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JAA v FAA
An Overview of Aviation Regulation:Beginnings, Functions and Licensing
Practices
In that aviation has helped advance the globalization of our world, it is important
to review our beginnings and look forward to where we see ourselves in the future.
This article will concentrate on the origins, functions and licensing of modern air
transportation systems throughout our world; in particular, where we started and the
direction we are headed.
Origins
The FAA
In the United States, the beginnings of today’s Federal Aviation Administration
(FAA) and the federal government’s regulation of civil aviation started with the Air
Commerce Act of 1926. At that time, aviation industry leaders as well as Congress
had growing concerns with safety standards. The Air Commerce Act of 1926,
empowered and tasked the Secretary of Commerce with oversight authority related
to: drafting and enforcing air traffic rules, licensing pilots, establishing airways,
certification of aircraft and many other related variables. For this formidable task to
succeed, a new Aeronautics branch of the Department of Commerce was required.
This was the birth of what is today’s FAA.
The modern FAA officially came into existence in 1958 with the Federal Aviation
Act of 1958. At that time, the jet age was upon us and there had been several midair
collisions. Congress felt that a new independent body was needed with broader
authority to minimize aviation hazards. Congress envisioned this agency to have the
power for aeronautic safety rule making and sole responsibility for air navigation and
air traffic control. Some fifty years after the Federal Aviation Act of 1958, today’s FAA
marches forward with broad authority over all aspects of aviation in the United States
and serves as a model for many other countries and jurisdictions.
The JAA
The Joint Aviation Authority (JAA) is an associated body of the European Civil
Aviation Conference which represents civil aviation regulatory authority for a number
of European States who agreed to co-operate in development and implementation of
common regulatory safety standards and procedures. The beginnings of the JAA can
be traced to 1970. At that time it was known as the Joint Airworthiness Authorities
and came into existence for the purpose of generating common certification codes for
large aircraft and aircraft engines. By 1987 however, the organization had grown and
was responsible for the operations, maintenance, certification and licensing for every
class of aircraft. By 2006, the JAA had been divided into two distinct working groups,
the Joint Aviation Authority Training Office (JAA TO), & the Joint Aviation Authority
Liaison Office (JAA LO).
EASA
In July of 2002, the members of the European Union (EU) established the
European Aviation Safety Agency (EASA). This agencies power is applicable to all
European Union member states. Standardization and oversight function for all
aviation safety certification of member states was a primary reason for the formation
of EASA. There are currently 27 EU member countries governed by EASA.
From these humble beginnings, the FAA, JAA and EASA have become
recognized aeronautics authorities. These organizations work together and
individually to regulate the modern day aviation industry and all associated aspects in
their respective regions and jurisdictions.
Functions
The FAA
The FAA exists as an agency under the Department of Transportation. The FAA
has authority to oversee all aspects of civil aviation in the United States. Major roles
include:
When it comes to aviation law, the FAA’s authority mandates compliance with
FAA adopted safety standards. The FAA oversees maintenance, operation and
manufacturing of all aircraft. The FAA, along with its sister organization the National
Transportation Safety Board (NTSB) investigates and determines root causes for
aviation accidents. Federal oversight in accident investigation is beneficial as often
times multiple jurisdictions are involved in in oversight in all aspects of civil aviation in
the United States. This administrative agency has been used as a model for both
European aviation administrations and newly developing countries with burgeoning
aviation industries. The FAA has been and continues to be an exemplary agency in
advancing civil aviation safety.
The JAA
Upon formation, the JAA was intended to provide high and consistent standards
of safety for civil aviation in Europe. Emphasis was placed on harmonizing FAA and
JAA regulations to avoid conflicts and balance regulation. As indicated supra, the
JAA has recently been divided into two main working groups.
The EASA
The European Safety Agency has control and responsibility for establishing
common rules for the European Union in the field of civil aviation. Although this
agency essentially controls all EU aviation activities, the main areas include but are
not limited to: aircraft design approvals, aircraft airworthiness, environmental
concerns, aviation production, aviation maintenance and oversight for all aviation
safety certification activities for its member states. EASA will soon have responsibility
for operations and personnel licensing.
With the emergence of the EU, obviously EASA will become the premier
European aviation authority for the foreseeable future and likely continue advocating
for safety and related innovations in aircraft manufacturing, navigation and personnel
training.
With the above referenced functions, these three distinct aviation authorities
(FAA, JAA &EASA) will continue to have tremendous influence in aviation regulation
in the areas of aviation safety, operation and maintenance well into the foreseeable
future. Another important influence in the aviation field also control by these
authorities includes respective licensing for pilots and mechanics.
Licensing
The FAA
Once a pilot is licensed by receipt of an FAA “certificate,” this pilot certification is
recognized worldwide. Certification is regulated under parts 61 and 141 of the
Federal Aviation Regulations or "FARs", found in Chapter 14 of the Code of Federal
Regulations. Pilots are certified to fly aircraft of a specific category and class. Certain
kinds of aircraft also require a type rating. The category on a pilot certificate indicates
the classification of aircraft that the pilot is certified to fly. Many categories of aircraft
exist, including airplane, rotorcraft, glider, lighter-than-air, powered-lift, powered
parachute, and weight-shift-control aircraft. Some categories are further broken down
into more specific classes of aircraft.
For compliance with FAA regulations, the majority of pilots in the U.S. undergo
training as private individuals with a flight instructor at a local flight school. Many who
decide upon aviation as a career often begin with an undergraduate aviation-based
education. Other pilots are trained in the military and are issued civilian certificates
based on their military record. Some pilots are trained directly by commercial airlines.
Two options exist for training under the FAA guidelines under Part 61 or Part 141 of
the FARs. Part 141 requires a certified flight school provide an approved course of
training, which includes a specified number of hours of ground training (for example,
35 hours for Private Pilot in an airplane). Part 61 sets out a list of knowledge and
experience requirements, and is more suited for students who can’t commit to a
structured plan, or for training from freelance instructors.
Thereafter, depending upon the type of pilot certification sought, an examination
is required to comply with FAA certification.
Mechanic certification under FAA guidelines requires the mechanic have at
least 18 months of practical experience with either power plants or airframes, or 30
months of practical experience working on both at the same time. As an alternative to
this experience requirement, a candidate could graduate from an FAA-Approved
Aviation Maintenance Technician School. Following completion of one of these
requirements, the FAA imposes additional testing requirements be met by the
applicant.
The JAA
A pilot with proper certification under JAA requirements is automatically
accepted as being valid for flight in aircraft registered in any of the JAA member
states. A license is required to fly general aviation aircraft, solo or with passengers.
The JAA approach to pilot training is similar to the FAA in that previous flight
experience mandates the type of training for certification. Licenses are issued in
accordance with the Joint Aviation Requirements for Flight crew Licensing (JAR-
FCL). They include both private and professional pilot licenses. Training must meet
the requirements in accordance with JAR-FCL, as stipulated by the Department of
Civil Aviation (DCA).
The EASA
EASA has developed regulations for pilot licensing and these shall apply after
the required European legislation to expand the Agency's remit is adopted, which is
expected in early 2008. The EASA pilot certifications will draw upon the vast
experiences of both the JAA and FAA licensing experiences to achieve pilot
certification.
Mechanics seeking certification from EASA will have to comply with part-66
Certifying Staff of the EASA. Part 66 is based on the older JAR system and includes
3 levels of authorization:
Category A (Line Maintenance Mechanic): This permits the holder to issue
certificates of release to service following minor scheduled line maintenance and
simple defect rectification within the limits of tasks specifically endorsed on the
authorization.
Category B1 (Line Maintenance Technician): permits the holder to issue
certificates of release to service following maintenance, including aircraft structure,
power plant and mechanical and electrical systems. Replacement of avionic line
replaceable units, requiring simple tests to prove their serviceability, are also be
included in the privileges.
Category C (Base Maintenance Engineer): permit the holder to issue certificates
of release to service following base maintenance on aircraft. The privileges apply to
the aircraft in its entirety in a Part-145 organization").
Summary
After reviewing the beginnings, functions and licensing activities of the FAA,
JAA and the burgeoning EASA, it is clear the FAA will continue to lead the U.S.
aviation field as we move towards the latter half of the 21st century. The JAA
appears to be heading for an inevitable merging with the EASA. Obviously non-EU
member states will still have needs that must be addressed. It is apparent that the
JAA liaison office must continue to exist in some form for the foreseeable future.
These organizations in whatever form they take, must work together to ensure the
highest standards are met in the areas of pilot training, aircraft maintenance, security,
airworthiness and above all, safety. Through communication and the sharing of
information, the aviation field will continue to lead the advance of globalization.
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14 Ekim 1983 tarihli 2920 sayılı Türk Sivil Havacılık Kanununun ( bundan böyle
TSHK olarak anılacaktır) “Amaç” başlıklı birinci maddesi ile düzenleme bulan “
devamlı ve hızlı bir gelişme gösteren… sivil havacılık sahasındaki faaliyetlerin… ”
ifadesinin yabana atılması şeklinde tezahür edecek şekilde, yirmi yılı aşkın süredir
ender değişikliklerle çağdaş havacılık kurallarını belirleyen THSK genel itibariyle
toplam 150 maddeyi ihtiva eden beş kısımdan oluşan bir kanun metnidir.
Sivil Havacılık sektörünün öncüsü Türk Hava Yolları’nın ( THY ), Hava Yolları
Devlet İşletmesi adı altında 1933 yılında kurduğu ilk filo ile TSHK kapsamında
düzenlenen birçok faaliyeti göstermek üzere hazır edilmesine rağmen gerek
dünyadaki sivil havacılık gelişmeleri gerekse bu gelişmelere bağlı anlayışların
sistematik olarak yerleşememesi, o tarihlerin sosyal ve siyasal koşulları da ele
alındığında sivil havacılık sektörünün THSK kapsamındaki yasal düzenlemelerden
yoksun kalması doğal sonucunu doğurmuştur.
Vurgulamak istediğimiz bir başka nokta ise uçak sicil kayıtlarına ilişkin hakkın
iktisabı için tescilin şart olduğu durumlarda tescili isteme tarihinin iyi niyet gibi gayet
ispatı zor ve nispeten izafi bir duruma göre tespit edilecek olmasıdır. Uçak sicillerinin
tutulmasından doğan bütün zararlardan doğan sorumluluğun TSHK uyarınca hükme
bağlanmasına rağmen mülkiyete ilişkin herhangi bir hakkın talebini düzenleyen
Medeni Kanun hükümlerine atıf yapılmayarak iyi niyet hukukuna başvurmak son
derece eksik ve isabetsiz bir düzenlemenin talihsiz sonucudur.
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Yukarıda verilen iki tanım ile Havacılık Talimatı’nın ilk maddesi mukayese
edildiğinde, Talimat’ın hukuki yapısının tüzük mü veya yönetmelik mi olduğu
maalesef anlaşılamamaktadır. Bu durumda hukuki terminoloji çerçevesinde verilen
terimleri incelemek gerekmektedir.
Anayasa Hukuku bağlamında,
Tüzük: Kanunun uygulanmasını göstermek ya da emrettiği işleri belirtmek
amacıyla, kanunlara aykırı olmamak ve Danıştay incelemesinden geçirilmek koşulu
ile Bakanlar Kurulu tarafından çıkartılan nizamnamedir.
Yönetmelik ise; Başbakanlık, bakanlıklar ve kamu tüzelkişilerinin, kendi görev
alanlarını ilgilendiren kanunların ve tüzüklerin uygulanmasını sağlamak üzere ve
bunlara aykırı olmamak şartıyla çıkarttıkları nizamnamedir.
Terminolojik tanımlamalardan da anlaşıldığı üzere Yönetmelik ve Havacılık
Talimatları amaçları, ortaya çıkışları ve uygulayıcıları bakımından son derece
benzerlik göstermektedir. Her ikisi de kamu tüzelkişiliği tarafından kendi görev
alanlarını ilgilendiren kanunların ve tüzüklerin uygulanmasını sağlamak üzere
çıkartılan kurallar bütünüdür.
Peki bu durumda akla şu soru gelmektedir:
Birçok havacılık uyuşmazlığının düzenlendiği ve bir kamu tüzelkişiliği olan
Ulaştırma Bakanlığı Sivil Havacılık Genel Müdürlüğü tarafından çıkartılan tüm
Havacılık Talimatları aslında hukuken bir Yönetmelik midir, Yönetmelik olduğu
kabullenilirse yukarıda anmış olduğumuz Talimat maddesine atıfla, bir yönetmeliğin
bir başka yönetmeliğe dayanak oluşturması hukuken mümkün müdür?
Başlangıçta son derece teknik bir hukuki tartışma gibi görünse de konu
göründüğünden son derece vahim sonuçlar doğurabilir. Örneğin usuli hukuka
aykırılığı tespit edilmiş bir Talimat’ın düzenlediği kuralların da yoklukla malul
olduğunun hükme bağlanması halinde, işbu kurallara göre tesis edilmiş bir çok işlem
veya edinilmiş hakkın da hukuk dünyasında sorgulanması ve menfaatler dengesine,
hukukun genel kaidelerine uygun şekilde sonuca bağlanması gerekmektedir.
Saygılarımızla,
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1
http://www.tdk.gov.tr/TR/SozBul.aspx?
F6E10F8892433CFFAAF6AA849816B2EF4376734BED947CDE&Kelime=t
%c3%bcz%c3%bck
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2
http://www.tdk.gov.tr/TR/Default.aspx?
F6E10F8892433CFFAAF6AA849816B2EF4376734BED947CDE
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