The most frequently referenced section. It introduces the concept of "Full Cost" versus "Marginal Cost." For most international services, Doc 9811 suggests the cost base should include:
If you are a regulator trying to implement the manual without buying expensive consultants, use this roadmap derived from the ICAO Doc 9811 PDF:
Step 1: Legal Separation (Chapter 2) Separate the accounts of the Air Navigation Service Provider from the general government treasury. If overflight fees go into the "general fund" to pay for police or schools, you violate Doc 9811. icao doc 9811 pdf
Step 2: Determine Full Cost (Chapter 3) Calculate the total annual cost of ANS: Salaries ($X million), CNS (Communication, Navigation, Surveillance) equipment maintenance ($Y million), training ($Z million). Sum them.
Step 3: Establish the Unit Rate (Chapter 5) Divide the total cost by the total "Service Units." A common unit is the "Flight-Kilometer" or "MTOW-Kilometer." Example: If total cost = $10M, and total flown kilometers = 1M, the rate is $10 per km. The most frequently referenced section
Step 4: Publish the Charges (Chapter 6) You must publish the charges in the State's AIP at least 90 days before they take effect (unless exceptional circumstances apply).
Step 5: Hold Annual Consultations (Chapter 4) Invite all airlines operating in your airspace to a meeting via the local Board of Airline Representatives (BAR). Document their feedback. If they object, you must justify your position in writing. Verify edition and publish date before citing
The central thesis of Doc 9811 is that regulation is not a binary choice (Regulated vs. Deregulated). Instead, it presents regulation as a spectrum.
The document details three primary regulatory environments:
The manual provides granular analysis of the Five Freedoms and "So-called" Freedoms: