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DERECHO AEROPORTUARIO EN IBEROAMÉRICA

COMITÉ CIENTÍFICO DE LA EDITORIAL TIRANT LO BLANCH María José Añón Roig

Marta Lorente Sariñena

Ana Cañizares Laso

Javier de Lucas Martín

Jorge A. Cerdio Herrán

Víctor Moreno Catena

José Ramón Cossío Díaz

Francisco Muñoz Conde

Catedrática de Filosofía del Derecho de la Universidad de Valencia Catedrática de Derecho Civil de la Universidad de Málaga

Catedrático de Teoría y Filosofía de Derecho.

Instituto Tecnológico Autónomo de México Ministro en retiro de la Suprema Corte de Justicia de la Nación y miembro de El Colegio Nacional

María Luisa Cuerda Arnau

Catedrática de Derecho Penal de la Universidad Jaume I de Castellón

Manuel Díaz Martínez

Catedrático de Derecho Procesal de la UNED

Carmen Domínguez Hidalgo

Catedrática de Derecho Civil de la Pontificia Universidad Católica de Chile

Eduardo Ferrer Mac-Gregor Poisot

Juez de la Corte Interamericana de Derechos Humanos Investigador del Instituto de Investigaciones Jurídicas de la UNAM

Owen Fiss

Catedrático emérito de Teoría del Derecho de la Universidad de Yale (EEUU)

José Antonio García-Cruces González Catedrático de Derecho Mercantil de la UNED

José Luis González Cussac

Catedrático de Derecho Penal de la Universidad de Valencia

Luis López Guerra

Catedrático de Derecho Constitucional de la Universidad Carlos III de Madrid

Ángel M. López y López

Catedrático de Derecho Civil de la Universidad de Sevilla

Catedrática de Historia del Derecho de la Universidad Autónoma de Madrid Catedrático de Filosofía del Derecho y Filosofía Política de la Universidad de Valencia Catedrático de Derecho Procesal de la Universidad Carlos III de Madrid Catedrático de Derecho Penal de la Universidad Pablo de Olavide de Sevilla

Angelika Nussberger

Catedrática de Derecho Constitucional e Internacional en la Universidad de Colonia (Alemania) Miembro de la Comisión de Venecia

Héctor Olasolo Alonso

Catedrático de Derecho Internacional de la Universidad del Rosario (Colombia) y Presidente del Instituto Ibero-Americano de La Haya (Holanda)

Luciano Parejo Alfonso

Catedrático de Derecho Administrativo de la Universidad Carlos III de Madrid

Consuelo Ramón Chornet

Catedrática de Derecho Internacional Público y Relaciones Internacionales de la Universidad de Valencia

Tomás Sala Franco

Catedrático de Derecho del Trabajo y de la Seguridad Social de la Universidad de Valencia

Ignacio Sancho Gargallo

Magistrado de la Sala Primera (Civil) del Tribunal Supremo de España

Elisa Speckmann Guerra

Directora del Instituto de Investigaciones Históricas de la UNAM

Ruth Zimmerling

Catedrática de Ciencia Política de la Universidad de Mainz (Alemania)

Fueron miembros de este Comité: Emilio Beltrán Sánchez, Rosario Valpuesta Fernández y Tomás S. Vives Antón

Procedimiento de selección de originales, ver página web: www.tirant.net/index.php/editorial/procedimiento-de-seleccion-de-originales

DERECHO AEROPORTUARIO EN IBEROAMÉRICA

Directores:

Jaime Rodríguez Arana Diego R. González Rafael Dickson Morales Prefacio:

Peter Kirsch

tirant lo blanch Ciudad de México, 2024

Copyright ® 2024 Todos los derechos reservados. Ni la totalidad ni parte de este libro puede reproducirse o transmitirse por ningún procedimiento electrónico o mecánico, incluyendo fotocopia, grabación magnética, o cualquier almacenamiento de información y sistema de recuperación sin permiso escrito de los autores y del editor.

En caso de erratas y actualizaciones, la Editorial Tirant lo Blanch México publicará la pertinente corrección en la página web www.tirant.com/mex/ Este libro será publicado y distribuido internacionalmente en todos los países donde la Editorial Tirant lo Blanch esté presente.

© Jaime Rodríguez Arana Diego R. González Rafael Dickson Morales (Directores)

© EDITA: TIRANT LO BLANCH DISTRIBUYE: TIRANT LO BLANCH MÉXICO Av. Tamaulipas 150, Oficina 502 Hipódromo, Cuauhtémoc CP 06100, Ciudad de México Telf: +52 1 55 65502317 infomex@tirant.com www.tirant.com/mex/ www.tirant.es ISBN: 978-84-1197-881-1 MAQUETA: Disset Ediciones Si tiene alguna queja o sugerencia, envíenos un mail a: atencioncliente@tirant.com. En caso de no ser atendida su sugerencia, por favor, lea en www.tirant.net/index.php/empresa/ politicas-de-empresa nuestro procedimiento de quejas.

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Autores Pedro Billorou Leonardo A. Briceño Dudamel Yudith Castillo Tatiana Arima Cohen Zaide Rita Cornejo Lanao Augusto Dal Pozzo Manuel De La Torre Meléndez Rafael R. Dickson Morales David Dueñas Yorside Duque Julio Facal Katiuska Figueroa Obispo Hernán Adrián Gómez Diego Raul Gonzalez Lucas Lafosse Gustavo Pablo Lupetti Santiago Juan Manuel Herrera Angélica Noboa Pagán Ranfis Ortiz Roncal Joan Peignand Muñiz Olga Lucía Ramírez Jaime Rodríguez-Arana Hebe Luisa Romero Talavera Marcos Serrano Larissa Souza Paganelli Natalie Vergari

Índice Preface................................................................................................

13

Peter Kirsch

Prefacio...............................................................................................

19

Jaime Rodríguez-Arana, Diego Raúl González y Rafael R. Dickson Morales

Argentina

1. Derecho Aeroportuario, Política Pública y Ley de Aeropuertos. El desafío pendiente en América Latina y el Caribe...............................................

23

Diego Raul Gonzalez

2. Las relaciones entre el Municipio y el Aeropuerto en Argentina................

77

Pedro Martín Billorou

3. Los accidentes aeronáuticos en el aeropuerto.........................................

125

Hernán Adrián Gómez

4. La Infraestructura Aeroportuaria Argentina. La Concesión Aeroportuaria.....

147

Marcos S. Serrano y Lucas Lafosse

5. Acerca de la necesidad del usuario de aeropuertos del acceso a los servicios de telecomunicaciones e internet, desde un abordaje internacional en la materia............................................................................................

175

Santiago Juan Manuel Herrera

6. Planificación aeroportuaria consensuada.............................................

193

Gustavo Pablo Lupetti

Brasil

7. Direito Administrativo da Infraestrutura e o Direito Aeroportuário..........

243

Augusto Neves Dal Pozzo

8. As Inovações da Nova Regulação de Alocação de Slots no Brasil..............

Tatiana Arima Cohen Zaide

277

10

Índice

9. Las tecnologías y los nuevos formatos de controles migratorios y aduaneros en los aeropuertos como impulsores del desarrollo de la movilidad aérea internacional de pasajeros y mercancías...................................................

317

Larissa REGINA Souza Paganelli y Natalie Vergari

Chile

10. Solución de controversias entre el Estado y el explotador aeroportuario. La experiencia de Chile...........................................................................

341

David Dueñas Santander

Colombia

11. La naturaleza legal de los slots aeronáuticos ¿De quién son propiedad?.....

377

Olga Lucía Ramírez

República Dominicana

12. El rol del consumidor en el cuidado del Medio Ambiente en el ámbito aeroportuario..........................................................................................

415

Yudith Castillo

13. Las infraestructuras aeroportuarias de titularidad privada y su gestión bajo una Alianza Público-Privada: La experiencia de la República Dominicana................................................................................................

423

Rafael R. Dickson Morales

14. Derecho de la competencia en la gestión aeroportuaria con efectos procompetitivos para el transporte aéreo de la República Dominicana..................

463

Angélica Noboa Pagán y Joan Peignand Muñiz

España

15. Sobre los principios del derecho de las infraestructuras (especial referencia a las infraestructuras aeroportuarias)...................................................

507

Jaime Rodríguez-Arana Muñoz

México

16. Política aeronáutica en México: una historia de tropiezos y desatinos......

Manuel de la Torre Meléndez

531

11

Índice

Paraguay

17. Puertos Espaciales...........................................................................

569

Hebe Luisa Romero Talavera

Perú

18. Facilidades Esenciales en los Aeropuertos del Perú: Nuevos enfoques regulatorios............................................................................................

603

Ranfis Ortiz Roncal y Rita Cornejo Lanao

Uruguay

19. Inteligencia Artificial y los nuevos esquemas de distribución en el transporte aéreo como factor de concentración y la protección al consumidor..............

615

Julio Facal

Venezuela

20. Importancia de la bioseguridad e higiene laboral en espacios aeronáuticos de conformidad con la regulación aeronáutica venezolana 111 (RAV 111) ................................................................................................. 633 Yorside Duque Rodríguez

21. Importancia de la implementación del sistema de gestión de la seguridad operacional (SMS) en el Aeropuerto Internacional “General en Jefe Santiago Mariño” ubicado en Porlamar, Edo. Nueva Esparta...............................

651

Katiuska J. Figueroa Obispo

22. La Autoridad Aeroportuaria Venezolana y la empresa Bolivariana de Aeropuertos, S.A. (BAER)...................................................................

Leonardo A. Briceño Dudamel

675

Preface PETER KIRSCH Airport law in the United States could be called a chimera. No law student ever takes a course in airport law, there is no legal certification for airport lawyers, and few law students attend their studies with an ambition to be an airport lawyer. But, at the same time, in a very practical manner, airport law is a vibrant practice and shares many of the characteristics of other legal disciplines: a coherent body of law, established judicial and administrative precedents, and unique legal principles that provide the foundation for all legal relationships.

Practically, airport law in the United States is an amalgamation of many different legal disciplines that reflect the complexity and variation in relationships in the development, operation and regulation of airports. Despite this complexity, or perhaps as a method to organize this complexity, there are six cardinal principles that help define the field.

The first and most important legal principle is the sovereignty of the federal government over the navigable airspace. The ancient common law principle of property rights, cuius est solum, eius est usque ad coelum et ad inferos (“whoever owns the soil, it is theirs all the way to Heaven and all the way to Hell”) was largely abandoned early in the 20th century by US court decisions (beginning with the Supreme Court’s 1946 decision in United States v. Causby) that held that private interest in real property is limited by the federal government’s interest in preserving (and regulating the use of) the navigable airspace. While the limits of what private ownership of superadjacent airspace have been the subject of considerable litigation in the intervening time, the principle that the federal government has complete sovereignty over navigable airspace remains.

With that sovereignty comes the U.S. Constitution principle of preemption, which holds that federal law and regulation is superior to that of any state or local government. In practice that means that, since airspace is regulated by the federal government, there is no room for complementary or contradictory state or local regulation. As with all preemption, the limits of local and state regulation are defined by

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the federal interest in uniform nationwide control and regulation of the use of airspace for interstate commerce. Federal preemption has a pervasive effect on airport law since law and regulation at every level of government in the US must be filtered through a preemption screen to determine its scope (and often the limits to its validity).

The second important legal principle is that the federal government agency charged with oversight of the national airspace system plays many different, and sometimes contradictory, roles. The Federal Aviation Administration (FAA), an agency of the federal Department of Transportation, is not only the regulator of the navigable airspace but also the regulator of aeronautical vehicles (aircraft, helicopters, air taxis, drones), of operators (pilots) and of facilities (airports). In most nations, but not in the United States, the different agencies regulate different aeronautical functions and the regulator plays that role exclusively. In addition to its position as the exclusive regulator of most elements of the national aviation system, the FAA is also the operator of a key component of the national aviation system: it operates the air traffic control system and all use of navigable airspace. That places the agency in a small group of federal agencies whose responsibilities include actual day-to-day system operations – a role that the federal government generally does not assume. The FAA may be the only air traffic system operator in the world who is also the regulator of users of that system. Airport law in the US requires an exquisite understanding that the FAA’s role in each instance is a function of the legal role that it is playing – and the conflicts and contradictions that occasionally arise when different functions are in tension.

Third, beginning in the second half of the 20th century, the FAA assumed a role as the principal funder of airport capital development.

Through special taxes on various users of the system, and additional federal appropriations, FAA distributes today almost $US 4 billion annually in grants for airport capital projects. Airport operators who wish to tax passengers may do so only if the tax is to be used for designated categories of airport capital projects and only with the approval of the FAA. This places the agency in the unique position of being both friend and foe for airports and fundamentally shapes the relationship between the federal government and airport operators. When the same agency controls the purse strings and regulates operations, strange and complex legal tensions arise.

Preface

15

For most of the 20th century, FAA grants were indispensable for airport development and while there were other sources of funding – local bonds, airport rates and charges, and revenue earned from airport real estate – FAA grants accounted for the preponderance of airport capital funding except at the very largest hub airports. The 21st century has seen an erosion of the real value of FAA grants and, at the same time increased interest in private investment. As a result, FAA grants, while still critical for smaller general aviation airports, have become decreasingly important for large commercial airports. For airport lawyers, this has meant a need for greater understanding of the private equity market and of the various legal structures used to accommodate private investment.

The fourth principle – one that is also in a state of transition today – is that the legal structure of airport law is premised on the three-legged stool of federal control over airspace, local government control over airports, and private sector control over pilots and aeronautical vehicles.

The structure of airport law is based upon the powers that local and state governments have to operate airports, regulate their construction and operation and relationship between state and local governments and the federal government. As more and more airport facilities are privately developed or operated in the US (much as they are in all other parts of the world), this principle is being called into question.

Fifth, unlike regulation in most other countries (and regulation of many industries in the United States), federal regulation of airports is accomplished largely by contract rather than by formal government regulation. The FAA makes available grant funds to airports through the Airport Improvement Program, a program in which virtually every commercial airport and thousands of general aviation airports participate.

The grant agreement which airport operators execute every year to be entitled to grants, contains a set of 39 “grant assurances” which are contractual commitments made to the federal government. FAA is statutorily required to obtain these grant assurances before it makes any grant.

These grant assurances are peculiar, moreover, in two substantial ways.

First, the grant assurances regulate virtually every element of airport operations and development, including those airport functions which are completely unrelated to the grant. In essence, the federal government’s grant offer is contingent upon the airport operator agreeing to have its entire function regulated by the FAA. Second, the duration of the

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Peter Kirsch

grant assurances survives the term of the grant agreement. By FAA policy, all grant assurances carry a 20-year lifespan, meaning that each year when an airport operator executes a grant agreement, it agrees to comprehensive federal regulations for the next 20 years. This 20-year tail makes it impractical for an airport operator to disentangle itself from FAA oversight, though in recent years an increasing number of airport operators have publicly stated their intention to do so.

Because airport regulation is largely contractual, the FAA is not subject to many of the procedural and substantive legal limitations on federal regulation and airport operators do not enjoy some of the due process requirements that generally attach when the government is acting in its regulatory capacity. For example, FAA not only unilaterally imposes the grant assurances as part of the annual grant agreement, but airport operators agree that FAA is entitled to deference in its interpretation of the meaning of these obligations and any disputes concerning compliance are decided, also, by the FAA. Only following an internal FAA dispute resolution process can an airport sponsor appeal an FAA decision to the U.S. Court of Appeals, where the courts also afford substantial deference to the agency. A substantial body of case law has developed from FAA decisions interpreting grant assurance obligations and while that law does not have the precedential weight of court decisions, since the FAA is the decision maker in the first instance on matters of interpretation of grant assurances and other grant agreement requirements, airport law relies heavily on the practical precedential value of FAA decisions.

Finally, airport operators that receive federal grants are subject to pervasive regulation of airport revenue. This requirement is probably the single unique characteristic of US airport law that distinguishes it from airport law elsewhere in the world. The concept is simple even if its application is not: all revenue received from operations of an airport must be spent only on the capital and operating costs of the airport. The historical genesis of the limitation of use of airport revenue comes from the three-legged stool referred to earlier: when the federal government makes substantial investments in airport infrastructure (as it has done since the advent of commercial aviation), it wants to ensure that airport operators do not ‘divert’ their own revenue to non-airport functions of local government. In essence, the bargain between the federal government and local airport operators is that, if the federal government is

Preface

17

going to subsidize airports with grants for capital projects and subsidize the aviation system through the air traffic function, local governments should not be allowed to profit from airport operations to benefit other local needs.

The FAA vigorously enforces the revenue use limitation but, as private investment has become more prevalent in the US, the precise line between airport revenue and private enterprise revenue has become increasingly complex and contentious. While the rent or concession payments an airport operator receives is considered to be airport revenue, FAA has never held that the profits that a concessionaire receives constitute airport revenue subject to FAA regulation. That distinction has worked well for traditional airport retail and passenger service concessions like food, merchandise and rental cars. When, as has become increasingly common, a concessionaire operates an entire terminal (or even an entire airport), the line between airport revenue and concession revenue can become difficult to draw.

These five principles set the foundation for airport law in the United States but do not address the myriad legal relationships that exist in the airport environment, relationships that are each defined in separate bodies of law. Among the relationships with independent legal structures are those between the employer and employee (or a union in some instances); the local authority to regulate land use; local public health and safety requirements; rights and obligations in the event of bankruptcy of an airport user or tenant; equity and debt financing for airport capital projects; and local or state procedural requirements imposed on airport operators (e.g., laws on open records, open meetings, ethics, etc.)

While airport law may be a chimera in the eyes of legal scholars, these principles have established a discipline of law that should be recognized as a discrete legal field.

Prefacio JAIME RODRÍGUEZ-ARANA, DIEGO RAÚL GONZÁLEZ Y RAFAEL R. DICKSON MORALES Hacia fines de los años 80, la industria de la aviación civil fue escenario de una silenciosa metamorfosis jurídica. En muchos de sus aspectos la infraestructura aeronáutica mutó y dio vida a un renovado concepto de Servicio Aeroportuario, diferente al conocido hasta entonces. Ello trajo como consecuencia, el nacimiento de una nueva Relación Jurídica Aeroportuaria.

Pero, sobre todo, esta irrupción en el mundo jurídico -nacional e internacional- de la aviación civil, permitió un reordenamiento en los intereses públicos y privados que la conforman y fundamentó la aparición de un nuevo equilibrio jurídico entre los sujetos de esa relación jurídica aeroportuaria. En especial, aportó herramientas legales para incorporar el instituto de la “calidad” y la buena administración del servicio aeroportuario. Pero más interesante aún, aportó nuevos elementos para fundamentar la tutela de la Comunidad (el destino, al cual el aeropuerto sirve) y del Usuario/Consumidor, Pasajero o Turista.

Desde entonces colegas y organizaciones en Iberoamérica – y en todo el mundo- han promovido y desarrollado conferencias, cursos y seminarios acerca de la problemática jurídica del Servicio Aeroportuario y de sus infraestructuras.

Se han incorporado materias o módulos de Derecho Aeroportuario a los programas de estudio en Universidades, otorgando incluso, títulos que certifican la especialización Derecho Aeroportuario. También, en algunos países, los Colegios Profesionales han reconocido el Derecho Aeroportuario en sus Institutos de capacitación y formación profesional.

Finalmente, cada vez más despachos jurídicos promocionan sus servicios jurídicos especializados en Derecho Aeroportuario.

El desafío pasa entonces por consolidar y hacer crecer aún más todo aquello realizado en estos últimos 25 años. Por seguir poniendo en crisis la legitimidad y aplicación de muchos de los paradigmas y principios del

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Jaime Rodríguez-Arana, Diego Raúl González y Rafael R. Dickson Morales

Derecho Aeronáutico tradicional con los cuales abordó históricamente el Aeropuerto y el Servicio Aeroportuario y, aún hoy, se aplican.

Ello así, no meramente con una perspectiva docente, de capacitación o mejora institucional. Lo hacemos convencidos, además, de que la visión moderna de la abogacía requiere ampliar el ámbito de acción para el ejercicio profesional y extenderla a toda la materia jurídica involucrada en la aviación civil, en el ámbito del derecho público y privado, interno e internacional.

Esta visión pone un zoom; procura multiplicar las oportunidades profesionales para quienes quieran asesorar, regular, legislar, litigar, juzgar o estudiar cualquier circunstancia o eventualidad -y su correlato jurídico-, que suceda en curso de un viaje aéreo, desde su contratación, durante su ejecución en el aeropuerto o durante el viaje aéreo.

Por todo ello pensamos este libro.

Gracias a Tirant Lo Blanch México por acompañarnos en el desafío de ser la primera editorial en llevar al mercado esta primera obra colectiva en la materia.

Gracias a cada uno de los autores que han dedicado su tiempo, su pasión, su vocación y amor por la aviación civil y el derecho, para que esta obra sea posible y tenga el altísimo prestigio editorial que no tengo dudas ha alcanzado.

Gracias finalmente, a todos los que tengan este libro, este tesoro, en su biblioteca, pues estarán atesorando una forma mágica de conectarnos, siempre, cada vez que lo abran, lo acomoden o simplemente lo vean, aunque no lo estén mirando. Estaremos allí. Porque lo que importa en la vida del autor y el lector es eso, estar juntos.