Wilkins Review Report

The Australian Federal Police (AFP) welcomes today’s release of the Wilkins Review report into the AFP response to the incident at Sydney Airport on 22 March 2009.

The report supports the AFP’s view that its response to the incident in Sydney Airport's Terminal 3 was timely and adequate.

The AFP agrees with the findings of the report that the AFP’s response was in accordance with existing standards and that additional local procedures should be put in place.

The AFP is committed to working closely with aviation industry partners, New South Wales Police and the Office of Transport Security to implement the review’s recommendations.

The Minister for Home Affairs has asked the AFP Commissioner to report on the progress of implementing these recommendations by 30 June.

Further information about the AFP’s role in airport security can be found below.

Details of the report can be located at www.ag.gov.au.

Background: The AFP’s role at Airports

The Australian Federal Police (AFP) has maintained a presence at major airports since 2004 when integration occurred between the Australian Protective Service (APS) and the AFP. Prior to integration, the APS performed airport security functions, commencing around 1990.

In response to the Wheeler Review in 2005, and the subsequent Council of Australian Governments (COAG) endorsement of Wheeler’s recommendations in September 2005, the AFP moved to the Unified Policing Model (UPM).

The UPM enhances airport security by providing a uniform presence at 11 major Australian airports. The model incorporates terrorist and major crime deterrence and response capabilities, community policing, investigations, and intelligence gathering.

The AFP works closely with state and territory police services, Commonwealth agencies such as the Office of Transport Security, airport operators and airlines to coordinate preventative and response action against terrorist and other criminal threats to Australian aviation safety and security.

At all 11 major airports, both counter-terrorism and uniform AFP officers maintain a high visibility presence and conduct regular patrols of the airport environs, both airside and landside. Typically these areas include, but are not limited to:

• arrivals areas
• departures areas
• car parks
• airport aprons
• airport perimeters
• check-in areas.

AFP mobile patrols move through a range of locations at all airports and are not restricted to one static location. Movement through the airport ensures a high visibility rapid response as well as a deterrence capability.

In November 2008, all state and territory police jurisdictions renewed their commitment to providing the full complement of 328 Airport Uniform Police (AUP) members at the 11 major airports. The AFP continues to work in close collaboration with state and territory police jurisdictions in support of and towards achieving COAG endorsed recommendations regarding UPM resourcing levels.

There are in excess of 130 jurisdictional police scheduled to undergo AUP pre-deployment training in 2009. By the end of 2009 it is anticipated the full complement of AUP numbers will be in place.

The following UPM functions are provided at Australia’s 11 major airports:

• Airport Police Commanders demonstrate overall responsibility for the day-to-day delivery of policing and related aviation security outcomes.
• Airport Uniform Police (AUP) personnel are comprised of seconded jurisdictional police officers, engaged by the AFP to provide an immediate policing response to incidents at airports.
• Counter Terrorist First Response (CTFR) is performed by AFP Protective Service Officers (PSO), providing a flexible, proactive deterrent and first-response capability to potential acts of terrorism. The capability includes Firearms and Explosives Detection Canines and Bomb Appraisal Officers.
• Joint Airport Investigation Teams (JAIT) are established in Sydney, Melbourne, Brisbane, Adelaide and Perth with a charter to investigate serious and organised criminal activity in the aviation environment. JAIT’s comprise AFP, seconded state and territory police and Australian Customs and Border Protection officers
• Joint Airport Intelligence Group (JAIG) comprise AFP, seconded state and territory police and Australian Customs and Border Protection officers enabling intelligence-led responses to security and criminal threats in the aviation sector.
• Police Aviation Liaison Officers (PALO) provide liaison and coordination activities on behalf of APCs and engage aviation industry stakeholders as required.
• Regional Rapid Deployment Teams (RRDT) are based at Brisbane, Melbourne, Perth and Sydney airports and can deploy to regional airports throughout Australia, providing active deterrence against terrorist threats and a counter-terrorism first-response capacity.

Air Security Officers (ASO)

Australia's ASOs provide an in-flight preventative and response capability.

In August 2008, the ASO program adopted a CSIRO-developed risk assessment model (RAM) to deploy ASOs according to risk criteria attached to certain flights.

The model allows the program to target flight sectors of highest risk and has brought greater efficiency to the deployment schedule.

The ASO program has been reviewed internally and externally on a number of occasions in the last two years to ensure it remains effective and is meeting its objectives.

General information

The number of AFP resources assigned to duties within the ambit of the UPM varies depending on local requirements, such as airport operation hours, peak activity periods, geography of any airport and risk factors.

This financial year to date, the AFP has responded to more than 23,000 incidents at the 11 major airports.

The AFP’s response to incidents depends on the type of incident occurring, the seriousness of the incident and the location of the incident. Not all incidents occurring within the airport precinct require AFP assistance and/or response, for example medical emergencies.

The AFP is notified and responds to incidents by a variety of means including proactive patrols, duress alarms, direct notification by stakeholders or members of the public via dedicated communication avenues.

Emergency ‘000’ calls within a state or territory are directed to state and territory based ‘000’ call centres and state emergency services. State police communication centres, where advised of emergency incidents at the 11 major airports, will then contact the AFP.

The airline, through the captain of an aircraft, is responsible for notifying the AFP of on-board incidents. Depending on the circumstances surrounding any on-board incident, the AFP may either meet the passengers as they disembark or board the aircraft on landing.

Frequently Asked Questions

How many AFP officers were at Sydney Airport on 22 March?

• On Sunday 22 March 2009 there were 22 AFP members on duty at Sydney airport. This roster was a full shift contingent, made up of a mix of counter-terrorism officers and uniform police. As per standard arrangements, the shift roster comprised mainly of counter-terrorism officers.

How many officers at Sydney Airport are NSW Police?

• There are 58 AUP NSW Police members seconded to Sydney Airport.
• NSW Police has, since inception, readily provided the agreed number of police to staff the Airport Uniform Police component at Sydney Airport.
• The number of AFP members at Sydney Kingsford Smith Airport has remained consistent since the introduction of the Unified Policing Model in 2006.
• The AFP looks forward to continuing this relationship with NSW Police to ensure the safety of the airport.

Who determines how many uniformed police officers should be stationed at the airport?

• Airport police staffing levels are determined under the Aviation Unified Policing Model through agreement between the AFP and state and territory policing jurisdictions. These numbers were endorsed by COAG in November 2008.

Are there enough AFP officers stationed at Sydney Airport?

• There was a full complement of officers working at Sydney Airport on the day of the incident, double the number that would have been on duty prior to the implementation of the Wheeler Review recommendations.
• The report on the incident does not recommend additional numbers but suggests that deployment arrangements should be regularly reviewed. 

Who should respond to this type of incident, state police or the AFP protecting the airport?

• The protocol in relation to a response at Sydney Kingsford Smith Airport is outlined in the Memorandum of Understanding between the AFP and New South Wales Police for Cooperation in Relation to Incident Response, Crime and Security Issues at Sydney Kingsford Smith Airport (Sydney Airport).
• The response to this incident was consistent with the terms of the MOU.
• Decisions in relation to response arrangements are determined by the scale, nature and risk of reported incidents. This may include joint response arrangements for certain types of incidents.
• The AFP role is to provide an initial response to serious crime and emergencies within the airport domain. The AFP is then required to provide assistance to NSW Police, which has lead responsibility for the investigation of more serious state offences.

Have there been previous complaints about policing levels within Sydney Airport’s Terminal 3?

• Airlines based at Sydney Airport, the Airport itself, and the AFP, have an excellent relationship and, through the course of normal business, have ongoing dialogue about deployment of uniform members at airports.
• Within airport terminals, AFP patrols focus on peak passenger periods and interaction with the public at screening points, check-in counters and gate lounges.
• Uniform personnel also patrol expansive open spaces surrounding terminal environments where threats and vulnerabilities exist.
• This approach provides maximum operational capability and flexibility within the airport environment.

Is there a shortfall of police at airports nationally? What is the agreed number of police to staff Australian airports and what is the current staff number?

• The agreed number of AUP staff is 328.
• As of May 2009, AUP numbers in station or training are currently at 257.
• This is 71 (22 %) short of the COAG-agreed number of 328 across Australia
• There are in excess of 130 jurisdictional police scheduled to undergo AUP pre-deployment training in 2009. By the end of 2009 it is anticipated the full complement of AUP numbers will be in place.
• The AFP is working cooperatively with all state and territory jurisdictions to meet the full complement of 328 police by the end of 2009.

Does this show that the Wheeler Review Recommendations haven’t been fully implemented?

• Wheeler’s recommendation to establish a Unified Policing Model (UPM) has been fully implemented. A UPM arrangement is existent at all 11 major airports.

There have been reports that there is a 35% shortfall in police numbers at Australian airports, including Sydney Airport. Did this contribute to the outcome of this incident?

• While there is an overall shortfall of 22% of uniformed police at airports nationally, this is not the case in Sydney.
• Sydney Airport is at agreed strength and there was a full complement of officers working at Sydney Airport on the day of the incident.

What powers do Protective Security Officers at airports have?

• The Counter-Terrorism First Response (CTFR) capability at airports is provided by AFP Protective Service Officers (PSO) who are tasked with counter-terrorist functions at 11 major airports as designated under the Aviation Transport Security Regulations 2005.
• PSOs primarily undertake proactive counter-terrorism activities designed to deter and prevent terrorism at the 11 major airports.
• PSOs have the powers required to perform the legislated functions and obligations under the UPM.
• Under the Australian Federal Police Act (1979), PSO powers are exercisable with respect to protective service offences. Additional powers are available under the Commonwealth legislation.
• Critically, PSO powers are exercisable in respect of terrorist offences at airports and any other act that compromises the safety and secure operation of an airport and aircraft.
• PSO powers include:
  • powers of arrest
  • powers to search an arrested person
  • powers to search a vehicle under the control of an arrested person
• Each PSO undertakes a 13 week recruit training program of which a major component is operational training including public order and incident management. It is a tactical and practical training program to equip PSOs with the necessary skills. In addition, PSOs deployed to airports undertake training specifically designed for the aviation environment.
• PSOs undertake annual recertification of their use of force training and are subject to continuous related workplace training.

Did the existence of PSOs at airports affect the response to this incident?

• AFP officers at airports do have demarcated roles, some are related to counter-terrorism and some are related to community policing.
• All officers at airports, including those that responded to this incident, had the power to make an arrest and have received extensive training on the management of public order and use of force.
• Under the arrangements between the AFP and NSW Police, the AFP’s role is one of first response to this type of incident. NSW Police has lead responsibility for the investigation.

There have been reports that air marshals have taken voluntary redundancies in 2008. Does this have an effect on aviation security?

• In August 2008, the Air Security Officer (ASO) program adopted a CSIRO-developed risk assessment model (RAM) to deploy ASOs according to risk criteria attached to certain flights.
• The ASO program’s operational capability has not been affected by voluntary redundancies taken in 2008 due to the introduction of the RAM.
• It would not be appropriate to comment further on the ASO program for operational reasons.