White Paper on Dutch Aviation - Netherlands · realising these ambitions. Moreover, the quality of...

White Paper on Dutch AviationCompetitive and sustainable aviation sector for a robust economy

2 | White Paper on Dutch Aviation

White Paper on Dutch Aviation | 3

White Paper on Dutch AviationCompetitive and sustainable aviation sector for a robust economy

In its coalition agreement, the Dutch government established a clear vision for the continued development of the Netherlands. This vision focuses on an innovative, competitive and enterprising economy and on a sustainable living environment. Such economic circumstances are necessary to ensure our prosperity, also in the face of increasing competition.

International accessibility is a key condition for realising these ambitions. Moreover, the quality of the international network of connections is a decisive factor. In terms of destinations and frequency of service, the network must dovetail the needs of the Dutch and regional economy. This policy document highlights this network, combined with a competitive and sustainable aviation sector.


In its coalition agreement, the Dutch government established a clear vision for the continued develop‑ment of the Netherlands. This vision focuses on an innovative, competitive and enterprising economy and on a sustainable living environment. Such economic circumstances are necessary to ensure our prosperity, also in the face of increasing competition.

International accessibility is a key condition for realising these ambitions. Moreover, the quality of the international network of connections is a decisive factor. In terms of destinations and fre‑quency of service, the network must dovetail the needs of the Dutch and regional economy. This White Paper highlights this network, combined with a competitive and sustainable aviation.

A competitive economyThe competitive strength of the Netherlands is determined by the country’s favourable geographical location, two major mainports, broad transport infrastructure for all modalities, favourable condi‑tions for business and knowledge activities and expertise in the field of transport and logistics. At the same time, the globalisation of activities is further intensifying and a shift in economic activities is occurring all round the world.

These trends demand that the Netherlands clearly positions itself. This was given shape in the Dutch government’s ambition to become the hub of Europe, where national and international companies can achieve their global ambitions. This aspiration is in line with the government’s fundamental choices laid down in the Randstad 2040 Strategic Agenda, which works to make the area a competitive and sustainable leading European region and addresses the associated international spatial‑economic forces.

The aviation sector will play a decisive role in the Netherlands aim to further enhance its allure and appeal for business and to rank among the world’s most competitive economies. This facilitates active engagement in global economic activities and developments. Moreover, airports stimulate the economy, both directly and indirectly, by creating jobs (i.e. the airport as a decisive factor in selecting a business location). The hub Amsterdam Airport Schiphol (Schiphol Airport) in particular draws a great deal of international business. This cannot merely be attributed to the number of flights, but more importantly to the quality of the international network of connections.

The mainport Schiphol, together with the mainport Rotterdam, significantly impacts the economic development of the Netherlands and – more specifically – the Randstad as a leading competitive region. However, the major national airports also contribute to a strong spatial‑economic structure. They play a role in the international accessibility of the Netherlands, facilitate substantial levels of trade and also help strengthen the regional economy of urban networks.

In a sustainable and social contextThe Dutch government does not approach economic development in isolation. It is striving to achieve sustainable development by reducing the ecological and social pressure on society, focusing on the reduction of CO2 emissions. Compared to other countries, the Netherlands faces a relatively high degree of economic, ecological and social pressures due primarily to the Netherlands’ high population density. Other factors include the fact that the country is situated in the delta of several major European rivers and the Netherlands’ signifi‑cant role in distribution activities for the European hinterland. Furthermore, due to rising wealth and prosperity, Dutch society places increasingly high demands on the level of government services and on the quality of the ecological and social environ‑ment. These demands and circumstances are precisely the reason why the Dutch government advocates a balanced approach to economic development and a sustainable and social context. In achieving balanced development, it is essential to take a comprehensive approach to spatial policy which also takes economic, ecological and social policy into account. Given the high degree of interconnectedness and interdependency of airports and their surroundings, this also applies to the context of this policy document.

Characteristics of the Dutch aviation sectorIn global terms, the Netherlands has enjoyed an exceptionally strong aviation tradition. The Netherlands has an extensive network of connec‑tions and is home to a number of successful, competitive airlines. Schiphol Airport is qualitatively outstanding and can keep pace with global competi‑tion. In addition, the security system ranks among the most sophisticated in the world, and the spatial policy for the area around Schiphol Airport has already begun to bear fruit: the number of people in the area around Schiphol Airport experiencing nuisance is relatively low compared to other large European airports. Moreover, Schiphol Airport serves a key role as an outstanding business location and


has the most potential to attract business compared to other European airports1. However, Schiphol is also relatively vulnerable compared to other airports due to its limited catchment area, which makes the network at Schiphol Airport heavily reliant on transfer passengers.

Developments that influence the aviation sectorThe future of the Dutch aviation sector involves a number of challenges. Several developments are underway that necessitate a reassessment of current policy and a new approach. In taking the most effective policy decisions, it will be necessary to examine the developments in and impact of the aviation sector in context. The goal is to ensure that today’s problems are being addressed, while at the same time achieving the long‑term ambitions.

The most significant developments include:• After the current downturn, which can partly be

attributed to the economic crisis, the long‑term global demand for aviation is expected to increase. Long‑term demand is determined by globalisation, liberalisation, emerging new economic centres, increased international compe‑tition between urban agglomerations, rising global population and growth in tourism. However, high fuel costs, economic contraction, focus on climate change and regionalisation can cause growth to temporarily level off. As early as 2008, demand for air transport had begun to fall. This was initially due to soaring fuel prices in response to an extreme peak in oil prices and later to the eco‑nomic crisis. This downward trend continued in 2009 as the ongoing economic crisis pushed down demand even further. Periods of falling demand in response to the state of the economy affect the financial results of the aviation sector, which is heavily subject to economic cycles.

• The significant role of climate change issues, the environment and spatial planning will further shape the future development of the aviation sector. Innovation also plays a key role in reducing the external effects of the aviation sector. The continued development of Schiphol Airport is a decisive factor in the spatial‑economic prowess of the Netherlands.

• The Dutch aviation sector enjoys a high standard of safety. Safety in the aviation sector merits continued diligence on the part of all stakeholders, as also demonstrated by the 2009 accident involving a Turkish Airlines Boeing 737‑800.

1 NetherlandsInstituteforTransportPolicyAnalysis,Internationalebenchmarkcapaciteitluchthaven[InternationalAirportCapacityBenchmark],2009.

• Liberalisation of the aviation sector will continue. Combined with increasing consolidation (airlines in particular), this will impact the quality of the Dutch network. Motivated by market liberalisation and intensifying competition, airlines are forming international alliances. While this influence can pose a threat to the Dutch aviation sector, it also offers new opportunities.

• Increasing demand for air travel and the expansion of route networks has led to greater competition among alliances and combinations of hub and airline joint ventures.

Objective of this policy documentThe Dutch government aims to achieve an innova‑tive, competitive and enterprising economy and a sustainable living environment. As optimum international accessibility by air is a key condition for achieving these goals, the Cabinet is addressing this aspect explicitly. This means that, in creating the international network of connections, the govern‑ment also takes into account various public interests, including the environment, economic growth, ecology, safety and defence.

This ambition gives rise to the central aim of this White Paper on Dutch Aviation: further optimise network quality, while also promoting a competi-tive and sustainable aviation sector.

The term network quality should be understood to mean the direct availability of an extensive, global route network with regularly scheduled services. This line network should include connections which contribute to the regional and national economy and to the competitive strength of the Netherlands.

In addition, the Cabinet has established a stronger link between the network of transport connections (i.e. the Netherlands as a hub) and the role of airports as a place for business. This is precisely where opportunities lie to link national and regional economic ambitions and the ambitions of the aviation sector. The developments around airports, both airside (i.e. quality of the aviation network) and landside (i.e. qualitative aspects as a place for business), are key in fuelling a strong economy. As part of the national spatial policy, the Dutch govern‑ment has outlined this vision for the long term in the Randstad 2040 Strategic Agenda. An appropriate network of connections often motivates companies to establish operations near an airport. Companies have an interest in ensuring that the costs – both in terms of time and money – of their employees’ ability to travel anywhere in the world for work is


acceptable. This also applies to sending and receiv‑ing time‑critical and highly valuable cargo. Viewed this way, an airport not only serves as a hub of connections, but also as a decisive factor in selecting a place to do business. As mentioned earlier, network quality is not a goal unto itself. It benefits the economy and must come in tandem with a competitive and sustainable aviation sector. This means that the aviation sector must be competitive both in terms of quality and costs and that the aviation sector must yield high returns in terms of sustainability and quality for consumers. Environmentally friendly, minimum of noise pollu‑tion, efficiency and safety are key principles in this regard. From a social perspective, this means an aviation sector with high ambitions as regards the quality offered to consumers and local residents, both now and in the future.

AmbitionsFor the medium term, the government has formulated ambitions to guide policy up to and including 2020. The economic crisis also necessitates developing a short‑term ambition (i.e. up to and including 2012). The ambitions for these periods of time include:

For the period up to and including 2012:• The Dutch aviation industry will emerge from the

economic crisis with a relative head start.

For the period up to and including 2020:• As the Dutch aviation sector responds effectively to

relevant national and international developments, it will remain competitive internationally.

• The quality of the Dutch network will rank among the top five in Europe.

• Each airport’s route network will offer connections appropriate to the desired spatial‑economic development of the region, and vice versa.

• Via Schiphol Airport and other national airports, the Netherlands is linked directly to the world’s major established and new economic centres.

• The Netherlands ranks among the global top five in terms of aviation safety.

• Schiphol Airport and its users are leaders in the area of environmentally friendly aviation as regards emissions, noise nuisance and fuel consumption.

• The Netherlands, via the EU, is dedicated to finally establishing in consultation with other parts of the world a global emission trading system which will include the participation of the aviation sector.

• Where possible, Schiphol Airport will maintain and improve the current low level of those experiencing serious noise nuisance compared to other major European airports.


• The Dutch aviation sector ranks among the best in the world as regards quality of service for passen‑gers and cargo.

The Netherlands leads Europe in the flexible and optimum use of airspace for both civil and military aviation.

• Due in part to the Netherlands’ strong commit‑ment at both national and international level, European airspace is fully integrated and there is an effective and efficient ATM system. The Dutch air navigation service providers (ANSPs) play a major role in achieving these goals.

These ambitions serve as a guideline for the policy and are associated with specific actions in the policy document. The Dutch government also sees a number of ambitions for the longer term (i.e. up to and including 2040). Although these ambitions are difficult to realise in the short term, they will never‑theless inform actions taken in the future. These ambitions include:• Network quality in the Netherlands will be further

enhanced by the continued international coopera‑tion of stakeholders in the Dutch aviation sector.

• The European airport safety system is the best in the world.

• Schiphol Airport is the world’s first climate‑neutral mainport2, both on the ground and in the air.

• Among the long‑term (i.e. up to and including 2050) climate ambitions of the EU and G8 is to eventually also make an appropriate contribution to the aviation sector.

• The pioneering role of stakeholders in the Dutch aviation sector in terms of sustainability has helped them achieve a highly competitive position and given these stakeholders a significant role in exports.

• Capacity expansions at Schiphol Airport will be combined with a reduction in noise pollution.

2 Theterm‘climateneutral’isunderstoodtomeanthatgreenhousegasemissionshasbeenreducedtoanabsoluteminimumandthatmeasuresaretakentocompensateremainingemissions(i.e. viathepurchaseofemissionrightswithintheETSorsociallyresponsiblereforestation.TheobjectivesSchipholAirportwillpursueinresponsetoclimatechangearelaiddownintheKlimaatplan[ClimatePlan].Theobjective(withinthesphereofinfluenceofSchipholAirport)for2012isforSchipholAirport’sactivitiestobeCO2-neutral(i.e. energyconsumption,fuelusedfortheairport’sfleetofvehicles,airsidebusproduct,airtravelrelateddirectlytotheairport’soperationsandthecommuteofSchipholAirportemployees).

To optimise network quality, the government is dedicated to promoting and optimising competitive preconditions and market access. With respect to the preconditions for competition, the government will strive to preserve a level playing field, particularly in Europe. In addition, the Netherlands continues to work diligently at international level to further shape an aviation market that is as open as possible. Given the current trends in the global aviation sector (e.g. accelerated consolidation), the government will work to fine‑tune policy. In addition, the Nota Vergunningenbeleid [Policy Document on Licensing Policy] will be revised and upgraded, a new Nota Vracht en Logistiek [White Paper on Cargo and Logistics] will be drafted, and the section on the operations of Schiphol Airport in the Wet luchtvaart [Aviation Act] will be evaluated.


1 Compete: optimum preconditions for competition


Optimum network quality and a competitive and sustainable aviation sector are key to society. Achieving these aims requires the combined efforts of all stakeholders in the aviation chain – each from their own responsibility, but also from a shared responsibility for the public good.This represents a change in policy. In the past, the Dutch government opted for a laissez‑faire approach to stakeholders in the aviation sector: the govern‑ment established the preconditions within which the market operated and in which stakeholders in the aviation sector would have to operate. In the White Paper on Dutch Aviation, the government has formulated objectives that can only be achieved in cooperation with aviation stakeholders. The govern‑ment sees it as its responsibility to set the appropri‑ate preconditions and – where necessary – to set boundaries for realising these objectives. This enables government to safeguard public interests which would otherwise be jeopardised.

The government’s contribution towards this societal goal has been to develop a strategy which focuses on achieving the preferred network quality (given the importance of the network to the Dutch econ‑omy and to the business climate), combined with a competitive and sustainable aviation sector. This demands an ongoing combined effort on the part of various stakeholders. The various decisive factors in achieving the preferred network quality (e.g. market developments, required capacity and selectivity measures) will be monitored, discussed and adjusted in the implementation of the agreement Behoud en versterking mainportfunctie en netwerkkwaliteit luchthaven Schiphol [Maintaining and enhancing the role as a mainport and network quality of Schiphol Airport]. In addition, the government’s strategy is geared towards creating appropriate preconditions for stakeholders in the aviation sector industry parties – in consultation with those stakeholders indirectly involved – to enable achieving the formulated ambitions. This policy, which establishes the preconditions, rests on three main pillars:

Optimum network quality can only be maintained if the connections on offer remain competitive. This requires that stakeholders in the aviation sector are able to offer a product at a competitive price and at a certain level of quality, and airlines must want to fly to Dutch airports. The quality of the aviation product is a primary responsibility of aviation stakeholders and is expressed in the quality of services offered by the airports, airlines and air traffic control. A Dutch dispute resolution committee has been established to safeguard the interests of

consumers. The Dutch government will support these initiatives and will also examine whether an EU‑level dispute resolution committee can also be established. As the government acknowledges the importance of the competitive position of Schiphol Airport, it aims to work together with Schiphol Airport to develop a package of cost‑reduction measures. One of these measures is that the government will reduce the air passenger duty to zero starting on 1 July 2009 if Schiphol Airport also implements cost‑reduction measures. An initial step is the reorganisation of Schiphol Airport, as part of which staff will be reduced by between 10‑25%. In addition, Schiphol Airport will reduce fees by an average of 9% (compared to 1 November 2008) starting on 1 April 2009. This is in line with the government’s aim to reduce airport fees.

Schiphol Airport must implement additional measures before 1 July 2009. Schiphol Airport has meanwhile made commitments with the govern‑ment to implement a third round of cost‑reduction measures. These measures will be assessed on their merits as quickly as possible in order to reach definitive conclusions as quickly as possible in the context of the entire package of cost‑reduction measures.

In addition, together with the sector, the govern‑ment will examine targeted measures that can achieve cost savings in the realm of security, both now and in the future. The governments expects both Schiphol Airport and Air Traffic Control the Netherlands (Luchtverkeersleiding Nederland, LVNL) to take decisive action in the period to come to further limit aeronautical costs. Genuine improvements to the competitive position of the Dutch aviation sector are only possible with the support of all stakehold‑ers. Maintaining Schiphol Airport’s network demands vigilance as regards costs, efficiency improvements and cost rationalisation. This applies not only to network operators, but to all stakehold‑ers along the entire chain, including the airport operators and air traffic controllers.

The government believes that this package of measures will in terms of quality and costs enable the Dutch aviation sector to take on the interna‑tional competition. It will also facilitate maintaining or even enhancing the international network of connections, which is crucial to the Dutch economy.


Accommodate: room for the aviation sector

2


Optimum international accessibility demands a robust network which offers the immediate avail‑ability of an extensive, global and frequently serviced route network. This requires the mainte‑nance of existing conditions. New connections must also be created if they help to strengthen the Dutch economy. To further develop network quality, the government wants to facilitate the selective devel‑opment of the aviation sector. Selective is under‑stood to mean that the demand for aviation connec‑tions and the supply of airport capacity are geared to each other and that sustainable aviation is promoted at all airports. When gearing supply and demand, air traffic at each airport must dovetail the region’s preferred eco‑nomic/spatial‑economic development. The latter, also referred to as airport specialisation, is achieved by concentrating mainport traffic at Schiphol Airport, together with the focussed development of the national airports.

The key assumption for development up to and including 2020 is the government response to the Alders Commission recommendations for the medium‑term development of Schiphol Airport. The government will implement the following agreements:• A maximum of 510,000 aircraft movements at

Schiphol Airport through 2020, of which a maxi‑mum of 32,000 will take place late at night and early in the morning (from 11 p.m. and 7 a.m.).

• Implementation after 2020 of the 50‑50 principle for the new enforcement system.

• Opportunity to accommodate 70,000 aircraft movements at national airports, starting in Eindhoven and Lelystad. Actual implementation will depend on market developments and on the degree to which traffic that is not related to the mainport is encouraged to take alternate routes.

• Implementation – following two years of experi‑mentation – of a new system of standards and enforcement (based on noise preferential routes).

• Implementation of tasks geared towards removing obstacles and improving environmental quality. These tasks are laid down in agreements. The Dutch government, Schiphol Airport and the Noord‑Holland provincial authority are each investing €10 million in the environmental quality of several areas around Schiphol Airport which are subject to intense noise nuisance..

In connection with the task to accommodate 70,000 aircraft movements at the airports in Eindhoven and Lelystad, the government has asked Mr Alders to develop recommendations for the government

about these two airports in consultation with the regional and local authorities, operators (both military and civil) and other stakeholders in the region before the summer of 2009. Mr Alders has been asked to assess the regional spatial‑economic strategy against the airports’ development, how the national capacity demand can be accommodated together with the regions and levels of regional support for this pro‑posal. Of the 70,000 aircraft movements, 35,000 can be accommodated up to and including 2015 and an additional 35,000 can be accommodated up to and including 20203. As a guide, the government will for the period up to and including 2020 also assume an equal distribution of the traffic over Eindhoven and Lelystad (i.e. each accommodating 35,000 aircraft movements), which in turn assumes a phased approach in line with market development. During the first meeting of the Alders Commission (also known as the ‘Alders Tables’) for Eindhoven and Lelystad, the regions have indicated their willingness to use an open approach to the questions posed by the government to Mr Alders and to respond to the questions.

In response to the motion submitted to by members of Dutch Parliament Cramer and Tang4 to draft an updated growth forecast for Schiphol Airport and to submit this to the regional Alders Tables on accommo‑dating flights. The government has commissioned SEO Economic Research to prepare this information5. SEO Economic Research’s analysis demonstrates that, in various network scenarios, the number of aircraft movements in 2020 will be between 570,000 and 675,000. This assumes a robust economic recovery after the current crisis has subsided. The SEO Economic Research study indicates that the likelihood of achiev‑ing the goal of 580,000 aircraft movements in 2020 – a fundamental assumption of the Alders Commission recommendations – has increased since the air passenger duty has been reduced to zero.

As agreed in the government response to the Alders Commission recommendations, the agreements – in accordance with the Alders Commission recommenda‑tions, will be evaluated on a four‑yearly basis starting in 2012. These evaluations will also take into account economic and technological developments. Selective development also means that sustainable aviation will

3 Thesenumbersdependonmarketdevelopmentsandtheimplementationofmeasures(inaccordancewiththeagreementBehoudenversterkingmainportfunctieennetwerkkwaliteitluchthavenSchiphol[MaintainingandenhancingtheroleasamainportandnetworkqualityofSchipholAirport])topromoteselectivedevelopmentofSchipholAirport.

4 LowerHouse2008-2009,29665,no.123.5 SEOEconomicResearch,Hetrealiteitsgehaltevan580duizendvliegtuig-

bewegingenopSchipholin2020[Thefeasibilityof580,000aircraftmovementsatSchipholin2020],April2009.


be promoted at all Dutch airports. Airports possess the tools needed to facilitate sustainable aviation and discourage or even ban less‑sustainable aviation. Schiphol Airport is already working to reduce noise nuisance through the application of fee differentiation. The government also advocates a similar approach at other airports. Facilitating selective development is in the public interest. This, however, requires room on the ground and in the air for the aviation sector, which in turn demands capacity at the national airports. The continuity of Schiphol Airport is also in the public interest. Schiphol Airport in particular is also necessary in order to continue to meet the public need for international accessibility for the benefit of national economic activities in the future as well.

In accordance with the recommendations of the Airport Spatial Development Commission (Commissie Ruimtelijke Ontwikkeling Luchthavens, CROL), airport development is viewed as part of area development, and vice versa. This has been laid down in broad terms by the government in the Randstad 2040 Strategic Agenda (as regards Schiphol Airport and Lelystad Airport) and is linked to the spatial strategy for the Randstad. This strategy not only focuses on cities, but also on the development of Schiphol Airport. For Eindhoven Airport, this involves, for instance, a link to the ambitions for the Brainport. In addition, the government will focus on establishing links between airside and landside developments at airports with the airports playing a pivotal role. This is in line with the recommendations of the CROL.Airside accessibility is crucial to ensuring optimum international accessibility. This refers to the effective and safe accommodation of both civil and military air traffic. Through optimisation and experimenta‑tion in the immediate area around the airports, work will continue to achieve a high peak capacity for the transfer product at Schiphol Airport and minimise the inconvenience experienced by local residents. Further away from the airports, the task is to use airspace more efficiently in order to increase capacity, reduce emissions substantially, minimise nuisance experienced on the ground and ensure adequate safety, as well as to offer cost‑efficient air traffic services. This applies at both national and European level.

At national level, the Dutch government will do all it can to ensure the flexible use (i.e. accommodating both civil and military needs) of Dutch airspace.At European level, the Cabinet is a major proponent of the goals of the Single European Sky (SES) initiative. For this reason, the Netherlands will

dedicate itself to realising the SES, of which the Functional Airspace Block Europe Central (FABEC) is an essential component. FABEC, which promotes the cooperation of ANSPs, should achieve a streamlining of various procedures, shorter flight paths, lower CO2 emissions and cost efficiency. FABEC is sched‑uled for full implementation in 2012.


Excel: sustainable quality and security

3

The government is proud that the stakeholders in the Dutch aviation sector score high globally on sustainability lists. The government believes that the Netherlands must maintain this position – even in the face of growing European and global pressure to perform in the area of sustainability. The govern‑ment would like to ensure that the – current – pioneering role of stakeholders in the Dutch aviation sector as regards sustainability not only leads to a strong competitive position for the Dutch aviation sector, but can also serve as a strong export product.Excelling by making air travel more fuel‑efficient, cleaner, quieter and safer increases the appeal of the aviation product and ensures that the nuisance caused by the aviation sector and the risks for users and local residents is minimised. These risks include noise, environmental, health and safety/external safety issues. Both users and residents benefit from a sustainable aviation sector. The government is striving to achieve a balance between macro‑eco‑nomic and other social interests (e.g. the environ‑ment and safety). The application of sustainable quality is the best way for the aviation sector to develop in balance with its surroundings.The government would like to encourage aviation stakeholders to realise the ambition of more fuel‑efficient, cleaner and safer air travel. For this reason, the government supports, for example, SES (as described previously), global implementation of the Emission Trading Scheme (ETS) and strong and

highly favourable results of the Knowledge and Innovation Agenda Luchtvaart [Aviation], which is expected to be published in the summer of 2009. The contribution of general aviation to innovation in the aviation sector is part of this knowledge and innovation agenda. Furthermore, the Dutch government will also have to safeguard the various public interests that are geared towards a sustain‑able, healthy and safe living environment. The accident involving the Turkish Airlines Boeing 737‑800 in 2009 demonstrates the major impor‑tance of a high level of safety in the aviation sector and of policy with respect to spatial restrictions.

Control: cooperationThe goal that the government would like to achieve is optimum network quality in combination with a competitive and sustainable aviation sector. Achieving this goal is something the Dutch govern‑ment cannot do on its own. Although the Dutch government does bear final responsibility for many policy areas, the direct (in terms of implementation) responsibility (in legal terms) has been devolved to various stakeholders. As an added factor, there is an increasing degree of European and international legislation and cooperation.

A government’s ability to achieve the stated ambitions and objectives depends largely on the (combined) performance of aviation stakeholders. In order to translate this interdependency as


of handling certain – mostly formal – aspects such as legislation. This is recognition of the fact that the Dutch government is also a party to the realisation of the proposed ambitions.

To encourage joint realisation of goals, the govern‑ment has implemented the following actions: (1) continue using goal‑oriented structures such as the Alders Tables; (2) initiate a broad policy analysis to examine if and how performance control steering can be introduced for aviation industry parties; and (3) incorporate effective/more effective incentives in existing legislation.

International orientationThe Cabinet focuses on a powerful, consistent European policy that is geared towards creating a level playing field, in which Dutch interests are adequately served. The Dutch government also supports existing and new international cooperation among aviation industry stakeholders. Following the Air France/KLM merger, it was a proponent of the far‑reaching collaboration achieved between Schiphol and Aéroports de Paris. In that way, many passengers could be better served, as they, for example, could be offered a better product for Air France/KLM and others, which makes up the largest portion of the connection network at Schiphol Airport. With this cooperation, Schiphol Airport can more effectively respond (compared to its competitors) to rising markets in the Middle East and Far East in particular. Increased international cooperation among the European ANSPs is also a top priority (in the context of FABEC). To maximise the effectiveness of collabora‑tion among ANSPs, the responsible Member States must work together to draw up the appropriate (organisational, legal and substantive) preconditions.

effectively as possible into results, the government primarily wants to promote joint goal realisation by aviation stakeholders (in cooperation with the most relevant parties). For this reason, the governance model has been established in such a manner that the social goals for aviation are optimally supported by all parties as a group. In principle, the govern‑ment does not achieve this through major changes in organisational structures or in legal regimes. The government is focusing on effective (international and national) cooperative structures (network arrangements such as those recommended by the Advisory Council for Research on Spatial Planning, Nature and the Environment (RMNO)6), which must mainly be able to function in a focused and concrete manner and in which all parties in the aviation chain can contribute to achieving the social goal in conjunc‑tion with their own responsibility and social involve‑ment. After all, it is the aviation stakeholders that eventually achieve network quality in conjunction with a competitive and sustainable aviation sector.

As regards the role of government in the renewed governance model, the Dutch government will act more than in the past as a collaborative partner. This can be attributed on the one hand to the fact that – as mentioned previously – the Dutch govern‑ment itself cannot guarantee the required results. It can at most only ensure that stakeholders strive to achieve those results (both together and in coopera‑tion with the most relevant parties). On the other hand, the other stakeholders are dependent on the Dutch government, which is the only party capable

6 AdvisoryCouncilforResearchonSpatialPlanning,NatureandtheEnvironment(RMNO),Adviezen[Recommendations]series,Recommendationno.A.14(2009),DuurzameontwikkelingenSchiphol:naareencreatieveconfrontatie[SustainabledevelopmentandSchipholAirport:towardsacreativeconfrontation].


The White Paper on Dutch Aviation is geared primarily towards the further development of the civil aviation sector. Where relevant, the policy document also describes developments in military aviation. The White Paper on Dutch Aviation distin‑guishes between the period up to and including 2020 and the ensuing period (up to an including 2040). For the period up to and including 2020, the government will make concrete, directive choices in accordance line with the Alders Commission recommendations7.

Within the period through 2020, the government is paying specific attention to the effects of the economic crisis on civil aviation. Actions and agree‑ments in this framework that are geared towards the period through 2012.

For the period following 2020, the policy document is more agenda setting and less decision‑making. The future development of civil aviation is a task for all parties combined. In the implementation sched‑ule, the government offers an overview of actions and agreements that are utilised for achieving the objectives laid out in the policy document. In the document, explicit attention is given to the term to which (the effect of) the execution of actions and agreements are related.

7 AldersCommissionrecommendations,LowerHouse2008-2009session,29665,no.108.

Conclusion: delineation in the White Paper on Dutch Aviation

4

White Paper on Dutch Aviation is a publication of Ministry of Transport, Public Works and Watermanagement and Ministry of Housing, Spatial Planning and the Environment.

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