In the grand narrative of aviation development, airports are often portrayed as dazzling symbols of progress—stainless steel terminals, air-conditioned walkways, and high-tech runways humming with jet engines. But behind these glossy façades lies an invisible economy: a network of micro-operators and support industries operating in the marginal zones of airport life. Their roles are humble but vital—cleaning terminals, hauling baggage, driving airside transport, providing meals for staff, or even recycling cabin waste.
These marginal actors are frequently excluded from aviation policy and planning. Their work is deemed peripheral. Yet, their contributions sustain the rhythm of day-to-day airport operations.
As Indonesia and other emerging economies push for higher connectivity and more commercially vibrant airports, one key dilemma arises: how to integrate and empower these small-scale actors without undermining aviation safety and security.
The answer lies in mastering paradox management—a leadership and policy mindset that embraces competing priorities, especially the tension between commercialization and regulatory integrity.
The Unseen Workforce Behind Airport Operations
While the public notices aircraft and passenger services, the day-to-day functioning of an airport depends on hundreds of small roles often outsourced or subcontracted: Individuals who provide plastic wrapping services for baggage; Small firms responsible for cleaning restrooms and removing waste from aircraft cabins; Micro-businesses that deliver staff meals or maintain grounds and landscaping; Informal transport providers shuttling staff or cargo between facilities; and, Local laundry providers cleaning uniforms, linens, and protective gear.
Each of these actors exists at the periphery of the airport economy—outside the spotlight, but never outside the system. And yet, their access to formal opportunities remains limited, often constrained by regulatory rigidity, lack of accreditation, or absence of inclusionary policies.
Unlocking the Commercial Case
From a commercial standpoint, engaging marginal support industries makes sense. First, they reduce operational costs for airport authorities and concessionaires. Second, they create downstream economic activity, providing income to communities surrounding the airport. Third, they enable flexible, decentralized service delivery—a crucial asset in a volatile, fast-changing post-pandemic environment.
But tapping into this potential requires more than passive tolerance. It demands a structured, principled approach to inclusive airport governance—a rethinking of who is allowed inside the system and under what terms.
The Paradox: Inclusion vs Aviation Integrity
Airports are among the most highly regulated public spaces in any country. Civil aviation authorities mandate strict access protocols, staff screening, and training. Any failure—no matter how minor—can compromise lives and reputations.
Thus, the paradox becomes clear:
On one hand, airports want to diversify service providers, support local economic development, and maximize non-aeronautical revenues.
On the other, they must enforce rigid safety, security, and compliance systems that often disqualify or deter small actors.
This is not an either–or decision. It is a management challenge—requiring intelligent systems that allow participation without diluting accountability.
Building Systems of Trust and Control
To navigate this paradox, airports and regulators must design inclusion, not merely allow it. That means creating clear, risk-based protocols for engaging marginal industries.
- Tiered Accreditation Frameworks
Small-scale operators can be divided into classes based on the criticality of their functions.
Class A: Direct airside access (e.g., baggage handlers, fuel support)—highest training and control requirements.
Class B: Terminal-based operations (e.g., janitorial services, staff catering)—moderate compliance standards.
Class C: Non-sensitive services (e.g., landscaping, laundry, waste collection)—minimal risk but still tracked.
- Mandatory Safety and Ethics Training
Provide simplified, multilingual training for marginal actors. Use mobile platforms for modules on hygiene, conflict resolution, and emergency procedures. Certification can be stored in a digital ID system.
- Access and Identification Technologies
Even low-capacity operators must carry verified credentials. Issue tier-specific RFID badges, GPS-tagged entry logs, and automated time logs to monitor presence and prevent misuse.
- Performance Monitoring and Feedback
Create feedback loops: inspections, mystery audits, and performance ratings. Share reports with both vendors and oversight units, using data to trigger support—not just penalties.
- Collective Licensing Through Cooperatives
To overcome scale limitations, encourage micro-operators to form cooperatives or clusters that hold joint licenses. These entities can receive coaching, apply for funding, and sign standardized contracts with the airport.
From Risk to Resilience: Why Marginal Inclusion Matters
Marginal actors are not liabilities. When included properly, they strengthen airport resilience in several ways:
Labor Redundancy: During workforce disruptions or strikes, having decentralized, trained micro-actors allows continuity of essential services.
Localized Procurement: Reliance on national vendors for small services inflates cost and complexity. Local providers cut lead time and support community relations.
Crisis Adaptation: Informal actors often demonstrate faster adaptability during emergencies—providing improvised logistics, alternate food supply, or on-demand workforce.
Moreover, a socially integrated airport enhances public trust. It is no longer an “aerotropolis for the few,” but a shared civic space with public purpose.
Reimagining Airport Governance
To institutionalize marginal actor engagement, airports must embrace new forms of governance:
Dedicated Inclusion Units: Create internal offices responsible for onboarding, training, and mentoring small vendors. Staff these units with personnel who understand both aviation systems and local economies.
Transparent Vendor Portals: Launch digital platforms where micro-providers can register, view opportunities, and apply for permits. Simplify bidding processes and remove unnecessary legal barriers.
Flexible Contracting Models: Move away from large, multi-year outsourcing contracts that exclude small players. Allow modular contracts, even on a seasonal or task-based basis.
Stakeholder Dialogues: Hold regular community forums with airport managers, local leaders, vendor associations, and regulators to share concerns and co-create solutions.
Measuring Progress: Key Performance Indicators
To evaluate success in empowering marginal support industries, airports can track:
Vendor Diversity Ratios: Percentage of contracts held by SMEs or micro-enterprises.
Training Coverage: Number of active marginal actors completing safety and compliance modules.
Revenue Distribution: Share of non-aeronautical revenues flowing to local or micro-scale vendors.
Compliance Scorecards: Safety or security incident rates involving marginal actors, benchmarked annually.
Community Spillover Effects: Indicators such as job creation, income growth, and female or youth participation.
These KPIs should be part of the airport’s public accountability reports—not buried under procurement audits.
Real Examples of Scalable Innovation
Across the world, forward-thinking airports have shown that engaging marginal actors works—when done properly.
For instance, instead of outsourcing all cleaning to national firms, some airports now accredit local cleaning cooperatives, providing them with training and rotation schedules. Others engage youth collectives to handle digital signage, customer navigation, or wheelchair assistance.
Micro-transport providers have been enlisted for staff shuttles using GPS-tracked vans, while local food vendors have been allowed to operate temporary kiosks near employee lounges—with safety inspections and capped pricing.
The success of such initiatives lies in design, not chance.
Policy Recommendations for Indonesia’s Aviation Strategy
To institutionalize inclusive growth in the aviation sector, Indonesia’s policy roadmap can consider:
- Establishing a National Airport Inclusion Framework, with guidelines for marginal sector engagement, training modules, and performance standards.
- Requiring All Public Airports to Report Inclusion KPIs, as part of their annual performance metrics—just like passenger traffic or cargo volume.
- Creating Public–Private Partnership Models where large contractors are incentivized to sub-contract or mentor micro-operators.
- Launching Pilot Programs in Select Airports with national government funding for training, vendor digitization, and cooperative formation.
- Developing a National Registry of Accredited Micro-Vendors, linked with airport security clearance systems, to streamline identification and access.
Closing: Inclusion as a Strategic Imperative
As Indonesia builds new airports, expands domestic connectivity, and seeks global competitiveness, the challenge is not just technical—it is social, institutional, and economic.
Aviation must no longer be viewed as a closed system of elite actors. It is a public good—intertwined with labor, community, and the informal economy. By engaging the marginal, we create value—not just for airports, but for the nation.
We must stop viewing safety and commercialism as mutually exclusive. Instead, we must treat paradox as a design challenge. In doing so, we build airports that are not just gateways—but engines of equity, resilience, and intelligent inclusion.
Let us rise above the runway lights and build an aviation future that includes everyone—safely, securely, and sustainably.
