND COVER FLIGHT PLAN INFORMATION. THE MANUAL SHOULD COVER
CIVIL AND MILITARY ASPECTS.
Airport data is important to facilitate enhanced cooperative airport CDM.
CARE SHOULD BE TAKEN WITH REFERENCES TO DATABASES OR SIMILAR LIMITING
ITEMS. IF THE DESIRE IS TO SHARE DATA, FOCUS ON THAT AND NOT GET BOGGED
DOWN WITH THE TECHNOLOGICAL ASPECTS, AS THEY WILL SURELY CHANGE OVER
TIME. THIS SHOULD INCLUDE FLIGHT PLANNING AND CDM-TYPE FLIGHT UPDATES,
WITH CORRESPONDING ANSP INFORMATION SHARING TO THE REST OF THE
STAKEHOLDER COMMUNITY.
REDUCE THE NUMBER OF FOLLOWING HEADINGS
4.1.2 International Data Exchange Standards
X
4.1.3 System Eligibility for Data Exchange
X
4.1.4 Connectivity Specifications
X
4.1.5 Data Type Description and Harmonization
X
4.1.6 Data Exchange Limitations and Regulations
X
4.1.7 Allowed Data Usage
x
4.1.8 Documentation
x
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4.1.9 Tools
x
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4.2 COMMUNICATION
4.2.1 Background
ATFM Coordination should be expanded to include effective communication and
also information management.
4.2.2 Stakeholder ATFM Communication Structure
x
4.2.3 Coordination of ATFM Information and Traffic Management Initiatives
x
4.2.4 Exchanging ATFM Information
x
4.2.5 ATFM Message Components
INSERT HERE REFERENCE TO, OR PORTIONS OF THE APAC COMMUNICATIONS
HANDBOOK AS AMENDED TO IMPROVE SOME OF THE EXAMPLES – REMOVE
COMMON USAGE TERMS AND MAKE THE EXAMPLES GENERIC. REFERENCE THE
EXAMPLES IN THE APPENDIX.
4.2.6 Amendment
x
4.2.7 Cancellation
x
4.2.8 Operations Plan
x
4.2.9 Civil/Military Coordination
x.
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CHAPTER 5
5.1 POST-TACTICAL ATFM TASKS
This is the fourth phase. Post special and unforeseen event analysis is always is a key aspect of ATFM
and should be treated as an individual task.
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APPENDIXES
APPENDIX A: ATFM Communication Phraseologies
Insert HERE Revised APAC COMS HANDBOOK examples
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APPENDIX B: ATFM Training Information
INSERT HERE revised information from the CAR/SAM Manual and EUROCONTROL
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APPENDIX C: ATFM Traffic Management Measures
x
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APPENDIX D: ATFM Resources
Include reference to the CGNA capacity assessment process if possible.
Include examples from industry.
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APPENDIX E: Sample Data Exchange Agreement
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APPENDIX F: Special Event Planning Examples
27