ICAO CIRCULAR 14-AT13

--
CIRCULAR
=ij$?f& I
_I

M A R C H 1950

FACILITATION OF
INTERNATIONAL AIR TRANSPORT

Report on Implementation of Annex 9 to

the Convention as well as on Other
Aspects of the FAL Programme

Prepare$ by the Facilitation Section

o f the A i r Transport Bureau and
published by authority of
the Secretary General

INTERNATIONAL
ClVlL AVIATION
ORGAN I E A T I O N
MONTREAL @ CANADA
 This Publi.cation i s i s s u e d i n English, French and Spanish

Published i n Montreal, Canada, by t h e

I n t e r n a t i o n a l C i v i l Aviation Organization.
Correspondence concerning m b l i c a t i o n s
should be addressed t o t h e Secretary General
of ICAO, I n t e r n a t i o n a l Aviation Building,
1080 University S t r e e t , Montreal, Canada,

Orders f o r ICAO p u b l i c a t i o n s should be s e n t , on payment:

I n Canadian currency ($2, to I n S t e r l i n g o r I r i s h currency (s/d), to

Secretary General, ICAO, H i s MajestyDsS t a t i o n e r y Office,

I n t e r n a t i o n a l Aviation Building, P .O. Box 569,
1080 University S t r e e t , London, S.E. 1,
Montreal, Canada, England.
(Cable address : ICAO MONTREAL); (Cable address : HEEAISTOMERY LONDO~J) ;

I n Fkench currency (fr.2, to I n E ~ n t i a ncurrency (m/ms), t o

ICAO Representative, ICXO Representative,

European & African Office,
6obis, avenue d ,IBna,
P a r i s (16e), France,
(cable address: ICAOREP PARIS);
Middle East Office,
Wadih Saad Building # 4 3 ~ ,
S h a r i a Salah e l Din,
Zamalek, Cairo, Egy-pt.
(Cable address : ICAOREP CAIRO) ;

I n Peruvian currency ( s o l e s l , t o Jn Australian currency (s/dl, t o

ICAO Representative, ICAO Representative,
South American Office, Far East & P a c i f i c Office,
Apartado 680, 17 Robe S t r e e t ,
Lima, Peru S t . Kilda,
(cable addresg: ICAOREP LPIVIA); Melbourne, A u s t r a l i a ,
(Cable address : ICAOrmP MELHOURNE) .

P r i c e : 1 0 cents ( ~ a n a d i a ncurrency) ( ~ o n t r e a l )
1. - General ...................e.................e...................
7
2.- Frovisions with r e s s e c t t o e n t r y and departure of a i r c r a f t ...... 10

3.- ~ro~risio ~ ~ sr e s p e c t t o entry and departure of i n d i v i d u a l s

with .., 1;

,$- l r o v i s i o n s with r e s p e c t t o e n t r y and departure of cargo .........I5

5.-
tile t e r r i t o r y of a Contracting S t a t e .......................... 15
Tr.ovisior.s with r e s p e c t -to t r a f f i c passing through

6.- Custons-free a i r p o r t s ant? mstor~s-free t r a d e zones ..............17

7.- Frovisions rrith resl;ecZ t o a i r si:nitation, n e d i c a l s e r v i c e s
and a g r i c u l t u r a l qu.a~-amtlnc ...................................12
L .
--
-,revisions ..................19
with r e s p e c t t o exchange f ~ c i l i t i e s

9.- Other provisions ................................................20

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THIS PAGE INTENTIONALLY LEFT BLANK
 IChO Circular W T / ~ Faze 5

FOREWORD

It i s almost one year since the ICAO Council approved the Annex t o the
Convention on Facilitation of International A i r Transport (Annex 9), and the
tints has arrived when Contracting States undertake t o apply its provisions,
It i s believed t h a t interested persons w i l l wish t o know t h e extent t o &ich
the FAL Annex, as well as other aspects of the FAL Programme, i s being b
plemented. This Circular, based upon advice received up t o 1 March 1950,
attempts t o present t h i s information i n concise form, and i n such a way t h a t
it can, where desired, be used as a supplement t o the FAL Annex f o r purposes
of aiding i n the determination of existing requirements f o r the clearance of
a i r c r a f t and the loads which they carry,

The chart contained herein, which attempts t o i l l u s t r a t e generally the

present degree of implementation of Annex 9, should be examined with certain
qualifications i n mind. The information received did not always indicate
with complete c l a r i t y the precise nature of the differences between Annex 9
and a given corresponding national practice, and the chart may contain a few
errors due t o ambiguity or misunderstanding i n t h i s respect, In some cases,
where it was known t h a t o f f i c i a l replies were unavoidably delayed, it has
been necessary t o r e l y upon unofficial information, and i n this connection
grateful acknowledgments a r e made t o representatives of ICAO Regional Offices
and UTA; i n other cases, it has been necessary t o r e l y upon the silence
means acceptance philosophy of Article 38 of the Convention, Although most
of them do so, there i s no obligation under Article 38 of the Convention f o r
States t o notify differences with respect t o Recommended Practices i n an
annex, as i s the case with respect t o Standards; therefore, information may
be lacking i n instances other than those cited with respect t o differences
f r o m Recommended Practices, In some cases, an indication has been given
t h a t the differences may be likely t o disappear i n the relatively near future
and i n other cases it has been indicated t h a t the differences are l i k e l y t o
be permanent; it has not always seemed practicable t o predict the permanence
or otherwise of the differences, A s differences a r e further c l a r i f i e d o r
disappear through amendment of national laws or regulations, it w i l l be pos-
s i b l e t o portray more accurately the actual degree of implementation of
Annex 9, and it is intended t o publish other Circulars i n the future which
w i l l do SO.
Page 4 ICAO Circular U-AT/~

The chart herein uses the abbreviations (ST) and (RP) t o indicate
which provisions of Annex 9 are Standards and Recommended Practices, respect-
ively. It might be mentioned in t h i s connection t h a t during the development
of Annex 9,efforts were generally directed toward establishing as Standards
those provisions which appeared t o affect a i r transport exclusively, and
establishing as Recommended Practices those provisions which appeared t o
a f f e c t other forms of international transport as well. However, exceptions
t o t h i s general philosophy occur, usually because a particular provision
-
was found t o a f f e c t a i r transport -
due t o its greater speed much more
seriously than other forms of transport. Bg way of i l l u s t r a t i o n , two hours
of clearance formalities a t each end of a ten-hour f l i g h t involve 28.5 per
cent of the t o t a l time required t o make the journey; a t each end of a hundred-
hour voyage involve 3.8 per cent of the t o t a l time required.
IZAO Circular I.~.=AT/~ Page 7

FACILITATION OF INTERNATIONAL AIR TRANSPORT

Report on Implementation of Annex 9 t o the Convention

as well a s on other Aspects of the FAL Promamme

The Facilitation Programme i s now s e t f o r t h a t length in the printed

Standards and Recommended Practices on Facilitation of International A i r
Transport (Annex 9 t o the Convention on International C i v i l Aviation), and
i n t h e Seventh Report t o Council by the Chairman of the A i r Transport Corn-
mittee (DOC667&0/763). Although no summary can o h a t e reference t o t h a t
basic information, a brief sketch may serve t o bring into focus the essen-
tials. The Prograssms, which was begun in l a t e 1945 (see Historical Intro-
duction and P r e a d l e of Annex 9 ) , i s aimed a t the flFacilitation of Inter-
national A i r Transportn in the sense of permitting f r e e and unimpeded
passage of a i r c r a f t and the t r a f f i c t h a t they carry. It extends t o the
related, but nevertheless distinct, f i e l d s of:

1 ) Entry and departure of a i r c r a f t ;

2) Ezltry and departure of individuals by a i r (immigration
procedures) ;

3) Entry and departure of cargo ky a i r (Customs procedures) ;

4 ) A i r t r a f f i c passing through the t e r r i t o r y of a Contracting
State;

5) Customs-free airports and customs-free trade zones;

6 ) A i r sanitation and quarantine (public health and

agriculture procedures) ;
7) Currency exchange f a c i l i t i e s ;

8 ) Indirect impediments which increase costs, e.g., certain

duplicatory insurance and taxation requirements.
Page 8 ICAO Circular Lc)rA~/3

The principal means by which these objectives a r e sought t o be accom-

plished a r e improved and uniform procedures on t h e part of those government
agencies whose a c t i v i t i e s tend t o delay o r r e s t r i c t t h e rapid f r e e movement
of i n t e r n a t i o n a l a i r t r a f f i c , Such procedures should be adjusted so a s t o
impose t h e l e a s t mount of r e s t r a i n t on a i r transport, while a t the same
time assuring adequate protection of national i n t e r e s t s .

It should be noted t h a t t h e problem of f a c i l i t a t i o n of i n t e r n a t i o n a l

a i r transport i s not uniform throughout the world. It i s d i f f i c u l t i n a
p a r t i c u l a r country i n d i r e c t proportion t o the r i g i d i t y of customs, immi-
gration, public health, agriculture, and other regulations i n t h a t corntry.
Government requirements i n c e r t a i n countries a r e so much more r e s t r i c t i v e
than i n others t h a t a recommendation which seems r a d i c a l l y l i b e r a l t o one
country may appear i n another country t o have certain aspects of the re-
actionary,

However, it i s believed t h a t the FAL Programme a s a whole i s consid-

erably more l i b e r a l than any o v e r a l l s e t of government requirements now i n
force, and t h a t the programme, since i t s inception a few years ago, has been
responsible e i t h e r d i r e c t l y o r i n d i r e c t l y f o r a new impetus toward b r i n g h g
t h e speed of administrative clearance formalities abreast of aviation's
technical progress. The wholeheaded cooperation and support of IATA ( s c h e
duled operators), FITAP (non-scheduled operators) and FA1 (private f l i e r s ) ,
as well a s of other i n t e r n a t i o n a l organization&, have been received by t h e
FAL Programme from t h e outset, ICAO remains t h e only o f f i c i a l inter-govern-
mental organization which has attempted t o d a t e t o go beyond general resolu-
t i o n s o r recommendations and l a y down specific formulae whereby a t l e a s t
one form of U t e r n a t i o n a l t r a v e l and transport might be f a c i l i t a t e d i n a
manner consistent with t h e minimum security requirements of Contracting
States.

it' During 19491 t h e UN Economfc Commission f o r Asia and the Far East,
t h e International Union of O f f i c i a l Travel Organizations, t h e
International Air Transpod Associat.ion, t h e I~ter-American Bap
Association, and t h e International Chamber of Commerce passed Reso-
l u t i o n s urging rapid governmental implementation of t h e FAL Annex,
The Unit& Nations (Economic and Social Council) has drawn t h e atten-
t i o n of i t s member Governments t o t h e FAL Annex i n connection with
a c t i v i t i e s aimed a t reducing e x i s t i n g b a r r i e r s t o t h e i n t e r n a t i o n a l
transport of goods.
ICAG Circular l&AT/3 Page 9

The FAL Standards and Recommended Practices (Annex 9) inevitably take

two forms: first, a negative form, e.g., t h a t States s h a l l not impose more
than certain maximum requirements in the way of paper work, r e s t r i c t i o n s of
f'reedom of movement, etc., and second, a positive form, e.g., t h a t States
s h a l l provide certain minimum f a c i l i t i e s f o r passenger convenience, f o r
t r a f f i c which i s merely passing through, etc. Whenever a question a r i s e s
under a n e ~ a t i v eprovision, it i s assumed t h a t States will, wherever possible,
relax t h e i r requirements below the maximum provided i n the Standards and Re-
commended Practices. Wherever there i s a positive provision, it i s assumed
t h a t States w i l l , wherever possible, furnish more than the minimum provided
i n the Standards and Recommended Practices.

The provisions of the FAL Standards and Recommended Practices apply t o

a l l categories of a i r c r a f t operators except i n the few cases where provisions
speciffcally r e f e r t o a i r l i n e s without mentioning other types of operators.
However, the possible development of provisions relating exclusively t o
private flying and non-scheduled a i r transport (Doc 667&C/763), as i n the
case of provisions relating t o multiple insut'qnce and taxation requirements,
must await the conclusion of action i n another form now under consideration
in the A i r Transport Committee and ~ouncil*. It would appear t h a t a l l three
of these problems, although related t o the general FAL Programme and first
introduced a t meetings of the FAL Division, w i l l continue t o receive treat-
ment separately from the actual provisions of the FAL Annex, and t h i s i n
e f f e c t has already been decided i n t h e case of the l a t t e r two.

A s w i l l be observed fromthe chart contained herein, a substantial

number of differences remain a s of 1 March 1950 between the various national
practices and those specified i n the FAL Annex, However, in order t o view
these differences in t h e i r proper perspective, it i s necessary t o keep in
mind t h a t a ) a l l States agree t o u t i l i z e t h e uniform system of PAL clearance
and related documentation; b) the differences in d e t a i l are i n most cases
M t e d e i t h e r i n degree or i n time; and c) in many instances, States have
relaxed t h e i r requirements below, or provided services above, the maximums
and minimums s e t f o r t h i n the FAL Annex. Much room f o r improvement i n the
f i e l d of f a c i l i t a t i o n of international a i r transport w i l l always exist, but
a t l e a s t a moderate degree of optimism appears justified upon the basis of
o f f i c i a l and unofficial information received t o date. It i s of i n t e r e s t
i n t h i s connection t h a t a t l e a s t twenty States have organized t h e i r own
Committees on Facilitation f o r the purpose of proreoting the implementation
of the I C A FAL Programme, and for the solution of day-to-day problems i n
t h i s f i e l d of international c i v i l aviation.

f A s of 1 March 1950, Docs 6850-~/797; ~ - ~ ~ / 4 5 36943-~/805, respect-

and
tvely, show the status of each of these three projects.
 2.- PROVISIONS WITH RESPECT TO ENTm
AND DEPARTURE OF AIRCRAFT

Based upon o f f i c i a l and u n o f f i c i a l information received t o date, it

appears t h a t S t a t e s a r e implementing t h e provisions under t h i s heading i n
t h e FAL Standards and Recommended Practices, except i n t h e cases shown on
t h e chart contained herein*

The r g r i a d of d i f f e r e n t inward and outward declarations, aircraft

health declarations, crew manifests, and r e l a t e d forms used i n t h e past by
t h e various countpies serves t o i l l u s t r a t e the tremendous s t e p forward which
has been achieved i n securing t h e adoption of a delay avoiding uniform
system of a i r c r a f t documentatione

Although a few countries s t i l l demand a d d i t i o n a l data, it w i l l be

noted t h a t t h e General Declaration has become almost universally acceptable,
except with respect t o t h e reservation maintained by some countries t h a t it
be signed by t h e pilot-in-command, Most clearance a u t h o r i t i e s have agreed
t h a t t h i s i s a hold over surface t r a n s p o r t requirement which shoula not
apply t o t h e person i n command of an a i r c r a f t because a ) he i s n o t r e a d i l g
a v a i l a b l e f o r signing; b) h i s a t t e n t i o n should not be diverted from o t h e r
pressing matters; and c) t h e authorized agent" signature provides adequate
protection. It therefore appears t h a t t h i s difference from t h e FAL Annex
w i l l disappear through amendment of n a t i o n a l laws o r regulations,

The requirements f o r a d d i t i o n a l information on t h e passenger and cargo

manifests, which a limited number of countries continue t o maintain, present
a r a t h e r serious problem from t h e standpoint of avoiding delays t o a i r c r a f t ,
.
The FAL Annex procedures a r e designed so t h a t t h i s information might be
,
secured from documents completed during f l i g h t (e ge t h e ~ m b a r k a ton/~isem-
f
barkation Card) r a t h e r than from t h e manifests which must always be completed
during t h e period of time immediately preceding t h e departure of t h e a i r c r a f t .

The reservation of t h e r i g h t t o require manifesting of t r a n s i t t r a f f i c

on through-flights only when a change of a i r c r a f t o r o t h e r well defined c i r -
cumstances occur should not r e s u l t in many delays t o a i r c r a f t under t h e
e x i s t i n g s i t u a t i o n . However, t h i s cannot be s a i d f o r regulations which re-
quire t h a t manifests o r s t o r e s l i s t s describing everything on board be
furnished regardless of t h e through nature of p a r t i c u l a r a i r c r a f t operations.
ICAO Clircular U-AT/3 Page 11

Many delays t o a i r c r a f t will be eliminated through what appears t o be

t h e willingness of mst countries t o accept t h e documents f o r entry and
departure of a i r c r a f t when furnished in the language of t h e n a t i o n a l i t y of
t h e a i r c r a f t and accompanied by immediate verbal and/or l a t e r written
translations,

The requirement maintained by a few countries t h a t v i s a s be obtained

on c e r t a i n a i r c r a f t documents and t h a t f e e s be paid f o r them presents a
serious problem, p a r t i c u l a r l y from t h e standpoint of t h e development of
i n t e r n a t i o n a l a i r cargo, Speed i s of t h e essence i n t h e development of a i r
cargo and it i s unlikely t o be attained in s u f f i c i e n t degree where v i s a s a r e
required f o r items on t h e cargo manifest.

3.- PROVISIONS l?ITH RESPECT TO ENTRP

AND DEPARTURE OF INDIVIDUAIS

Based upon o f f i c i a l and u n o f f i c i a l information received t o date, it

appears t h a t S t a t e s a r e implementing t h e provisions under t h i s heading i n
t h e FAL Standards and Recommended Practices, except i n t h e c a s e s shown on
t h e chart contained herein.

Customs experts have long debated whether t h e o r a l o r t h e written

passenger baggage declaration enables the passenger t o complete formalities
most expeditiously- The FAL Division approached t h e problem from the point
of view t h a t , i f a written passenger baggage declaration i s required, it
should be uniform and r e a d i l y capable of being completed in f l i g h t . O f t h e
countries requiring a written passenger baggage declaration, it appears t h a t
many of them a r e willing t o accept t h e form designated f o r t h i s purpose in
t h e FAL Annex.

It a l s o appears t h a t most countries a r e willing t o accept t h e FAL

Annex forms and procedures f o r the e n t r y and departure of individuals i n
l i e u of t h e l a r g e number of varying temporary entry permits, immigration
information sheets, c e r t i f i c a t e s of good conduct, c e r t i f i c a t e s of good
h e a l t h and the l i k e used i n t h e past. It i s p a r t i c u l a r l y noteworthy t h a t
most S t a t e s w i l l accept t h e FAL Annex's crew member c e r t i f i c a t e s o r f l i g h t
crew member licences f o r temporary admission i n l i e u of passports and
visas, f o r t h i s action represents a considerable s t e p along t h e way towards
securing f o r aviation crew members privileges equal with those long granted
surface transport crew members, It i s a l s o of i n t e r e s t t o note t h a t few
countries maintain e x i t v i s a s o r nore than a minimum of other e x i t
formalities.
 Page 1% ICAO Circu'isr AT/^

It w i l l be observed t h a t a considerable number of countries do not

intend t o adopt universally the multi-.iourne~ v i s a valid f o r a t l e a s t one
year from the date of issue. Many of these same countries have been willing,
however, t o do more than this on a u n i l a t e r a l o r b i l a t e r a l basis, i.e., they
have eliminated v i s a s altogether f o r non-immigrant t r a v e l l e r s from various
other countries. It i s p a r t i c u l a r l y important f r o m t h e aviation point of
view t h a t non-immigrant t r a v e l l e r s be i n a position t o embark on t h e i r
journeys under r e l a t i v e l y short notice, According t o IATA sources, time-
consuming v i s a f o r m a l i t i e s have resulted in t h e cancellation of many journeys
which could only have been undertaken by a i r i n t h e first place,

It i s recalled i n this connection t h a t an International Card-Type

passport f o r t h e use of n o n - i d g r a n t t r a v e l l e r s was developed by t h e FAL
Division a t i t s F i r s t Session e a r l y i n 1946, and was made a p a r t of t h e
PICA0 FAL Recommendations f o r Standards, Practices and Procedures (Doc 2005-
FAL/&). Certain refinements with respect t o i t s forrnat and use were pro-
posed by t h e S e c r e t a r i a t in t h e d r a f t s e t of FAL International Standards
and Recommended Practices placed before the Second Session of t h e FAL Divi-
sion in Geneva i n l 9 @ (DOC5062-~AL/505)

A f t e r considerable discussion. the Second Session of the FAL Division

recommended i n e f f e c t ( i ) t h a t no pGovisions r e l a t i n g t o ail I o t e r n a t i o n a l
Card-Type passport be included i n t h e FAL Annex a t t h e present time, and
( i i ) t h a t , pending an appreciable amount of progress secured f o r n o n - M -
grant t r a v e l l e r s through the complete abolition of v i s a s and t h e replacement
of t h e passport by a standardized i d e n t i t y card, each S t a t e should take note
of pertinent provisions in t h e FAL Annex (seeChapters 3 and 5 of Annex 91.
The A i r Transport Cormnittee and the Council endorsed these recommendations
buk reached t h e f u r t h e r conclusion t h a t the possible establishment of a
s p e c i f i c format f o r an International Card-Tme passport should be kept under
study by t h e S e c r e t a r i a t and t h e extent t o which t h i s subject might form a
p a r t of t h e FAL Programme would be reconsidered a t a time when preparations
were going forward f o r t h e convening of the Third Session of t h e FAL Divi-
sion (DOC667&C/763).

It has been generally conceded t h a t a l l of t h e i d e n t i f i c a t i o n d a t a

contacined on t h e first several pages of the e x i s t i n g type of passport can
be placed on a s i n g l e card, Past e f f o r t s t o do so have made l i t t l e headway
because 30 o r 4.0 a d d i t i o n a l blarrk spaces or pages have been needed i n any
event f o r v i s a and r e l a t e d stamping purposes, In t h e case of t h e card-type
passport, t h e r e would be no room f o r t h e stamping i n of visas, and any
r e l a t e d stamping required f o r entry purposes would be placed upon an

.
Embarhationbisembarkation Card f i l l e d out by t h e t r a v e l l e r during his
journey (see Appendix 3 of Annex 9)
 ICAO Circular L!,.-AT/~ Page 13

The bringing i n t o general usage of any card-type passport, therefore,

depends upon whether States e i t h e r have eliminated o r a r e willing t o elimi-
nate preliminary inspections* and t h e consequent v i s a s f o r a l l n o n - W g a n t
t r a v e l l e r s . The evidence i n d i c a t e s t h a t a t t h e present time they a r e nlot,
a s i s shown by t h e f a c t t h a t those States which a r e willing t o make v i s a s
valid f o r a t l e a s t one year from t h e date of issue regardless of t h e number
of e n t r i e s a r e eliminating few if any v i s a s , and those S t a t e s which a r e
eliminating many v i s a s a r e unwilling t o take even t h e aforementioned s t e p
with r e s p e c t t o t h e i r balance of non-immigrant v i s i t o r s .

Insofar a s a s p e c i f i c format f o r an International Card-Tme passport

i s concerned, f u r t h e r study by t h e Secretariat t o date does not reveal t h a t
any p a r t i c u l a r change i s required from t h a t s e t f o r t h i n Doc 5 0 6 2 - ~ ~ ~ / 5 0 5 .
The Third Inter-American Tourist Congress (San Carlos de Bariloche, Argentine,
February 1949) recommended f o r use throughout t h e western henisphere an
Inter-American Tourist Card which would generally follow t h i s f o m t . How-
ever, since t h e usage of any card-type passport, regardless of i t s precise
format, primarily depends upon t h e willingness of S t a t e s t o forego entrance
v i s a requirements (e.g., t h e above mentioned Inter-American Tourist Card
serves a s a s u b s t i t u t e f o r a v i s a Itprovided t h i s does not contravene t h e
laws of t h e country i n questiontl), it i s useful t o record s t e p s which have
been taken by S t a t e s i n t h i s direction insofar as they have come t o t h e
a t t e n t i o n of t h e Organization. It should be mentioned t h a t t h e l i s t given
below may be f a r from complete and should be read with t h i s q u a l i f i c a t i o n
i n mind.

nNon-Immimantu Visas not Required

f o r Nationals of

Australia A l l Commonwealth countries.

Austria Italy.

Belgium Algeria, Denmark, France, Iceland, Ireland, Luxernbowg,

Netherlands, Norway, Sweden, Switzerland, Tunisia, United
Kingdom, United States.

Canada Ireland, United States, a l l Commonwealth countries.

Ceylon A l l Commonwealth countries.

ir The v i s a i n almost a l l cases i s simply evidence t h a t t h e holder has under-

gone and passed some s o r t of preliminary inspection before h i s departure;
it does not, a s i s generally supposed, provide any guarantee t h a t the
holder w i l l be admitted upon h i s a r r i v a l .
 ICAO Circular UP AT/^

Country "Non-Immigrantn Visas not Required

(Contd. ) f o r Nationals of (Conw .)

Chile Argentina, France, Switzerland.

Cuba Canada, France, United States.

Denmark Belgium, France, Iceland, Ireland, Luxembourg, Netherlands,

Norway, S-deden, Switzerland, United Kingdom, United States.

Belgium, Chile, Cuba, Denmark, Iceland, Ireland, I t a l y ,

Luxembourg, Netherlands, Norway, New Zealand, Sweden,
Switzerland, United Kingdom, United States.
{Greece United States.

Iceland Belgium, Denmark, France, Luxembourg, Norway, Sweden,

Switzerland, United Kingdom.

India A 1 1 Commonwealth countries.

Ireland Belgium, Denmark, France, Luxembourg, Netherlands, Norwayy

Sweden Switzerland, United Kingdom, United States.

Italy Austria, France, Switzerland, United Kingdom, United

States.

Luxembourg Belgium, Denmark, France, Iceland, Ireland, Netherlands,

Norway, Sweden, Switzerland, United Kingdom, United Skates.

Mexico Canada, United States.

Xetherland s Belgium, Denmark, France, Ireland, I t a l y , P r i n c i p a l i t y of

Liechtenstein, Luxembourg, Monaco, Norway, San Marino,
Sweden, Switzerland, United Kingdom, United States,
Vatican City.

3ew Zealand France, Sweden, Switzerland, a l l Commonwealth countries.

Norway Belgium, Denmark, France, Iceland, Ireland, Luxembourg,

Netherlands, Sweden, Switzerland, United Kingdom, United
States.
All Commonwealth countries.
Philippine United S t a t e s
Republic
fUO Circular l 4 . - ~ ~ / 3 Page 15

NNon-Immigrantn Visas not Required

f o r Nationals of (Contd.)

Sweden Belgium, Denmark, France, Iceland, Ireland, Luxembourg,

Netherlands, Norway, Switzerland, United Kingdom, United States.

Switzerland A l l American States, Australia, Belgium,

Denmark, France, Iceland, Ireland, I t a l y , Luxembourg,
Netherlands, New Zealand, Norway, Northern Ireland, Sweden,
Union of South Africa, United Kingdom.

Union of South Liechtenstein, Portuguese East Africa ( i n t h e case of

Africa Portuguese nationals permanently resident i n t h a t country),
Switzerland, United Kingdom.

United Kingdom Algeria, Belgium, Denmark, France, Iceland, Ireland, I t a l y ,

Luxembourg, Netherlands, Norway, Sweden, Switzerland,
United States, a l l Commonwealth countries.

United S t a t e s Canada, Medco .

40- PROVISIONS WITH RESPECT TO ENTRY

AND DJPAIZTURE OF CARGO

Based upon o f f i c i a l and u n o f f i c i a l information received t o date, it

appears t h a t S t a t e s a r e implementing t h e provisions under t h i s heading i n
t h e FAL Standards and Recommended Practices, except i n t h e cases shown on
the chart contained herein.

A s mentioned previously, speed i s of t h e essence i n the development

of a i r cargo and it i s unlikely t o be attained i n s u f f i c i e n t degree where
v i s a s a r e required f o r items on t h e cargo manifest. It is a l s o unlikely t o
be attained in cases where t h e completion of a l l e x i s t i n g separate complicated
f o m , such a s consular invoices, c e r t i f i c a t e s of origin, c e r t i f i c a t e s of
value, and ewport licences o r declarations, continues t o be t h e rule. It
was with this thought i n mind t h a t t h e FAL Division placed i n t h e FAL Annex
a standardized i n t e r n a t i o n a l cargo invoice, copies of which could be used
by the public a u t h o r i t i e s concerned i n l i e u of t h e above mentioned separate
forms, Avoiding s t i l l f u r t h e r duplication, t h e shipper could use the form
a s his commercial invoice, provided he wished t o follow i t s format and had
it printed Fn a manner acceptable t o t h e public a u t h o r i t i e s concerned. 1%
w i l l be noted t h a t t h e FAL Annex i n t e r n a t i o n a l cargo invoice i s so designed
t h a t it could, i f desired, be used i n a l l forms of transport*
?age 16 ICAO Circular U- AT/^
It appears t h a t f u r t h e r s u b s t a n t i a l progress i n this cargo f i e l d w i l l
be somewhat limited u n t i l a ) a i r c r a f t operators gain more experience through
t h e use of the IATA standardized airwaybill/consignment note; b) t h e express
companies become properly equipped, personnelwise, t o handle t h e constantly
growing volume; c) customs clearance and warehousing i s provided on t h e spot
a t a l l major international a i r terminals; d) a i r c r a f t operators a r e authorized
and willing t o a c t a s agents f o r shippers and consignees who do not o r cannot
u t i l i z e regular customs brokers; and e ) bonding requirements a r e so imp~oved
and complete t h a t a l l international a i r c r a f t operators a r e bonded and know
exactly, i n t h e case of i n t e r n a t i o n a l cargo being shipped in bond, when t h e i r
particular responsibility commences and ceasese

j o - PROVISIONS WITH RESPECT TO T W I C PASSING

TIIROUGH THE TERRITORY OF A CONTRBCTING STATE

Based upon o f f i c i a l and unofficial information received t o date, it

appears t h a t S t a t e s a r e implementing t h e provisions under t h i s heading i n
t h e FAL Standards and Recommended Practices, except in the cases shown on
t h e chart contained herein.

A s noted previously, t h e reservation of the r i g h t t o require manifesting

of t r a n s i t t r a f f i c on through-flights only when a change of a i r c r a f t o r other
well defined circumstances occur should not r e s u l t i n many delays t o a i r c r a f t
under t h e existing situation; although t h i s i s not t r u e of regulations which
require t h a t manifests or s t o r e s l i s t s describing everything on board be
furnished regardless of t h e through nature of p a r t i c u l a r a i r c r a f t operations.

Due t o limitations of space, t r a n s i t passengers cannot s t a y abo=d an

a i r c r a f t when it makes brief stops a t intermediate points, a s i s t h e common
practice in t h e case of t r a v e l by ship, The FAL Annex procedures a r e de-
signed so a s t o create supervised "direct t r a n s i t areasn a t i n t e r n a t i o n a l
airports - which would be t r e a t e d i n much t h e same manner a s a ship a t dock-
side - where t r a f f i c passing through a State which i s a) a r r i v i n g and
departing on t h e same f l i g h t , o r b) a r r i v i n g on one f l i g h t and departing on
another from t h e same terminal, may remain without ordinarily undergoing any
examination. T r a f f i c so t r e a t e d would, of course,not require any form of
visa.

It i s t o be noted t h a t since t h e inception of t h e FAL Programms, many

international a i r p o r t s ( p a r t i c u l a r l y in Europe) have developed o r a r e deve-
loping these d i r e c t t r a n s i t areas. The areas already operating have relieved
many passengers of r - c h r e d .i;ape, a s well a s aided operators in outting down
ICA0 Circular +AT/3 Fa@ 17

on t h e i r ground time, Nevertheless, many more areas a r e needed, and much

remains t o be done where they already e x i s t i n - t h e way of increasing t h e
comfort and t h e f a c i l i t i e s f o r passengers u s h g such areas. Many S t a t e s
have given t h i s problem p a r t i c u l a r a t t e n t i o n when renovating old and plan-
ning new terminals, and it i s expected t h a t t r a n s i t conditions a t many
i n t e r n a t i o n a l a i r p o r t s w i l l soon be greatly fmproved,

6.- CUSTOMS-FFEZ AIRPORTS

AID CUSTOME-FFEE TRADE ZONES

Based upon o f f i c i a l and unofficial infornation received t o date, it

appears t h a t S t a t e s a r e implementing t h e provisions under t h i s heading i n
t h e FAL Standards and Recommended Practices, except in t h e cases shown on
t h e chart contained herein,

Although mst S t a t e s appear t o favour t h e establishment of customs-

f r e e a i r p o r t s and customs-free trade zones and r e a l i z e what an important
f a c t o r they could become in the f a c i l i t a t i o n of i n t e r n a t i o n a l a i r transport,
a t present only two customs-free a i r p o r t s have been established, t h e first
a t Shannon, Ireland, and t h e second a t Tocumen, Panama. These two a i r p o r t s
have been genera- considered a s successful, and it i s believed t h a t this
i s a t l e a s t p a r t i a l l y due t o t h e f a c t t h a t both of them allow f o r a number
of t h e functions of a f r e e t r a d e zone t o be carried out on t h e i r premises.
The f a c t mst be faced t h a t under t h e present FAL Annex d e f i n i t i o n t h e
term mcustoms-free a i r p o r t n i n and of i t s e l f (i.e., without any "free trade
zonen aspects connected with it) provides f o r l i t t l e t h a t i s new *en
thought of in terms of what f a c i l i t i e s a r e offered a t any international
a i r p o r t where adequate "Direct Transit Areas and Arrangementsn are availa-
b l e (see Definitions and Chapter 5B of Annex 9 ) , Complete f r e e trade zones,
a f e a t u r e available a t a number of seaports both i n Europe and i n t h e
Americas, would undoubtedly aid iri t h e development of a i r transport, pro-
vided such zones a r e open t o a i r transport and a r e located a t o r near
international airports*

A t t h e time of f i n a l i z a t i o n of this p a r t of t h e FAL Annex, t h e A i r

Transport Committee and t h e Council decided t h a t one of t h e subjects t o be
f u r t h e r studied was "whether' detailed provisions r e l a t i n g t o customs-free
a i r p o r t s and t r a d e zones a r e needed and, i f so, how they d g h t best be
developedw (Doc 667&~/763). The Secretariat has already studied this
matter t o some extent and has discussed it on several occasions with
public a u t h o r i t i e s and UTA personnel primarily concerned, However, t o
date what might be termed t h e primary question, i,e., exactly what de-
t a i l e d f a c i l i t i e s must be offered and r e s t r i c t i o n s removed before any
Page 18 ICAO C i r c ' i a r Up.AT/3

airport i s entitled t o be designated a _free airport, remains unanswered,

It is hoped t h a t further progress w i l l be attained i n t h i s regard i n the
relatively near future, a s one of the obstacles t o the e s t a b l i s e n t of
f r e e airports and zones i n a number of countries seems t o be the lack of
enabling legislation, It would appear that the development and establish-
dent of international Standards could be attained more readily before the
passage of a considerable amount of national legislation i n t h i s f i e l d ,
rather than a f t e r *

7.- PROVISIONS WITH RESPECT TO AIR SANITATIOM,

MEDICAL SERVICES AND AGRICULTURAL QUAFUWJ!INE

Based upon o f f i c i a l and unofficial information received t o date, it

appears t h a t States are implementing the provisions under t h i s heading i n
the FAL Standards and Recommended Practices (Chapter 8), except i n the few
cases shown on the chart contained herein.

It seems t o be more generally recognized today than it was a few years

ago that t h e modern airplane, i n s p i t e of i t s great speed, i s not a p r i m
factor i n the transmission of diseases from one area t o anothero To date,
no major spread of disease has been proven t o have been caused by the air-
plane, perhaps because a) it i s not the type of vehicle rodents wish t o
use as a domicile, b) insects cannot readily cling t o it and l i v e a t the
high altitudes a t which it operates, c) it i s the only transportation unit
which receives disinsectization a s a matter of routine, and d ) it usually
carries a norm-infectious type of t r a f f i c . The generalization can be made
that, with a few exceptions such as, e.ge, points i n Africa and Asia &ere
a continuing major public health problem r e t h s spread of disease exiats,
the carrying out of public health and agricultural quarantine functions has
been responsible f o r relatively few delays in international a i r transport,
a s compared with the number of delays attributable t o customs and immigration.

It appears t o be generally accepted t h a t it would not be appropriate

f o r ICAO t o attempt t o f a c i l i t a t e certain phases of a i r c r a f t operations and
default on others simply because some are internationally organized and
others are not, However, a s i n t h e case of developing any detailed provi-
sions relating t o the f a c i l i t a t i o n of the movement of airmail (see Doc 667&
~/763'), the development of further FAL public health provisions has ramifi-
cations not present in the further development of customs, immigration, and
other provisions. This i s because another international organization, t h e
World Health Organization (WHO), i s actively interested by v i r t u e of its
responsibility f o r the adoption of public health regulations designed t o
prevent the spread of disease by a l l forms of international transport.
 ICAO Circular &AT/? Page 19

ICAO is, of course, only concerned with developing procedures under

ImO's regulations whereby t h e necessary health o r disinsectization measures
a r e done as quickly and a s unobtrusively a s i s compatibiie with efficiency,
and done i n the a i r if possible; and above a l l things, t h a t t h e same methods
and equipment a r e accepted by a l l countries,

Fortunately, complete cooperation on an informal basis has already been

established between WHO and ICAOo This Organization has participated in
e a r l y developments leading toward t h e adoption by WHO in 1951 of public
health regulations which w i l l replace t h e International Sanitary Convention
f o r Aerial Navigation (1933-19&)* The a i r c r a f t Declaration of Health
portion of the FAL Annexas General r)nrlnration has been agreed upon a s t h e
s u b s t i t u t e f o r t h a t portion of the Lnternational Sanitary Convention (1933-
l9&) which r e q u i r e s a separate detailed a i r c r a f t declaration of health,
Yhus, a t l e a s t one more separate forrn which a i r c r a f t operators have had t o
complete f o r many years is i n t h e process of being eliminated. It should be
noted i n this connection t h a t WHO experts a r e making great s t r i d e s toward the
attainment of simplified and standardized vaccination c e r t i f i c a t e s which w i l l
have almost universal v a l i d i t y , Requirements f o r Personal Declarations of
Health, which only t ~ a v e l l e r sby air a r e obligated t o f i l l out during t h e i r
journeys, a r e being f u r t h e r reduced, although it appears t h i s form may not
be completely elfminated f o r some years t o come.

Substantial progress is being made toward t h e ultimate objective of

only disinsecting those portions of t h e a i r c r a f t not accessible i n f l i g h t
immediately before departure and disinsecting t h e accessible portions of
t h e a i r c r a f t during f l i g h t (thus eliminating t h e present considerable amount
of useless duplication), although neither t h e WHO Sanitary Regulations nor
t h e ICAO FAL Annex procedures under them y e t achieve t h i s objective, This
objective w i l l probably be f u l l y attained only when disinsectization proce-
dures a r e so standardized and supervised t h a t one public health service
f e e l s (upon t h e a i r c r a f t 8 s a r r i v a l ) t h a t another could not possibly have
erred (upon t h e a i r c r a f t a s l a s t previous departure) i n t h e execution of t h e .
ground procedures; and t h e public health service a t t h e point of a r r i v a l can
be assured by some technique t h a t the in-flight procedures were effectively
carried out by t h e crew.

8.- PROVISIONS WITH RESPECT

TO EXCHANGE FACILITlZ5

B s e d upon offic.ia1 and u n o f f i c i a l information received t o date, it

appears t h a t S t a t e s a r e implementing t h e provisions under this heading in
%he FAL Standards and Recommended Practices (Chapter 9), except i n t h e few
cases on t h e chart contained herein.
Paae 20 ICAO Circular l&AT/3

Immediately a f t e r World War I1 and during the early stages of the

development of t t d FAL Annex, currency exchange r e s t r i c t i o n s were perhaps
the greatest single deterring and delaying factor f o r t r a v e l l e r s using air
and other modes of international transport. T h i s situation has been alle-
viated t o a considerable degree due t o the willingness of those States which
of necessi-ty maintain r e s t r i c t i o n s t o p a n t incoming t r a v e l l e r s various privi-
leges and t o provide exchange f a c i l i t i e s of the type specified in the FAL
Annex.

Where written c u r r e n q declarations a r e required, a number of delays

would be avoided i f more arrangements were made between Governments and
operators t o place such declarations aMard a i r c r a f t so t h a t t r a v e l l e r s
could f i l l them out during f l i g h t , Although it i s too early t o assess the
effects facilitation-wise of the recent devaluation of many currencies, it
is believed t h a t t h i s will eventually r e s u l t i n a further reduction i n those
exchange r e s t r i c t i o n s which hamper international travel.

9,- OTHER PROVTSIONS

Based upon o f f i c i a l and unofficial information received t o date, it

appears t h a t States are implementing the FAL Annex provisions dealing w i t h
a) landings elsewhere than at international airports (Chapter 7) ; b) the
f a c i l i t a t i o n of search, rescue and salvage (Chapter 10); and c) space,
f a c i l i t i e s and services a t international airports as well as other aiscel-
laneous provisions (Chapter 11); except in the few cases shown on t h e chart
contained herein.

In connection with the l a s t of the above l i s t e d items, a number of

FAL experts a r e of the opinion t h a t the development of provisions concarning
the minimum necessary terminal installations and services a t international
sirports i s essential if one of the primmy causes of delay t o aircraft and
the loads which they carry i s t o be eliminated* The Layout of terminal
buildings, already referred t o in Chapter 5, i s certainly a f a c t o r of great
importance i n the f a c i l i t a t i o n of international a i r transport.

This general subject was f i r s t raised during t h e Second Session of

the FAL Division by the Australian Delegation. The item was added t o the
Agenda of the meeting, where it was discussed briefly on t h e basis of paprs
submitted by the Australian and United Kingdom Delegations* A resolution
was adopted which, amongst other things, urged Contracting States and the
International A i r Transport Association t o consider t h i s problem and forward
t h e i r views t o ICAO.
 The A i r Transport Committee and Council approved t h i s course of action
(Doc 6674-~/763), and called f o r an indication from Contracting S t a t e s and
the International A i r Transport Association by 1 Bovember 1949 of what, i n
t h e i r opinion, would c o n s t i t u t e minimum necessary terminal i n s t a l l a t i o n s
and services ( i t was generally assumed t h a t t h i s would be done on the bases
of l i g h t , medium, and heavj international v o l m s of t r a f f i c , although iLL1
i n s t a l l a t i o n s a r e not necessarily affected by volume). The S e c r e t a r i a t was
t o examine and c o r r e l a t e t h e information received and c i r c u l a t e it t o Con-
t r a c t i n g S t a t e s during January 1950. It was a l s o decided t h a t t h e subject
should be studied by t h e A i r Transport Committee a s a possible item on -the
agenda of t h e Third Session of t h e FAL Division and t h a t t h e Committee,
Pky 1950, should consider what other methods might be used t o ensure progress
i n this f i e l d .

Up t o t h e present time, no response has been received from anyeCo:n-

t r a c t i n g S t a t e o r from IATA. This s i t u a t i o n m y improve soon, however, f o r
it i s known t h a t a t l e a s t one Contracting S t a t e and several IATA members
have given t h e matter considerable thought, and it i s hoped t h a t t h e i r sub-
r;?issions can be received and circulated within t h e next few monthso Further,
it i s believed t h a t t h e subject w i l l be given wider consideration now t h a t
Annex 9 i s i n force, f o r t h e FAL Cormittees of Contracting S t a t e s trill be
able t o devote more a t t e n t i o n t o matters outside t h e scope of t h e erdsting
FAL Annex provisions.
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