Mapping The Ministry Of Civil Aviation: Schemes And Policies – IMPRI Impact And Policy Research Institute

Policy Update
Avi Sharma

Introduction

The Ministry of Civil Aviation (MoCA), located at Rajiv Gandhi Bhavan near Safdarjung Airport in New Delhi, plays a critical role in shaping India’s civil aviation sector. It is primarily responsible for the formulation of national policies and programs aimed at the development, regulation, and oversight of the aviation industry in India. MoCA administers key legislations such as the Aircraft Act, 1934 and the Aircraft Rules, 1937, along with other regulations that govern aviation safety, air transport, and related services.

The ministry exercises administrative control over several attached and autonomous bodies, which include the Directorate General of Civil Aviation (DGCA), responsible for air safety regulation; the Bureau of Civil Aviation Security (BCAS), ensuring security in air travel; and the Indira Gandhi Institute of Aeronautics (IGIA), which focuses on aviation education. Additionally, MoCA oversees public sector undertakings like the Airports Authority of India (AAI), which manages most of the country’s airports, and Pawan Hans Helicopters Limited, providing helicopter services across India.

The ministry’s responsibility also extends to the Commission of Railway Safety, which ensures rail transport safety and operational standards under the Railways Act, of 1989.

As of now, Shri Rammohan Naidu Kinjarapu serves as the Hon’ble Union Minister of Civil Aviation, Govt. of India, leading the efforts to modernize and expand India’s aviation infrastructure. At the same time, Shri Murlidhar Mohol, Hon’ble Union Minister of State for Civil Aviation assists in the execution of the ministry’s initiatives and policies. MoCA seeks to improve air connectivity, safety, and sustainability through these efforts, contributing to India’s growth as a global aviation hub.

Mandate

The Ministry of Civil Aviation (MoCA) is tasked with the overall development, regulation, and governance of civil aviation in India. Its mandate includes:

1. Formulating Policies and Strategies: Creating frameworks to promote safe, efficient, and sustainable aviation operations.
   Example: National Civil Aviation Policy (NCAP), 2016: The policy laid a comprehensive framework for promoting safe, affordable, and sustainable aviation in India. It focused on increasing passenger traffic, reducing taxes, and enhancing cargo services while emphasizing safety and efficiency.
2. Regulation of the Aviation Sector: Overseeing air transport services, airports, air safety, and security standards.
   Example: Directorate General of Civil Aviation (DGCA): The DGCA enforces air safety standards, certifies aircraft, and licenses pilots. For instance, after the Boeing 737 MAX accidents globally, DGCA grounded the aircraft in India in 2019 to ensure passenger safety, demonstrating robust regulatory action.
   Bureau of Civil Aviation Security (BCAS): Implementation of stringent security protocols at Indian airports post the 26/11 Mumbai attacks, including enhanced passenger and baggage screening measures.
3. Infrastructure Development: Planning and implementing airport infrastructure projects, including modernization and expansion.
   Example: Development of Noida International Airport (Jewar): Planned as one of Asia’s largest airports, this greenfield project aims to accommodate over 12 million passengers annually in its first phase, supporting Delhi NCR’s growing air traffic.
   Modernization of Mumbai and Delhi Airports: The privatization of these airports under public-private partnership models transformed them into world-class facilities with enhanced passenger services and operational efficiency.
4. Regional Connectivity: Enhancing air connectivity to underserved and unserved regions to promote balanced economic development.
   Example: UDAN (Ude Desh Ka Aam Nagrik) Scheme: Under this scheme, regional connectivity was boosted with the launch of flights connecting cities like Shillong, Darbhanga, and Pakyong, which were previously underserved. This helped enhance tourism, trade, and access to remote regions.
   Operationalizing Airports in the Northeast: Airports such as Pakyong (Sikkim) and Tezu (Arunachal Pradesh) were developed and connected under the UDAN scheme to integrate the Northeast into the national aviation network.
5. International Cooperation: Negotiating bilateral air service agreements and ensuring India’s compliance with global aviation norms and standards.
   Example: India-US Open Skies Agreement: This bilateral agreement allows unlimited flights between India and the US by designated carriers, fostering greater trade, tourism, and connectivity.
   Compliance with ICAO Standards: India adopted the Carbon Offsetting and Reduction Scheme for International Aviation (CORSIA) under ICAO to ensure global standards in aviation sustainability and safety.
6. Sustainability: Promoting environmentally sustainable practices, including the adoption of biofuels and energy-efficient airport operations.
   Example: Adoption of Biofuels in Aviation: SpiceJet operated India’s first biofuel-powered flight in 2018 from Dehradun to Delhi, showcasing the potential for reducing carbon emissions in the aviation sector.
   Green Airports Initiative: Airports such as Cochin International Airport became fully solar-powered, setting a benchmark for sustainable airport operations globally.

Institutes

Organization Setup of the Ministry of Civil Aviation (MoCA)

The Ministry of Civil Aviation (MoCA) is supported by various regulatory bodies, public sector undertakings, and autonomous organizations that help implement and oversee civil aviation policies, safety standards, infrastructure development, and research in India. Below is an outline of key entities that form the organizational setup of MoCA:

1. Directorate General of Civil Aviation (DGCA)

The DGCA is the primary regulatory body under MoCA responsible for ensuring the safety, security, and regulation of civil aviation in India.

• Functions:
  • Licensing of airlines and air operators.
  • Aircraft maintenance and operational safety standards.
  • Airworthiness certification of aircraft.
  • Oversight on pilot and crew training and licensing.
  • Implementation of safety standards for aviation operations.

2. Airports Economic Regulatory Authority of India (AERA)

AERA was established to regulate tariff setting and the quality of services at airports. It ensures that passengers and airlines benefit from fair and transparent charges at airports.

• Functions:
  • Regulate tariffs for aeronautical services.
  • Monitor and ensure quality services at airports.
  • Advise the government on economic and financial matters related to airports.

3. Bureau of Civil Aviation Security (BCAS)

BCAS is responsible for establishing and enforcing security regulations in the civil aviation sector. It works to protect passengers, crew, and airports from threats.

• Functions:
  • Develop and implement aviation security protocols.
  • Conduct security audits and inspections at airports.
  • Provide security training to personnel.
  • Address terrorism and other threats to civil aviation.

4. Aircraft Accident Investigation Bureau (AAIB)

The AAIB investigates civil aviation accidents and incidents to determine their causes and recommend safety improvements.

• Functions:
  • Conduct investigations into aircraft accidents and serious incidents.
  • Prepare reports on findings and safety recommendations.
  • Advise on safety measures to prevent future accidents.

5. Commission of Railway Safety (CRS)

While primarily focused on railways, the CRS, under the Ministry of Civil Aviation, also contributes to ensuring safety in railway-airport integrated projects. It investigates accidents involving railways and airports.

• Functions:
  • Investigate accidents involving rail-airport integration.

6. Airports Authority of India (AAI)

AAI is a statutory body that manages most of the civil aviation infrastructure in India. It operates airports, provides air navigation services, and develops aviation infrastructure.

• Functions:
  • Operates and manages airports.
  • Provides air traffic management and navigation services.
  • Develops and upgrades airport infrastructure.
  • Oversees air traffic control (ATC) services.

7. Pawan Hans Helicopters Limited (PHHL)

Pawan Hans is a public sector enterprise under MoCA that specializes in helicopter operations, primarily for government services, including passenger transport, rescue, and offshore services.

• Functions:
  • Provides helicopter services for passengers, tourism, and offshore operations.
  • Supports government and private sector operations in remote areas.
  • Conducts rescue and emergency medical services.

8. AI Assets Holding Limited (AIAHL)

AIAHL was created to manage the financial assets and liabilities associated with Air India, after its privatization.

• Functions:
  • Manage the divested assets of Air India.
  • Oversee the management of Air India’s non-core assets and liabilities.
  • Facilitate the process of asset restructuring and monetization.

9. Rajiv Gandhi National Aviation University (RGNAU)

RGNAU is an academic institution set up to promote aviation education, research, and skill development. It provides training programs in various aspects of aviation management, safety, and operations.

• Functions:
  • Provide educational programs in aviation studies and management.
  • Conduct research to improve aviation practices and safety.
  • Collaborate with international institutions for aviation training.

The Ministry of Civil Aviation’s organizational setup is vast and diverse, with each body playing a critical role in ensuring the smooth and efficient operation of India’s civil aviation sector. These organizations collectively contribute to the regulatory, safety, infrastructure, and educational needs of the sector, ensuring its growth, security, and alignment with international standards.

Schemes and Policies

The Ministry of Civil Aviation (MoCA) has launched several key schemes and policies to foster the growth and accessibility of the aviation sector in India. Below is a summary of some of the significant schemes and policies implemented by MoCA up to 2024:

1. National Civil Aviation Policy (NCAP) – 2016

• Launch Date: 15 June 2016
• Objective: NCAP aimed to create a framework to promote the aviation sector, enhance air connectivity, reduce costs, and ensure safety. It sought to establish India as a global aviation hub and improve regional connectivity.
• Key Provisions: Focus on increasing passenger traffic, encouraging new entrants, and enhancing infrastructure. It also introduced the National Air Cargo Policy to promote cargo handling and trade.

2. UDAN (Ude Desh Ka Aam Nagrik) Scheme – 2016

• Launch Date: 27 April 2017
• Objective: UDAN was launched to improve regional connectivity by making air travel affordable for the masses. It aims to connect underserved and unserved airports, bringing flying within the reach of the common man.
• Key Provisions: Provides subsidies to airlines to operate flights on regional routes and offers capped fares for passengers. The scheme targets the development of smaller airports under the Regional Connectivity Scheme (RCS).
• Expansion: The scheme was expanded to include more routes and airports, with the introduction of multiple rounds of bidding. By 2024, more than 450 routes and over 60 airports have been covered under UDAN.

3. Krishi Udan Scheme – 2020

• Launch Date: 8 August 2020
• Objective: This scheme was introduced to promote the transportation of agricultural produce by air, thus enabling quicker delivery and enhancing export potential. It aims to address logistical challenges in transporting perishable agricultural products.
• Key Provisions: Focus on facilitating the use of cargo planes and unused cargo capacity in passenger planes to transport agricultural goods. The scheme is aligned with the Atmanirbhar Bharat initiative to boost agricultural exports.

4. Drone Policy (Civil Aviation Requirements for Remotely Piloted Aircraft Systems – RPAS) – 2018

• Launch Date: 2018
• Objective: This policy was introduced to regulate and promote the safe use of drones in India. It aimed at fostering innovation in sectors such as agriculture, infrastructure, and logistics while ensuring safety and security in the airspace.
• Key Provisions: The policy laid down the operational guidelines, including no-fly zones, drone registration, and pilot training. It was later expanded to allow the commercial use of drones in various sectors.

5. National Aviation Security Plan – 2020

• Launch Date: 2020
• Objective: Aimed at strengthening security protocols at airports and air traffic control systems across the country. This policy aligns with international aviation security norms.
• Key Provisions: Comprehensive measures for passenger and cargo screening, air traffic management, and counter-terrorism strategies in aviation.

6. Atmanirbhar Bharat: Aviation Sector – 2020

• Launch Date: 2020
• Objective: As part of the Atmanirbhar Bharat (Self-Reliant India) initiative, this policy aimed to enhance domestic manufacturing of aviation components, aircraft, and other related infrastructure.
• Key Provisions: The initiative promoted domestic aircraft manufacturing and the creation of a robust aerospace ecosystem, including enhancing air connectivity and reducing reliance on foreign suppliers.

7. DigiYatra – 2022

• Launch Date: 1 December 2022 (Pilot Phase)
• Objective: DigiYatra is an initiative to provide a seamless and paperless airport experience for passengers using facial recognition technology.
• Key Provisions: Passengers can check-in, drop baggage, and pass through security and boarding using facial recognition, enhancing convenience and reducing wait times at airports.

8. GAGAN (GPS Aided Geo Augmented Navigation) – 2021

• Launch Date: 2021
• Objective: GAGAN is a satellite-based augmentation system designed to enhance air traffic management and navigation in India.
• Key Provisions: It enables accurate, real-time navigation and tracking of aircraft over the Indian airspace, improving safety and efficiency in air traffic control.

9. Green Aviation Initiatives – Ongoing

• Objective: To promote sustainability and reduce the environmental impact of aviation.
• Key Provisions: Policies to encourage the use of biofuels in aircraft, energy-efficient airport infrastructure, and carbon-neutral growth in the aviation sector. India has also committed to adopting the Carbon Offsetting and Reduction Scheme for International Aviation (CORSIA) under the International Civil Aviation Organization (ICAO).

10. Aircraft Leasing and Financing Policy – 2021

• Launch Date: 2021
• Objective: To promote the growth of aircraft leasing and financing in India, aiming to make the country a global hub for leasing activities.
• Key Provisions: The policy provides tax incentives and ease of doing business for aircraft leasing companies, facilitating greater participation in the aviation sector.

11. Air Traffic Management (ATM) System Upgradation – 2023

• Launch Date: 2023
• Objective: To upgrade air traffic management systems and enhance efficiency in handling increasing air traffic.
• Key Provisions: The policy focuses on the modernization of radar and communication systems, improving airspace capacity, and adopting new technologies like artificial intelligence for better traffic management.

Challenges

1. Regional Connectivity (UDAN Scheme)

• Insufficient Viability Gap Funding (VGF) under UDAN has led to airlines withdrawing from regional routes.
• Underserved airports lack operational facilities, delaying the launch of flights.
• Certain regional routes fail to generate consistent demand, making operations financially unviable despite subsidies.

2. Infrastructure Development

• Major airports like Delhi and Mumbai are saturated, causing delays and reducing operational efficiency.
• Delays in acquiring land for airport projects and expansions slow down infrastructure development.
• Public-private partnerships face regulatory hurdles and disputes over revenue-sharing models, hindering progress.

3. Air Safety and Security

• Limited manpower and resources at the Directorate General of Civil Aviation (DGCA) affect the enforcement of safety regulations.
• Increased digitization, such as DigiYatra, heightens vulnerability to cyberattacks, necessitating robust measures.

4. Sustainability

• Dependence on traditional jet fuel contributes significantly to emissions, while the transition to biofuels is slow due to cost and scalability challenges.
• Few airports have achieved carbon neutrality or implemented comprehensive energy-efficient operations.

5. International Cooperation

• Adapting to ICAO and CORSIA norms increases costs for operators, affecting their competitiveness.
• Delays in negotiating air service agreements limit international connectivity in specific regions.

Recommendations

1. Regional Connectivity (UDAN Scheme)

• Increase Viability Gap Funding to sustain airlines on low-demand routes and ensure the scheme’s financial viability.
• Modernize underserved airports with essential facilities, including night-landing capabilities and improved navigation systems.
• Conduct campaigns to educate the public about the benefits of regional connectivity and promote demand for regional routes.

2. Infrastructure Development

• Develop secondary airports near congested hubs to reduce the pressure on major airports like Delhi and Mumbai.
• Simplify regulatory processes for private sector involvement in airport development to encourage timely completion of projects.
• Collaborate with state governments to implement transparent and fair land acquisition practices.

3. Air Safety and Security

• Allocate more funds to the DGCA for hiring skilled personnel and acquiring advanced technology for safety oversight.
• Develop a comprehensive aviation cybersecurity framework to secure critical systems like DigiYatra and passenger data.
• Enforce periodic safety audits and training programs for airlines and airport operators to maintain high safety standards.

4. Sustainability

•  Provide financial incentives for airlines adopting sustainable aviation fuels (SAF) and other eco-friendly technologies.
• Implement solar power, waste management systems, and energy-efficient designs in airport operations.
• Collaborate with research institutions to develop cost-effective and scalable solutions for reducing aviation emissions.

5. International Cooperation

• Expedite negotiations for air service agreements to enhance international connectivity, particularly to underserved regions.
• Train aviation stakeholders on international regulatory frameworks to ensure seamless compliance with global standards.
• Actively engage with organizations like ICAO to advocate for policies that balance the needs of developing nations in aviation.

References

About the Contributor: Avi Sharma is a Research Intern at the Impact and Policy Research Institute and holds a Master’s in International Studies from Symbiosis School of International Studies. 

Acknowledgment: The author extends sincere thanks to Dr. Arjun Kumar, Aasthaba Jadeja, Ishita Deb, and Deepa Baghel for their input. 

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