Airspace Management

Operations Manual
Procedures for Flexible Use of Airspace

Approved by
Finnish Transport Safety Agency (Trafi) and Air Force Command

Valid from:
12 November 2015 until further notice

CONTENTS:

DOCUMENT HISTORY .................................................................................................... 4

abbreviations .................................................................................................................. 5
DEFINITIONS .................................................................................................................. 8
1
INTRODUCTION ................................................................................................... 11
2
GENERAL ............................................................................................................... 12
2.1 Description and purpose of the ASM Operations Manual ....................... 12
3
AIRSPACE ORGANISATION ................................................................................ 13
3.1 Introduction .................................................................................................... 13
3.2 FIR .................................................................................................................... 13
3.2.1 Airspace over international waters ......................................................... 14
3.2.2 ATS-delegated areas in the EFIN FIR..................................................... 14
3.3 CTA ................................................................................................................... 14
3.4 TMA and CTR .................................................................................................. 14
3.5 FIZ .................................................................................................................... 14
3.6 TSA and TRA ................................................................................................... 14
3.7 Cross Border Area (CBA) .............................................................................. 17
3.8 Permanent prohibited area - P area ........................................................... 17
3.9 Permanent restricted area - R area............................................................ 17
3.10 Permanent danger area - D area ................................................................ 17
3.11 Temporary airspace restrictions.................................................................. 18
3.12 Temporary D areas ........................................................................................ 18
3.13 ATS routes ....................................................................................................... 19
3.13.1 Permanent ATS routes (PERM) ............................................................ 19
3.13.2 Category 1 Conditional Air Traffic Service Routes ........................... 19
3.13.3 Category 2 Conditional Air Traffic Service Routes ........................... 20
3.13.4 Free Route Airspace (FRA) .................................................................... 20
3.13.5 Route availability (RAD) ........................................................................ 20
4
COORDINATING CIVIL AND MILITARY AVIATION ......................................... 20
5
AMC ORGANISATION .......................................................................................... 21
5.1 General ............................................................................................................ 21
5.2 Operators......................................................................................................... 21
6
ASM FUNCTIONS AT THE STRATEGIC LEVEL ................................................. 21
6.1 Airspace organisation and planning of airspace use ............................... 21
7
ASM FUNCTIONS AT THE PRE-TACTICAL LEVEL............................................ 23
7.1 Airspace use planning ................................................................................... 23
7.1.1 Annual airspace use planning .................................................................. 23
7.1.2 Temporary airspace reservations............................................................ 23
7.2 Pre-tactical airspace use planning .............................................................. 24
7.2.1 General......................................................................................................... 24
7.2.2 Notification of activities dangerous to aircraft for permanent R areas
and permanent D areas over international waters.............................. 24
7.2.3 TSAs, TRAs, R areas and D areas Approved Agencies (AA)........... 25
2

7.2.4 TSAs, TRAs, R areas and D areas other operators .......................... 25

7.2.5 CADF co-operation and AUP/UUP messages......................................... 25
7.3 Publications ..................................................................................................... 26
7.3.1 Airspace restrictions promulgated with AIP Supplements ................. 26
7.3.2 ATS route availability ................................................................................ 26
7.3.3 TSA, TRA and CBA activity ....................................................................... 26
8
ASM FUNCTIONS AT THE TACTICAL LEVEL .................................................... 26
8.1 Dynamic airspace management .................................................................. 26
8.2 Processing of airspace reservations and D areas .................................... 27
8.2.1 Activation of reserved airspace ............................................................... 27
8.2.2 Changing a reservation ............................................................................. 27
8.2.3 Cancellation of airspace reservation ...................................................... 28
8.3 Changes to planned activities...................................................................... 28
8.4 Adjacent and overlapping airspace reservations ..................................... 28
8.5 Airspace reservations without advance notification ................................ 29
9
AIRSPACE USE MONITORING AND PERFORMANCE ...................................... 29
9.1 General ............................................................................................................ 29
9.2 Statistics and reporting ................................................................................ 29
10 UPDATES TO THIS MANUAL............................................................................... 30
Appendix 1: Principles Governing the Use of Airspace by the Finnish Defence
Forces..................................................................................................................... 30
Appendix 2: Order of Priority FOR AIRSPACE USE ................................................ 30
Appendix 3: Contact Information of Operators Contributing to ASM Processes30
Appendix 4: Monitoring of Airspace Use .................................................................. 30

DOCUMENT HISTORY
Date

Version number

Changed by

20 May 2011

1.0 Unclassified

Trafi / FMAA

22 Aug 2013

1.1 Unclassified

Trafi / FMAA

11 Nov 2014

1.2 Unclassified

Trafi / FMAA

25 Jun 2015

1.3 Unclassified

Trafi / AFC

12 Nov 2015

1.4 Unclassified

Trafi / AFC

ABBREVIATIONS
AA

Approved Agency

AFC

Air Force Command

AIC

Aeronautical Information Circular

AIP

Aeronautical Information Publication

AIRAC

Aeronautical Information Regulation and Control

AIS

Aeronautical Information Services

AMC

Airspace Management Cell

ASM

Airspace Management

ATS

Air Traffic Services

AUP

Airspace Use Plan

CADF

ECAC Centralized Airspace Data Function

CBA

Cross-Border Area

CDM

Cooperative Decision Making

CDR

Conditional Route

CTA

Control Area

CTR

Control Zone

D area

Danger Area

FIR

Flight Information Region

FIZ

Flight Information Zone

FMP

Flow Management Position

FRA

Free Route Airspace

FUA

Flexible Use of Airspace

HLB

High Level Policy Body

ICAO

International Civil Aviation Organization

LMT

Local Mean Time

NOTAM

Notice to Airmen

NMOC

Network Manager Operations Centre

P area

Prohibited Area

PBN

Performance Based Navigation

PERM

Permanent ATS route

R area

Restricted Area

RMZ

Radio Mandatory Zone

RNAV

Area Navigation

RNP

Required Navigation Performance

TMA

Terminal Control Area

TMZ

Transponder Mandatory Zone

TRA

Temporary Reserved Area

TSA

Temporary Segregated Area

UIR

Upper Flight Information Region

UTA

Upper Control Area

UTC

Coordinated Universal Time

UUP

Updated Airspace Use Plan

QRA

Quick Reaction Alert

DEFINITIONS

AIP Supplement

An AIP Supplement is a publication used to advise airspace users of

temporary changes to information published in the AIP. These
changes may be of long duration (3 months and longer), or they
may be used to convey information of short duration that contains
extensive text and/or graphics.

Airspace management

Level 1 of ASM applies to national-level interactions between the

level 1: strategic level

Ministry of Transport and Communications and Ministry of Defence,

HLB, and actions conducted in accordance with the framework
agreement on ASM.
Strategic ASM (level 1): Long- and medium-term planning of ASM
processes. Strategic ASM may be initiated approximately one year
before the commencement of planned activity, and it ends with
transition to pre-tactical ASM. Strategic ASM involves the planning of
airspace use and procedures, negotiations and agreements, and
consultations with interested parties.

Airspace management

Level 2 of ASM involves civil-military coordination and the use of

level 2: pre-tactical

procedures laid down in the ASM Operations Manual.

level

Pre-tactical ASM (level 2): ASM processes that enable transition

from planning to the execution phase. Pre-tactical ASM is usually
initiated approximately two days before the commencement of
planned activity and continued to the execution phase that marks
the transition to tactical ASM. Pre-tactical ASM functions are aimed
at attaining sufficient readiness for the commencement of activity by
communicating AUPs, AIS publications and flight plans, by allocating
airspace reservations planned at level 1, and by other applicable
means.

Airspace management

Level 3 of ASM involves operational execution and updating of AUP

level 3: tactical level

produced at levels 1 and 2 by airspace users and AMC.

Approved agency

An operator that holds specific approval of the Finnish Transport

Safety Agency or Finnish Military Aviation Authority and has the right
to submit advance notifications of the planned use of airspace
structures.

Cooperative decision

Concept in which all operators interact efficiently and transparently

making

to improve the efficiency of decision-making through accurate and

real-time information sharing.

Control zone (CTR)

Control zone is a volume of controlled airspace that extends from

and terminal control

the surface to a specified upper limit. CTRs and TMAs are established

area (TMA)

to enable the functioning of aerodrome ATS units and to protect air

traffic operating to and from aerodromes. The ATS provider
promulgates appropriate procedures for flight within CTRs and TMAs.

Crossborder area

An area that two or more states are authorised to establish to

(CBA)

accommodate

military

aviation

requirements,

based

on

an

agreement between the states involved. CBA extends across lateral

boundaries of one or more FIRs and is available for military training
activities conducted by states that are signatory parties to the
agreement. CBAs are published as TRAs, observing the procedures
for the flexible use of airspace.
Danger area (D-area)

Airspace of defined dimensions within which activities dangerous to

aircraft, such as unmanned aircraft operations, sailplane operations
or other frequent recreational aviation operations may exist at
specified times.
Danger areas over international waters involve periodical firings by
military forces, blasting, or any other type of activity that may
jeopardise the safety of aircraft.

ERNIP

European Route Network Improvement Plan

Flight information

A zone established at and around an aerodrome where the number

zone (FIZ)

of movements does not justify the provision of air traffic control

services for controlled airspace.

Flow management

Position established in Area Control Centre Finland to liaise between

position (FMP)

air traffic control, aircraft operators, and NMOC in matters related to

air traffic flow management.

Free route airspace

Airspace of defined dimensions within which users may freely plan

(FRA)

their route between entry and exit points without reference to the
ATS route network.

High level policy body

The National Committee for Airspace Management operating under

(HLB)

the Ministry of Transport and Communications, whose task is to

agree on how the needs of civil and military aviation will be taken into account in airspace management, air traffic management, the
provision of air navigation services and flexible use of airspace. The
Government appoints the Committee for a term of three years at a
time. It consists of representatives of civil and military aviation operators.

Further provisions on the duties and composition of the National

Committee for Airspace Management may be given by government
decree.
International waters

Waters beyond the sovereignty of any coastal state, as contrasted

with territorial sea, over which the state has sovereignty.

Prohibited area

Airspace of defined dimensions, above land areas or territorial

(P-area)

waters of a state, within which aviation is prohibited. Prohibited

areas

can

be

established

by

government

decree

to

provide

protection of specific assets.

QRA flight

Quick Reaction Alert (QRA) flights are transport, reconnaissance,

surveillance, identification or interception missions urgently required
for the purpose of monitoring and safeguarding territorial integrity,
flights or aerial operations related to heightened preparedness, or
flights required for providing executive assistance to authorities.
Search and rescue flights conducted with Air Force fleet are also regarded as QRA flights. All QRA flights are priority air traffic.

Radio Mandatory Zone

Airspace of defined dimensions wherein the carriage and operation of

(RMZ)

radio equipment is mandatory.

Restricted area

Airspace of defined dimensions above land areas or territorial waters

(R-area)

of a state, within which aviation is restricted in accordance with

certain specified conditions. Restricted areas can be established by
government

decree

to

provide

protection

of

specific

assets.

Procedures for flexible use of airspace are applied to restricted areas

to the extent practicable.
Temporary reserved

Volume of airspace with pre-defined lateral limits, where operations

area (TRA)

require the reservation of airspace for use by specified operators for

a specified time period.
In controlled airspace, ATC may clear a flight into an active TRA.

Temporary segregated

Volume of airspace for exclusive use by military aviation, with pre-

area (TSA)

defined

lateral

limits.

Operations

within

TSA

require

the

reservation of airspace for use by specified operators for a specified

time period.
ATC may not clear a flight into a TSA except if that flight is part of
the operations of the user group to which the TSA has been
allocated or complies with the terms and conditions imposed by that
user group.
Transponder Mandato-

Airspace of defined dimensions wherein the carriage and operation of

ry Zone (TMZ)

pressure-altitude reporting transponders is mandatory.

10

INTRODUCTION

The use of airspace and related decision-making are functions inherent to national sovereignty.
In Finland, airspace management policy is governed by the National Committee for Airspace
Management established by the government. 1)

This

ASM

Operations

Manual

provides

guidance on airspace management and contains the procedures for the flexible use of airspace
as referred to in section 107 of the Finnish Aviation Act. Through the practices described in this
Manual, the Finnish Transport Safety Agency (Trafi) and the Air Force Command (AFC) aim to
ensure the safe, efficient and flexible use of airspace and to guarantee transparency in related
functions by accommodating all users' requirements. Responsibility for ASM arrangements and
airspace allocation within Finland's flight information region (FIR) lies with Trafi. Use of
airspace required for the preservation of the nation's territorial integrity is arranged through a
process that takes into account established and agreed priorities. Day-to-day planning and
coordination of airspace use is under the responsibility of a joint civil-military airspace
management cell (AMC) in accordance with the provisions of this manual. Within the European
Union (EU), provisions on the Single European Sky are contained in four regulations of the
European Parliament and of the Council and in implementing regulations based on them.
Commission Regulation (EC) No 2150/2005 on the flexible use of airspace (FUA Regulation)
lays down common rules for the management of air traffic within airspace that is under the
control of member states civil and military air traffic services (ATS) units to ensure efficient
civil-military coordination. The FUA Regulation states that coordination between civil and
military authorities must be organised at the strategic, tactical, and pre-tactical levels (also
called levels 1, 2, and 3 of ASM, respectively) using established agreements and procedures.
The objective is to enhance safety, augment airspace capacity, and increase the efficiency and
flexibility of airspace use.
Commission Regulation (EU) No. 677/2011 lays down detailed rules for the implementation of
air traffic management (ATM) network functions, which the member states are required to
comply with. The detailed rules concern e.g. airspace design and organisation, as well as the
optimisation of the European route network. These objectives are implemented through the
European Route Network Improvement Plan (ERNIP), which is a scheme developed by the
Network Manager in coordination with the operational stakeholders based on a cooperative
decision making (CDM) process. It includes the result of operational activities with respect to
route network design on short and medium terms in accordance with the guiding principles of
the Network Strategy Plan. The common rules allow an optimum use of airspace in the single
European sky and ensure that airspace users can operate preferred trajectories, while allowing
maximum access to airspaces and air navigation services.

11

Military operations and military training are not under EU jurisdiction, and regulations
governing the Single European Sky do not impose limitations on the rights of the member
states to exercise sovereignty over their national airspace. Neither do they affect matters
related to the national security and national military requirements of the member states.
Although EU legislation covers arrangements for civil aviation only, EU regulations also affect
the use of airspace by the Defence Forces because airspace is not limitless. The member states
must take into account the requirements of both civil and military airspace users during any
decision-making process. To this end, the regulations presuppose that the needs of civil and
military aviation be coordinated at national level.
Airspace requirements of the Finnish Defence Forces stem from established rights and duties
as defined in the Act on the Defence Forces, Act on Territorial Surveillance, Aviation Act,
Government Decree on Military Aviation, and Emergency Powers Act. The purpose of the ASM
procedures described in this Operations Manual is to ensure that the Defence Forces can
conduct exercises aimed at maintaining the capabilities needed for the accomplishment of their
assigned duties while observing the flexible use of airspace (FUA) concept.
The procedures of airspace management are applicable to the national use of airspace within
the Finland FIR and over adjacent international waters. Provisions do not exist for the restriction of airspace use over international waters by civil or military aircraft of other states.
Member states may agree separately on rules governing flights over international waters.

2
2.1

GENERAL
Description and purpose of the ASM Operations Manual

Airspace management is exercised through the application of FUA procedures developed by

Eurocontrol, rules and regulations issued by competent aviation authorities, and the
procedures and priorities laid down in this manual.
This manual defines:
-

general principles for airspace management

areas of airspace for the exclusive use of different user groups

prioritisation of areas of airspace

structure and classification of ATS routes

principles governing the establishment and use of permanent and

temporary areas of airspace and related communication

monitoring mechanisms for the use of airspace

This manual defines the working procedures of the AMC at the pre-tactical and tactical levels of
ASM, and also at the strategic level to the extent necessary. The manual is approved, issued,
and updated by the competent civil aviation and military authorities.

12

In order to increase the efficiency of airspace use, the European Commission (EC) has issued
Regulation 390/2013 (Performance Regulation) laying down a performance scheme for air navigation services and network functions, and Regulation 255/2010 (Flow Regulation) laying
down common rules for air traffic flow management. These regulations specify additional requirements for improving the efficiency of airspace use, and key performance indicators that
the member states should monitor and measure. These indicators are described in section 9,
Airspace use monitoring and performance.

AIRSPACE ORGANISATION

3.1

Introduction

The Finland FIR is divided into permanent blocks of airspace established to serve the needs of
various airspace users, and ATS routes that are subject to a separate classification. Airspace is
divided into controlled airspace (ICAO airspace classes C and D) and uncontrolled airspace
(ICAO airspace class G). Airspace limits and boundaries are published in the Finnish Aeronautical Information Publication (AIP Finland). The Finnish Transport Safety Agency (Trafi) decides
on the establishment of and changes to the airspace blocks under Finlands responsibility. Modifications to permanent airspace structures are usually implemented upon the ATS providers
proposal, but changes may also be suggested by other interest groups in accordance with section 6.1. Temporary reserved airspaces (TRA) can be established in accordance with section
7.1.2.
Modifications to permanent airspace structures require an extensive hearing process to ensure
that the needs or different groups of airspace users are taken into account. In practice, this
means that modifications are implemented on an annual basis as a result of systematic planning, to achieve optimum management of the entire airspace. Finavia publishes on its website
a schedule of forthcoming amendments by an Aeronautical Information Circular (AIC) in accordance with the AIRAC system, including the planned AIP effective dates, publication dates,
and dates for submitting raw data to the relevant Aeronautical Information Services (AIS) unit
for dissemination.
3.2

FIR

The Finland FIR is defined in the aeronautical information publication (AIP Finland). The FIR is
further divided into sectors. The sectors and ATS units providing service therein are defined in
the AIP. FUA principles are applied throughout the Finland FIR, including airspace over international waters as described in section 3.2.1.

13

3.2.1

Airspace over international waters

Aviation in airspace over international waters must comply with the Chicago Convention and its
Annexes. The United Nations Convention on the Law of the Sea (1982) allows unrestricted
flights by state aircraft within airspace over international waters.
3.2.2

ATS-delegated areas in the EFIN FIR

The establishment of ATS delegated areas requires agreements between states, aviation authorities, ATS providers and, if necessary, AMCs. Within the Finland FIR, responsibility for provision of ATS in controlled airspace is delegated to Swedish and Norwegian service providers
over three areas: KVARKEN (FL95+), MANTO (FL65+) and HALTI (FL95+). ATS delegated areas are published in AIP ENR 2.2.
3.3

CTA

Control Areas (CTA) are published in AIP Suomi Finland.

3.4

TMA and CTR

Control Zones (CTR) and Terminal Control Areas (TMA) are published in AIP Suomi Finland.
3.5

FIZ

Flight Information Zones (FIZ) are published in AIP Suomi Finland.

3.6

TSA and TRA

Temporary Segregated Areas (TSA) are established by government decree and published in
AIP Suomi Finland.
Temporary Reserved Areas (TRA) are published in AIP Suomi Finland. TRAs adjacent to airports are established for the purpose of flight operations, and ATS is provided in accordance
with the airspace class.
Note: TRAs and Local TRAs reserved by military operators are treated like TSAs.
TSAs and TRAs reserved for military use are divided into two categories according to their anticipated usage. In addition, there are Cross-Border Areas (CBA):

Category 1 (yellow):
TSAs defined as Defence Forces priority areas and TRAs over international waters. Operations in category 1 areas primarily close off ATS routes in CDR2 category. Procedures applicable to CDR 1 category ATS routes are laid down in section 3.13.2.

Category 2 (white):

14

TSAs for occasional Defence Forces exercises and TRAs over international waters. Reservation and activation of these areas is managed according to section 7.1.2. Activities in
category 2 areas may close off ATS routes in classes PERM / CDR1 and CDR2.
-

CBAs (green, CBA Lapland and CBA Bothnia):

Airspace use priorities are described in Appendix 2.

15

16

3.7

Cross Border Area (CBA)

CBAs are established for the use of military aviation by two or more states, and enable the use
of airspace across national borders. They are established by intergovernmental treaty and further specified through joint operation agreements.
CBAs affect the availability of ATS routes. Priorities are described in more detail in Appendix 2
to this document. CBAs are published in AIP Suomi Finland.
3.8

Permanent prohibited area - P area

Permanent prohibited areas can be established by government decree in accordance with section 11 of the Aviation Act. Flying in a prohibited area is not allowed, except as provided for in
section 1 of the Government Decree. The Finnish Transport Safety Agency (Trafi) may, for
specific reasons, grant permission for flying in the prohibited areas of EFP35 Meilahti, EFP40
Munkkiniemi, EFP45 Luonnonmaa or EFP50 Kruununhaka after having heard the Office of the
President of the Republic of Finland or the Prime Ministers Office, depending on for which entitys protection the area has been established, and in the prohibited areas of EFP20 Loviisa,
EFP25 Olkiluoto or EFP30 Kilpilahti after having heard the Ministry of the Interior. However,
flights expressly related to the maintenance, operation and use of the facilities located in the
prohibited areas of EFP20 Loviisa, EFP25 Olkiluoto and EFP30 Kilpilahti are allowed.
Permanent P areas are also published in AIP Suomi Finland.
3.9

Permanent restricted area - R area

Permanent restricted areas can be established by government decree in accordance with section 11 of the Aviation Act. Flying in permanent restricted areas is only allowed by permission
of the Defence Forces or under special conditions laid down by the Defence Forces or the Border Guard.
Permanent R areas are also published in AIP Suomi Finland.
3.10

Permanent danger area - D area

Permanent danger areas are established by Trafis aviation regulation OPS M1-28 in accordance with section 11 of the Aviation Act.
Activities dangerous to aircraft flight safety may be undertaken in D areas. However, aircraft
may fly into D areas at the discretion of the pilot-in-command. In controlled airspace, ATC will
ensure the separation of aircraft under ATC responsibility from activated D areas (except for
the exemptions on separation between VFR flights as specified in the Finnish ATC Manual).
Separation from D areas will be waived at the request of the pilot-in-command.
Firings conducted by the Defence Forces in D areas over international waters and unmanned
aircraft activities by the Defence Forces in D areas are announced as described in section
7.2.2.

17

When activities hazardous to air traffic have been suspended, ATC may clear a controlled flight
in controlled airspace through an activated D area.
Approved Agencies (AA) in D areas established for general and recreational aviation may issue
advance notifications as described in section 7.2.3. These areas may also be activated on the
day of operations, in which case the requirement for a 7-day notice pursuant to ICAO Annex
15, paragraph 5.1.1.4 need not be complied with. As a general rule, a small amount of VFR
operations do not require a D area to be activated in uncontrolled airspace (i.e. no busy aviation activities, cloud flying etc.).
For activities hazardous to aviation, a D area must be activated in accordance with section 8.
The activation of the area is considered sufficient for notifying the area control centre of the
commencement of activities as required.
Permanent D areas are also published in AIP Suomi Finland.
3.11

Temporary airspace restrictions

In accordance with section 11 of the Aviation Act, Trafi may restrict or prohibit aviation in a
specific area for compelling reasons of flight safety, national defence, police operations, rescue
operations, safety investigation or public order and border security, for a period of no more
than two weeks as described in section 7.1.2. In case of disruptions of normal operations and
under exceptional circumstances, temporary airspace restrictions will be implemented without
delay. Exceptions from the procedures in section 7.1.2 are then allowed, and the NOTAM requirement stated in ICAO Annex 15, paragraph 5.1.1.4 need not be complied with.
The Airspace Management Cell (AMC) must, in a manner it considers appropriate, restrict or
prohibit aviation in a specific area for the following reasons:
1) by request of the rescue, police or military authorities, the Border Guard, Customs, a
sea or air rescue centre, the Radiation and Nuclear Safety Authority or an aviation authority, for a period of no more than 3 days, if it is essential for aviation safety, national
defence, police operations, rescue operations, safety investigation or public order and
safety; or
2) at its own initiative, for a period of no more than 1 day, if there is an exceptional and
particularly compelling reason to do so, related to aviation safety or national defence.
The principles of FUA and the rules that apply to permanent areas shall be equally complied
with as regards temporary areas.
Temporary airspace restrictions are promulgated essentially as AIP Supplements. In urgent
cases, a NOTAM may be issued, in which case the NOTAM requirement of ICAO Annex 15, paragraph 5.1.1.4 need not be complied with.
3.12

Temporary D areas

Trafi may decide to establish temporary D areas for instance to enable unmanned aircraft operations or for the needs of general and recreational aviation as described in section 7.1.2.

18

In case of disruptions of normal operations and under exceptional circumstances, temporary D

areas may also be established by the AMC for a period of two weeks in accordance with section
11 of the Aviation Act. Such cases may include urgent needs to survey storm damage using an
unmanned aerial vehicle (UAV) in uncontrolled airspace and under minimum flight altitudes.
Proposals for temporary D areas shall be submitted in accordance with previously agreed cooperation procedures (e.g. by the police) or directly to the AMC. The proposals shall be made
using a form provided by Finavia.
If the AMC is not able to reconcile the proposed temporary D area with other airspace and air
traffic as provided for in section 159 of the Aviation Act, the matter will be referred to the Finnish Transport Safety Agency (Trafi). In this case, the AMC forwards the proposal to Trafi and
presents an alternative proposal for a decision to establish the danger area, if necessary.
The AMC has the right to suspend activities hazardous to aviation within an activated danger
area for flight safety reasons or if the smooth flow of air traffic would be disrupted. To ensure
this, secure communication procedures shall be established between the D area operator and
the AMC.
If unmanned aircraft operations are conducted in the D area and rules of the air cannot be
complied with as referred to in section 9 of the Aviation Act, the NOTAM publication for the
temporary D area shall include the verified contact details of the D area operator to ensure
flight safety.
3.13

ATS routes

Finland's ATS route structure is based on RNAV 5 routes established in accordance with ICAOs
performance based navigation (PBN) concept. The ATS routes are divided into categories as
described in the subsequent paragraphs.
3.13.1 Permanent ATS routes (PERM)
A permanent ATS route means an ATS route permanently available for flight planning. A permanent ATS route may be closed off with an Airspace Use Plan or Updated Airspace Use Plan
(AUP/UUP) issued by the AMC. Advance notification of activities that may result in the closure
of a permanent ATS route will be promulgated by an AIP supplement. Closing off a permanent
ATS route requires a decision by Trafi. Permanent ATS routes in the Finland FIR are published
as RNAV routes in AIP Suomi Finland.
3.13.2 Category 1 Conditional Air Traffic Service Routes
Category 1 conditional (CDR 1) ATS routes are permanently available for flight planning during
the times the relevant category is in effect. A CDR1 route may be closed off with an Airspace
Use Plan or Updated Airspace Use Plan (AUP/UUP) issued by the AMC. Closing off a CDR1 route
requires a decision by Trafi and must follow the procedures described in Appendix 1 and 2.
CDR1 ATS routes in the Finland FIR are published in AIP Suomi Finland.

19

3.13.3 Category 2 Conditional Air Traffic Service Routes

Category 2 conditional (CDR 2) ATS routes are not permanently available for flight planning.
The availability of a CDR 2 route is stated daily in the Airspace Use Plan (AUP) or Updated Airspace Use Plan (UUP) issued by the AMC. CDR2 ATS routes in the Finland FIR are published in
AIP Suomi Finland.
3.13.4

Free Route Airspace (FRA)

Free route airspace (FRA) procedures are available in Finland. Within FRA airspace, users may
plan their flights directly between published entry and exit points, with the possibility of routing via intermediate waypoints where necessary. The routings must take account of airspace
use restrictions and airspace availability. During FRA operations, the Eurocontrol IFPS system
will not accept flight plans with routings that would take the aircraft into a TSA or TRA declared
in an AUP or UUP, including adequate protective zones. FRA procedures are published in AIP
Suomi Finland.
3.13.5 Route availability (RAD)
The Route Availability Document (RAD) is part of the European Route Network Improvement
Plan (ERNIP). RAD is a common reference document that contains the policies, procedures and
description for route and traffic orientation. It also includes route network and free route airspace utilisation rules and availability. Finavia submits any proposed amendments to Trafi for
approval 3 months prior to the intended date of entry into force. RAD can be found e.g. on the
Network Managers website.

COORDINATING CIVIL AND MILITARY AVIATION

The Ministry of Transport and Communications and the Ministry of Defence agree on how the
needs of civil and military aviation will be taken into account in airspace and air traffic management, provision of air navigation services and flexible use of airspace. Procedures for the
flexible use of airspace are included in this ASM Operations Manual.
A National Committee for Airspace Management has been established under the Ministry of
Transport and Communications. The Government appoints the Committee for a term of three
years at a time. It consists of representatives of civil and military aviation operators. The purpose of the National Committee for Airspace Management at the strategic level is to identify
the needs of various airspace users, to mediate in any disputes that may arise, and provide
statements to support decision-making by competent authorities. The tasks of the Committee
also include the preparation of national positions particularly with regard to EU legislation that
will affect airspace management at national level.

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The objective of the National Committee for Airspace Management is to promote the safe and
efficient use of national airspace through the establishment and approval of national operating
principles and monitoring mechanisms for airspace use.
The needs of all airspace users must be taken into account along with statutory and environmental requirements, neighbouring states and the requirements of national security and defence.

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5.1

AMC ORGANISATION
General

An airspace management cell (AMC) is collocated with the Area Control Centre Finland. It is responsible for the implementation of ASM and FUA procedures.
5.2

Operators

Executive authority in an operative AMC is principally held by the AMC manager appointed by
Finavia, or his/her deputy. Territorial surveillance authorities define the airspace requirements
for territorial surveillance tasks. In conflicts concerning airspace use needs within the Defence
Forces, the final decision will be made by the military representative at the AMC.
Finavia and the Defence Forces shall allocate the AMC adequate personnel to enable it to carry
out its assigned tasks.

ASM FUNCTIONS AT THE STRATEGIC LEVEL

In accordance with the European Route Network Improvement Plan (ERNIP), the strategic level
of ASM functions concerns the High Level Policy Body, its duties and airspace use policies.
To ensure safe and efficient airspace use, the member states are required to publish transparent processes for airspace design arrangements at national level. The national plans must be in
line with and support the objectives of ERNIP.
6.1

Airspace organisation and planning of airspace use

Airspace organisation means an airspace design function that supports and contributes to the
ERNIP objectives, taking into account the needs of airspace users, the development of safety
levels and the optimisation of airspace capacity. This will be achieved by developing and introducing new advanced functions and techniques, which can be either structural or operational.

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Extensive modifications to the airspace structure always require changes to charts. For this
reason, it has been decided that extensive modifications will only be carried out once a year at
maximum, so that significant costs are not imposed on airspace users for the revision of aeronautical charts.
The process for extensive airspace changes is described in Figure 1. As a case example, the
figure depicts the processing of three different types of airspace, since the powers of decision
assigned in the Aviation Act are different for these areas.

Figure 1
Any proposals for airspace modifications must be sent to Trafi by the year end. All proposals
received are collected together for the annual modification process, seeking to coordinate the
needs of various user groups and, where necessary, consulting the drafters of the proposals directly about the required changes.
A steering group may be established to support the project group. The steering group is tasked
with drafting the general policy and deciding on specific sets of issues.
There is a time limit for submitting proposals for airspace modifications. After the limit, new
changes are no longer accepted, but they are deferred to the next years airspace package.
If the proposed changes are particularly extensive or include new functions, Trafi will arrange
information meetings for stakeholders during the project.

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ASM FUNCTIONS AT THE PRE-TACTICAL LEVEL

The pre-tactical level of airspace management implements the airspace use policy as defined
at the strategic level, and the processes described in the ASM Operations Manual.
7.1
7.1.1

Airspace use planning

Annual airspace use planning

Approved agencies (AA) shall submit an AUP for the next calendar year to Trafi and AMC no
later than 30 October. Upon receipt and preview of the AUP, the AMC convenes, no later than
14 November, a coordination meeting with airspace users and civil and military authorities to
establish the scope of events and coordination requirements for the next calendar year. Airspace users are required to update the AUP as necessary. However, this requirement will not
exempt them from submitting separate bids for airspace use.
7.1.2

Temporary airspace reservations

Temporary airspace reservations usually require new chart material to be published, or they
may significantly affect other air traffic or airspace use priorities. Therefore they must be published in an AIP Supplement. Bids for airspace reservations must be submitted to Trafi no later
than 8 weeks before the commencement of the planned activity, as shown in Figure 2 below.
Any times mentioned are minimum times.

Figure 2

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Units of the Defence Forces may coordinate the submission of a bid with the AMC in advance.
These talks will be based on an advance bid for airspace reservation provided to the AMC, and
the coordinated bid must be submitted to Trafi no later than 7 weeks before the planned activities are commenced, as shown in Figure 3 below. Any times mentioned are minimum times.

Figure 3
7.2
7.2.1

Pre-tactical airspace use planning

General

At the pre-tactical phase, the AMC plans the use of airspace structures on the basis of advance
notifications submitted by airspace users in accordance with established priority arrangements.
An airspace reservation plan prepared on the basis of an advance notification shall be activated
separately as explained in section 8.

7.2.2

Notification of activities dangerous to aircraft for permanent R areas and

permanent D areas over international waters

The AMC shall normally be notified about any planned activity in permanent R areas, permanent D areas over international waters or temporary D areas established in accordance with
the procedure described in section 7.1.2 (or temporary D areas over international waters) no
later than 14 days before the commencement of the activity, unless otherwise agreed in a
separate coordination agreement with the operator or unless another procedure approved by
Trafi is in effect. The AMC verifies the details of the notification and prepares a NOTAM pro-

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posal that the AIS unit uses to produce a NOTAM for the activation of the area for dissemination no later than 7 days before the activity is commenced.
The following constitute exceptions to the above:
1) Firings conducted during readiness inspections and short-duration Navy firings within
temporary overwater R or D areas. Written or oral notifications of these firings will be
issued so that they are available to the AMC no less than 4 hours before the commencement of firing. When it is necessary to check the readiness state of a military unit
or weapon system without prior notification, all actions related to the inspection must
be based on a written order issued within the unit and thorough preparation by the inspecting organisation.
2) Urgent executive assistance provided by the Defence Forces and related activities, e.g.
the clearing of an explosive in a permanent R or D area. The AMC must be issued a
written or oral notification that the area is activated.
The AMC will verify the details in the notification and draw up a NOTAM proposal, based
on which the Aeronautical Information Services Unit will issue a NOTAM concerning activation of the area. In this case, the NOTAM requirement of ICAO Annex 15, paragraph
5.1.1.4 need not be complied with.
7.2.3

TSAs, TRAs, R areas and D areas Approved Agencies (AA)

Approved Agencies nominated for specified areas are authorised to submit to the AMC advance
notifications on TSAs, TRAs, R areas and D areas. Civilian operators wishing to obtain an AA
status must submit an application to Trafi, while applications by military operators are to be
addressed to the Air Force.
The AMC-MIL handles any overlapping advance notifications from the Defence Forces and coordinates them between the units if necessary. The operative AMC processes and coordinates
all advance notifications, attempting to accommodate all airspace users needs. Notifications
shall be submitted to the AMC by 12:00 LMT on the last working day preceding the activity.
Advance notifications received after 12:00 LMT cannot be guaranteed priority over other airspace arrangements or air traffic.
7.2.4

TSAs, TRAs, R areas and D areas other operators

Operators who do not have an AA status are not authorised to submit advance notifications for
TSAs, TRAs, R areas or D areas.
7.2.5 CADF co-operation and AUP/UUP messages
The AMC is the point of contact for the CADF (ECAC Centralized Airspace Data Function) unit
located within the NMOC.

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The AMC is responsible for preparing AUP messages based on advance notifications from airspace users on the use of TSAs, TRAs, R areas and D areas. An AUP shall be prepared and disseminated by 17:00 LMT.
The AMC will also prepare and issue a UUP message when necessary.
7.3

Publications

7.3.1

Airspace restrictions promulgated with AIP Supplements

The AMC will prepare a draft AIP Supplement concerning the airspace to be affected and associated procedures as described in section 7.1.2.
7.3.2

ATS route availability

Available ATS routes are promulgated in an AUP/UUP issued on a daily basis. The opening of
an ATS route is not required if the planned opening time would be less than 2 hours, but ATC
may then clear an aircraft to fly through the restricted airspace if the area is not active.
7.3.3

TSA, TRA and CBA activity

Active status of TSAs, TRAs or CBAs is declared with an AUP/UUP message and using an AIS
chart product.

ASM FUNCTIONS AT THE TACTICAL LEVEL

The tactical level of airspace management implements the Airspace Use Plan (AUP) and Updated Airspace Use Plan (UUP) drafted at the pre-tactical level by activating and deactivating approved airspace reservations. Airspace reservations at the tactical level are of a temporary nature and applied only over limited periods of time. Reservations are based on actual airspace
use, and restrictive airspace is deactivated immediately when the activity that caused the restriction is terminated. At the tactical level of ASM it is also possible to approve reservations
that have not been coordinated in advance in accordance with the principles of ASM at the pretactical level. In this case, however, reservations may be subject to restrictions concerning the
upper, lower, and lateral limits of the area or its activation and deactivation times. Any changes to an advance notification shall be submitted immediately to AMC for coordination.
8.1

Dynamic airspace management

Operative AMC functions aim at the dynamic management of airspace. Dynamic ASM refers to
the capacity of the AMC to implement the principles of efficient use of airspace as laid down in
government statutes and authority regulations in line with the cooperative decision making
(CDM) process, while treating all airspace users equally. The AMC strives to ensure equal opportunities for airspace use by constantly monitoring traffic forecasts and UUP updates. This allows the AMC to also allocate such areas and airspace structures for which an advance notification has not been submitted, provided this would achieve a greater overall benefit with a view
to the reserving partys activities and the expediency of traffic flows.

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8.2

Processing of airspace reservations and D areas

The operative AMC maintains an updated ASM plan at the tactical level. Airspace users shall
notify the AMC of all known changes to the planned activities. Any activated airspace reservations and D areas (later referred to as the reservation) shall be released for subsequent use
by the AMC immediately upon the termination of the activity for which the reservation was requested.
8.2.1

Activation of reserved airspace

A request for activation shall be submitted to the AMC no later than 15 minutes prior to the
commencement of the activity for which the reservation was requested. The ATS provider must
aim to ensure that the airspace can be released for use by the reserving operator no later than
the planned activation time.
Activation of an airspace reservation requires that the AMC has all data pertinent to the reservation, including contact information of the person in charge of the reservation.
Airspace reservations are activated by the AMC, which verifies the information provided by the
reserving operator and coordinates the activation with affected ATS units. The AMC notifies the
reserving operator of the activation.
If an ATS unit is unable to accept the reservation in its requested form due to traffic (or if a bid
was not submitted in accordance with the principles of advance notification applicable to the
pre-tactical level of ASM), the AMC must coordinate any restrictions to the airspace reservation
with the reserving operator. The objective is to lift any restrictions as the traffic situation allows.
8.2.2

Changing a reservation

The AMC strives to approve airspace reservations in their planned form while honoring the priority principles for airspace use and jointly agreed cooperation procedures.
Where the reserved airspace has no priority over other affected airspace structures or users,
obtained through the provisions described in section 7.2, the AMC may impose restrictions to
an approved reservation either on its own initiative or by request of the service provider when
deemed necessary due to traffic. Changes to active airspace reservations will become effective
immediately upon the completion of coordination measures. The AMC is required to coordinate
any changes with all operators affected by the reservation.
If there is a need to ensure the safety of traffic inside the reserved airspace, which is not involved in the ongoing activity, the appropriate ATS unit may, in some cases, contact the reserving operator directly and impose restrictions on the ongoing activity. The ATS must notify
the AMC of such restrictions immediately for the coordination of changes.

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8.2.3

Cancellation of airspace reservation

The airspace user must contact the AMC to cancel an active reservation upon the termination
of the activity for which the reservation was requested. The reservation is considered cancelled
upon the receipt of the user's notification. The AMC will inform affected operators of the resulting change in airspace status.
8.3

Changes to planned activities

Changes in activities subject to coordination at the pre-tactical level of ASM that do not impose
additional restrictions to non-exercise traffic are acceptable. However, should a change result
in such restrictions, the AMC will consider their approval on a case-by-case basis.
8.4

Adjacent and overlapping airspace reservations

Overlapping and/or adjacent reservations for Finnish Defence Force activities are coordinated
and, if necessary, merged by the military representative at the AMC.
Separation rules between areas are not observed for adjacent military airspace reservations.
Separation rules between aircraft are not observed for military aircraft using adjacent airspace
reservations. Users of the areas are notified of adjacent airspace reservations for military use.
If one of the parties involved in adjacent or overlapping airspace reservations is a civilian operator, reservation areas will be allocated according to the following principles:

R area in civilian use TSA in MIL use

Overlapping areas can be allocated

R area in civilian use TRA in MIL use

Overlapping areas can be allocated

R area in civilian use TRA in civilian use

Overlapping areas will not be allocated

TEMPO R area in civilian use R area in MIL use

At Trafis discretion

R area D area

Overlapping areas can be allocated

D area in civilian use TSA in MIL use

Overlapping areas can be allocated

D area in civilian use TRA in civilian use

Overlapping areas can be allocated depending on

airspace class and flight rules

D area in civilian use TRA in MIL use

Overlapping areas can be allocated depending on

airspace class and flight rules

D area in civilian use D area in MIL use

Overlapping areas can be allocated

D area in civilian use D area in civilian use

Overlapping areas can be allocated

D area over international waters TRA in MIL use

Overlapping areas can be allocated

D area over international waters TRA in civilian use

Overlapping areas will not be allocated

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The following procedures are observed for separation between areas and air traffic:
R area in civilian use TSA in MIL use

No separation, military unit must be notified of R area

reservation

TEMPO R/D area in civilian use R/D area in MIL use

No separation, military unit must be notified of TEMPO

reservation in case of MIL flight operations

R area in civilian use D area in civilian use

R/D area in civilian/MIL use TRA

No separation
Aircraft in the TRA reservation are separated from R/D
area according to airspace class and flight rules

D area in civilian use TSA in MIL use

No separation, military unit must be notified of D area

reservation

D area over international waters TRA in MIL use

No separation, military unit must be notified of D area

reservation

D area over international waters TRA in civilian use

Aircraft in the TRA reservation are separated from D

area according to airspace class and flight rules

Separation from R and D areas may be waived at the pilot-in-commands request.

8.5

Airspace reservations without advance notification

Airspace users may submit bids to the AMC for reservable areas published in the AIP and suitable for the type of activities also without using the advance notification procedure described in
section 7. The AMC coordinates the bid and assesses its effects on traffic flows and other airspace structures, and then decides on the use of the area. In this case, the NOTAM requirement of ICAO Annex 15, paragraph 5.1.1.4 need not be complied with as regards the NOTAM
message.

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9.1

AIRSPACE USE MONITORING AND PERFORMANCE

General

Rules for monitoring the flexible use of airspace are laid down in Commission Regulation (EC)
No 2150/2005 and Commission Regulations (EU) No 390/2013 and 255/2010. This requires
the establishment of mechanisms for the monitoring of bids concerning airspace structures,
and for recording and filing information on their actual use to facilitate research and planning
and to improve performance capabilities.
9.2

Statistics and reporting

The AMC/FMP is required to carry out necessary measurements using the performance indicators explained in Appendix 4.
Statistics on airspace use are produced on a daily level and compiled into regular reports. The
statistics are provided to aviation authorities for each calendar year.

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The regulations also require that annual reports on the use of national airspace be submitted
to the European Commission pursuant to Article 8 and Annex of the FUA Regulation and Article
7(2) of Regulation 551/2004. In Finland, responsibility for this rests with the Ministry of
Transport and Communications.

10 UPDATES TO THIS MANUAL

This Airspace Management Operations Manual is updated as necessary on a joint decision of
Trafi and the Finnish Air Force.
Proposals for amendments shall be submitted to Trafi or the Finnish Air Force for assessment.
Any needs for change will be reviewed at least once per calendar year.
APPENDIX 1: PRINCIPLES GOVERNING THE USE OF AIRSPACE BY THE FINNISH DEFENCE
FORCES
APPENDIX 2: ORDER OF PRIORITY FOR AIRSPACE USE
APPENDIX 3: CONTACT INFORMATION OF OPERATORS CONTRIBUTING TO ASM PROCESSES
APPENDIX 4: MONITORING OF AIRSPACE USE

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