DEVELOPMENT OF CIVIL AVIATION IN NEW ZEALAND FULLY REPORTED ON

Grey River Argus, 12 November 1948, Page 2

DEVELOPMENT OF CIVIL AVIATION IN NEW ZEALAND FULLY REPORTED ON

UNITED KINGDOM MISSION SURVEYS SIIUAIION p a WELLINGTON, November 11. A comprehensive and detailed criticism, and report on all aspects of the operation and control of civil aviation in New Zealand is contained in a report presented to Parliament to-day by the Minister-in-Charge of the Air Department (Hon. F. Jones). The report was compiled by Sir Frederick Tymms, United Kingdom representative on the International Civil Aviation Organisation at Montreal; Mr K. T. Spencer, Deputy-Director of Aircraft Research and Development, Ministry of Supply, London; and Mr G. J. Warcup, Deputy-Director of Aerodromes Division, Ministry of Civil Aviation, London. It embraces the ■ work of investigation and inspection which the United Kingdom Civil Aviation Mission has been engaged on for more than two months. Not Unique Auckland to South Island

'We should not like it to be inferred from our criticisms of some features in Nm Zealand Civil Aviation that these features are unique to this country,” says the mission’s report. “Far from tnis. it is often Because we, in our respective spheres, have snared the responsibility for practices open to the very same criticisms, that we are now quick to detect them here. In respect ot the control of development of Civil Aviation in its early stages in New Zealand, it is, in our opinion, less vulneraole to criticism than wore other countries of which we have experience at a comparable stage in their history.” NO SEPARATE DEPARTMENT There was no justification at present, ior the setting up oi a separate department or State ior Civil Aviation. This is one of the opinions expressed in a summary of conclusions and recommendations by the united Kingdom Civil Aviation Mission. The association of Civil Aviation with the R.N.Z.A.F. has been beneficial to Civil Aviation, but essential co-operation could, and would be maintained, even if they were not both linked by tne Air Department. Civil Aviation should remain attached to the Air Department, but if the Government should consider the establishment of a Minister of Transport and a 't ransport Department for co-ordination of all rorms of transport, the desirability or incorporating Civil Aviation in that department should then be consider-I ed. Civil Aviation should not be ad-1 ministered as a branch of the Air Department. It should have a semiautonomous status attached to tne Air Department. For this purpose it could be called a “directorate.” It should have clearly defined powers, and responsibilities, for which the Director of Civil Aviation would answer to the Government through _ the Air Department. At the same time, the powers and responsibilities of the Air Department, in relation to the Government and Civil Aviation Direccorate, should clearly be defined. The head of the Civil Aviation Directorate should be an adviser of the Government on Civil Aviation problems. Since the Air Secretary, as head of the Air Department, carries on behalf oi the Government certain responsibilities in relation to both the administration of Civil Aviation and the operation of Air Transport, which has oeen entrusted to the National Corporation, and to the Commonwealth Government-owned company, he should not be a director of either of these operating organisations. With proper organisation of the Air Department and a Civil Aviation Directorate to take their full responsibility for the formulation of policy, and advise on policy, it will be unnecessary for the Prime Minister's Department to take such an active part as it-has in the past in connection with Civil Aviation development and administration. RAISING STATUS The mission recommends that the status of the post of Director of Civil Aviation should be raised to Di-rector-General of Civil Aviation. The organisation of the Directorate in two divisions —Airways and Aircraft (operation and engineering;—each undera deputy Director-General is also recommended. THREE DIVISIONS Each division should consist of three branches headed by directors, and there should be a separate Administration Branch, answerable direct to the Director-General. The proposed new branches are aerodromes and air routes branch, training and licensing branch, air services and operations branch. The Mission recommended establishment of an Advisory Committee on air regulations, comprising representatives of the Director-General of Civil Aviation, and the operators and others technically concerned with the operation of aircraft. It also recommended that the Government should consider the possibility of maintaining a Civil Aviation representative at Montreal to participate in the framing of an International Standard, and another representative in London, to participate in their implementation in a country with larger technical resources than New Zealand can command. STAFFING OF DIRECTORATE , The Mission recomemnded that the staffing of the Civil Aviation Directorate should be excluded from thej provisions of the Public Service Act. In view of the necessity for ensuring that the administration, technical regulation and operation of civil aviation do not become stereotyped and divorced from practical experience, the Mission further recommended the development of arrangements for the exchange of officers with other Commonwealth administrations, and with operating organisations. Discussing measures for the efficient, safe and economic operation of aircraft, the Mission says that planning should be the responsiblity of the Director of Civil Aviation, who should submit plans covering all phases of civil aviation development for consideration by the Government. Planning should be taken in its proper sequence, starting with air services to be operated, then aerodromes required, and then ancillary air navigation services needed. INTERNATIONAL SERVICES , .

On the question of international air services, the Mission stated that such services were desirable to serve, Auckland, Wellington and Christchurch, and there is no justification for the operation of international air services to other places whether as central distribution or otherwise. Auckland is the only practical terminal for the Trans-Pacific services, and since it should also be the terminal for Trans-Tas-man services, it must be organised to receive both land plane and sea plane services.

It would be desirable to connect both Wellington and Christchurch by Trans-Tasman services. Since Wellington can only be served by flyingboats, and Christchurch by landplanes, it would be necessary for Tasman Empire Airways to operate both sea-planes and land-planes in co-operation with the New Zealand National Airways Corporation which would facilitate the latter ne choice of Solents for the next stage of the operation by Tasman E " Airways appears to be sound, but th? restriction to day flying. been accepted adversely, affects the utility and economy of the service, and is inconsistent with the current operational practice with comparable land-planes. There is grave doubt whether suitable sea-planes will be available to take the place of Solents. At the next stage of re-equipment, the proposed capital expenditure at Mechanics Bay sea-plane base, which cannot be fully amortised or recovered, should therefore be carefully reviewed and alternatives sought. The location of the engine repair shop, with its attendant engine test-beds in the middle of the City' may be open to objection, on the score of the noise nuisance ARTIFICIAL HUB So far as internal air services are concerned, the Mission says the permanent location of the New Zealand National Airways base at Palmerston North, which is an artificial hub for air services ,should be reviewed in the light of the proposed development of aerodromes at Rongotai and Auckland. There would be an advantage in the development of Some of the minor air services, initially on a non-scheduled basis, and their operation by locally established companies, under contract with the National Airways Corporation. There should be freedom for operation of. “taxi” services by such local operators. There appears to be scope for the use of small sea-planes 'Or amphibians in this field. SEARCH AND RESCUE SYSTEM . The working efficiency of air traffic control, radio and meteorological services at aerodromes would be improved if these services were housed together in properly planned control buildings. Relative responsibilities of the commander of aircraft, and of Air Traffic Control should be clearly defined. The search and rescue system of New Zealand is organised on sound principles, and the Mission recommends its extension to cover searches by Flying Clubs and private aircraft. Radio services are generally admitted to be inadequate for the air services now operating and instrument landing systems at Whenuapai and Ohakea should be installed as soon as possible. The Mission recommends a review of the relative responsibilities of the Post and Telegraph Department and Civil Aviation (Tele-communica-tions) Organisation. Calibration of radio aids to navigation is an essential service for which the Directorate of Civil Aviation should be organised and equipped. The Mission, dealing with the regulation of aviation, said there is a tendency to over-regulation, and the extension of Government control beyond the usual levels of Governmental Regulations. This sometimes amounts to the assumption of management. There is also a tendency to reduce the code of law to a requirement to satisfy a specified, or unspecified official —the practice of which is not in accordance with the traditions of British Jurisprudence. There appears to be no merit in the three-tier system of law codification, which has been adopted—namely the Act, the regulations and the directions. The latter are not sanctioned bv the Act. All Regulations intended to have a statutory effect could, with advantage be issued' in the Statutory Regulations-

MINISTER’S POWERS The powers and functions to be exercised by the Minister under the Act, and Regulations, should, where appropriate, be formally delegated to the officers required to exercise them. Certain regulations, appropriate to supervision of commercial air transport operations, when applied to the operations of a national operator, have the effect of imposing unnecessary Departmental control over the management of the organisation which itself has been set up by the Government. The Air service certificate system, involving a great measure of detailed supervision by the Director of Civil Aviation over the management and organisation of a National operating agency, according to a code of standards, which is largely unwritten, is necessary, and inappropriate. It should not be applied to the National operating agencies ,the Boards of which, are direcllv responsible to the Government for efficiency with which they carry out their mandate, while they are responsible, also, for compliance with the coded law. AIRWORTHINESS Referring to the airworthiness of aircraft, the Mission says there is no need for a full code, of New Zealand civil airworthiness requirements. Airworthiness requirements of countries of the origin of aircraft must inevitably be accepted with such limited modifications as may have been found necessarv in New Zealand. The Mission considered that the use of import control as the means of technical control of aviation was open to doubt. Control of the purchase of aircraft with Government funds, by the refusal of an import licence by officers of the Government is inappropriate. There should be a

statutory requirement to report all major, or serious accidents, and power to carry out investigation as at present. MEN WILL BE NEEDED Dealing with training,. the Mission states that civil aviation is dependent on war-trained personnel. There is at present a need for conversion training, and for planning ahead to ensure a supply of new men, who will shortly be needed, not only as replacements, but to meet the demands of expansion. There is a continuing need for providing air experience for air t.ralhc controllers, and close collaboration between air crews and air Irallic control personnel. The training of radio operators, and technicians, Is a common problem, and for operators and civil aviation directorate s'pecialised training is required, and a school of instruction for tins purpose will probably be found necessary. A co-ordinated scheme, linking up universities and technical schools, operators, engineering establishments, and the aeronautical engineering branch of the civil aviation director ate is needed. While conversion training of pilots and the development of co-pilots to command, is a current problem, ■there is need to look ahead to the future sources of supply of pilots to supplement the Air Force supply. FLYING CLUBS AN ASSET Flying clubs have proved everywhere an asset in war. They are also a national asset in the development and operation of civil aviation and air transport. They, constitute the most economical initial training and selection ground for pilots, and the Mission recommends consideration of a scheme of financial assistance to flying clubs, the object of which should be to reduce flying charges to a level which will enable sufficient flying to be sold to maintain costs at an economic level, and to raise commercial revenue to the maximum. Air Training Corps training should be paid for by the Government, at a rate which covers the whole costs of the flying club, thus reducing the need for a direct subsidy. Part of the financial assistance to flying clubs should be in the form ol the provision of aircraft, and spares, on a basis which will eliminate the need for financial provision for the replacement of reserves. Financial assistance toward operating costs may take the form of bonuses for training accomplished. In the case of small clubs, a fixed grant toward standing charges may also be necessary. The Director of Civil Aviation should have the responsibility of developing and supervising flying club organistaions, and should be required to prepare proposals for consideration by the Government. PERFORMANCE REGULATIONS Discussing 1.C.A.0. standards, the Mission recommends New Zealand to collaborate with the United Kingdom in framing performance regulations for an interim period, until aircraft and aerodromes are available, which comply with international standards, yet to be introduced. The Mission recommends the preparation of an aerodrome zone with plans for all important aerodromes,, with particular reference to the installation of approach lighting, and instrument landing systems. International airports are required at Auckland and Christchurch, and Ohakea is necessary as an alternate base in case of bad weather at either of the regular airports. International water agrodromes at Auckland and Wellington are recommended. The Mission recommends an urgent investigation ol sites at Mangere and Pakuranga, and the provision of funds for the necessary meteorological and engineering surveys, in view of the inability to develop fully, militaiy and civil flying at Whenuapai. The Mission says that RongoI tai could not be developed as an international aerodrome, because of the surrounding hills. Paraparaumu could not be made to comply fully with international standards, because of the hills on one side. The Mission does not consider there is a case for making an international aerodrome to serve Wellington further away from the city. HAREWOOD SUITABLE Harewood is suitable for the development of an international aerodrome at Christchurch. The R.N.Z.A.F. aerodrome at Wigram is too close to permit the development of both, and either a decision should be taken to move the Air Force ultimately to another aerodrome, or a new site should be chosen and developed now as a civil airport. Reports on which Wellington harbour was condemned for flying boat operations are not applicable to modern flying boats. The Mission believes that an examination and trial by seaplane operational experts would prove it to be suitable for modern flying boats.

Rongotai Problems The Mission says that the practical limit of construction at Rongotai appears to be in the category which limits the classes of aircraft which may use it. The Mission disagrees with a proposal that the initial construction should be limited to a strip width of 300 feet. The minimum strip width for safety should be 500 feet, and with a clearance of houses, over a total width of 800 feet. Full development will necessitate the clearance of the whole isthmus. When the Rongotai aerodrome is constructed, the need for the further development of Paraparaumu will disappear. Although advising against an international ’ aerodrome at Palmerston North, the Mission states that it will remain an important internal aerodrome, but it will be necessary to construct hard runways to maintain the aerodrome in serviceable condition for the purpose of internal air services. DUNEDIN CHANGE The Dunedin aerodrome is unsuitably situated for the operation of scheduled air services, and involves' considerable risk. The Mission recommends an investigation of a site in the Taieri Valley. The Taieri aerodrome has been allowed to develop to a dangerous extent, beyond its original purpose, and it is no longer a safe aerodrome for modern aircraft. Apart from the hazard of being surrounded on three sides by hills, it is then dangerous because of low clouds and low visibility during the winter months. The Mission, therefore, recommends that the aerodrome be abandoned, and a new site developed in a less dangerous localitl. There is only one locality in the vicinity of Dunedin where an aerodrome for transport aircraft could be made with reasonable safety, and this is further down the Taieri Valley, where open approaches from two opposite directions can be secured. The vicinity of Momona, in the centre of the widest part of the

valley appears to' be the most suitable area. The Otago harbour, the Mission considered suitable only for the operation of small seaplanes. Bluff harbour appears to be suitable for the operation of flying boats. While the Mission is not called upon to comment, in detail, on the problems of aerodrome equipment, its attention has been drawn to one aspect which cannot be over-emphas-ised. The Director of Civil Aviation has been devoting vigorous attention to this problem, but the Mission could not help observing that the organisation and equipment at civil aerodromes in New Zealand, for dealing with accidents, resulting in fire, is wholly inadequate. The Mission says that great risk is at present being accepted. BETTER EQUIPMENT While complete security can never be achieved, the Mission strongly recommends the Government to make funds available for the provision of a greatly improved scale of equipment at all important aerodromes. The equipment includes crash fire-fighting rescue services, equipped with extinguishing apparatus, tools, protective clothing, lighting, first-aid, and radio communication. The Mission says there is need for a considerable programme of aerodrome construction and development in New Zealand. It is belond the capacity of the local authorities, generally, to provide what is required, and the Mission recommends that the State should take over the ownership and responsibility for the development of aerodromes required for the National Air Transport plan. The field should be left open for local and private enterprise to provide aerodromes outside the national plan, subject to technical control by a licensing system. Local authorities and associations should be associated with the development of the service and amenities for the public at State aerodromes. UNIFIED CONTROL There is need for the unified control of administration and all activities at each aerodrome, and the administration and operation of State civil aerodromes should be the responsibility of the Director of Civil .Aviation. A system of charges for the use of aerodromes should be established in order to i - educe the cost to the taxpayer, and to ensure that air transport is not developed on an artificial economic basis.

MAIDEN SPEECH ENDANGERED. It was the aspiring young politician’s maiden speech and he was seized with a bout of. coughing. “Here,” said another member, “take a Bants,”— and so saved the occasoin. Bants give rapid aid to coughs, colds and sore throats. 1/1 tin, everywhere. Makers, Stacey Bros. Ltd., 385 Khyber Pass Road, Auckland. 3