Indonesia’s geography, consisting of over 17,000 islands, creates significant connectivity challenges. Many remote coastal and island communities remain underserved by conventional transport infrastructure. Existing ferry routes are often slow and dependent on weather conditions, while airports require land that is scarce in small islands and can be costly to build.
Amphibious aviation, or seaplane operations, offers a practical solution by enabling aircraft to land on water, thus connecting areas without runways. Despite the potential, Indonesia has yet to develop a fully integrated and sustainably managed seaplane base.
The operational model at Victoria Inner Harbour (VIH) in British Columbia, Canada, provides a practical reference for Indonesia. VIH is one of the busiest seaplane bases in the world, located in a dense urban waterfront where both air and maritime traffic operate simultaneously. Its operational success is supported by eight core elements: integrated infrastructure, multi-agency regulation, coordinated navigation systems, mixed-use traffic management, comprehensive safety and security protocols, specialised workforce development, sustainable financing, and environmental–community integration.
Infrastructure Adapted to Local Conditions
VIH operates without paved runways. Instead, water runways are defined by buoy markers and visual navigation lanes, aligned with wind patterns and tidal conditions. Modular floating docks accommodate tidal changes, and ramps allow aircraft to be moved ashore for maintenance without causing shoreline erosion.
Fuelling stations are equipped with spill-prevention systems, and infrastructure placement avoids ecologically sensitive areas. These measures reduce construction costs, minimise environmental impact, and allow quick adaptation to operational needs.
In Indonesia, this infrastructure model could be applied in coastal or inland water areas where building conventional airports is not feasible. Modular docks and floating facilities can be deployed rapidly, particularly in areas designated as priority tourism destinations such as Labuan Bajo, Raja Ampat, and Morotai.
Regulatory Coordination Across Agencies
The governance framework at VIH involves multiple agencies:
- Transport Canada – Oversees aviation safety regulations, licensing, and certification.
- Nav Canada – Manages controlled airspace, radio communication protocols, and flight corridors.
- Victoria Harbour Authority – Manages marine zoning, docking facilities, and maritime traffic.
- Canadian Coast Guard – Monitors maritime safety and supports emergency response.
- Local Government – Ensures environmental compliance and community consultation.
This structure provides a clear division of responsibilities but also ensures coordination through formal protocols.
In Indonesia, current regulatory arrangements for air and maritime operations are often fragmented, with overlapping jurisdictions between the Directorate General of Civil Aviation, the Directorate General of Sea Transportation, local port authorities, and regional governments. Establishing an integrated legal and operational framework, like VIH, would streamline processes and reduce bureaucratic delays.
Navigation and Communication Systems
VIH is in Class D controlled airspace, requiring all aircraft to maintain two-way radio communication with Nav Canada before entering or operating in the area. Pilots follow designated visual flight corridors published in the Canada Water Aerodrome Supplement, avoiding congested marine traffic areas.
Surveillance is supported by the voluntary use of Automatic Dependent Surveillance–Broadcast (ADS-B) systems, enabling real-time aircraft position tracking. Harbour watchtowers provide additional visual monitoring of operations.
Indonesia could adopt similar communication and navigation protocols for future seaplane hubs, integrating marine VHF channels with aviation frequencies. Mandatory ADS-B for commercial seaplane operations would enhance safety and provide operational data for planning and monitoring.
Integrated Management of Mixed-Use Traffic
VIH manages both marine and air traffic within a single geographic area. This is achieved through:
- Zoning – Separate areas for aircraft take-off/landing, ferry operations, anchorage zones, and no-wake zones.
- Scheduling – Slot-time systems to prevent peak congestion.
- Information Sharing – Real-time notifications of large vessel arrivals to all users.
This integrated approach reduces the risk of conflicts and operational delays.
In Indonesia, similar systems would be necessary in high-traffic tourist ports such as Labuan Bajo and Tanjung Benoa, where fishing boats, ferries, and tourist vessels already compete for space. Without formal traffic zoning and scheduling, safety risks would increase.
Safety, Security, and Quality Assurance
Safety at VIH is ensured through:
- Certification of operators under national aviation regulations.
- Mandatory pilot training specific to seaplane harbour operations.
- Regular audits by Transport Canada.
- Incident reporting and investigation by the Transportation Safety Board of Canada.
Security measures include controlled access to docks, passenger screening during peak seasons, and CCTV surveillance.
In Indonesia, adopting a Safety Management System (SMS) framework for seaplane operators and integrating port security protocols would establish a unified safety culture across both aviation and maritime operations.
Workforce Development and Training
VIH’s operations rely on a specialised workforce trained for mixed-use harbour environments. Training covers aircraft handling on water, coordination with marine traffic, emergency response, and environmental management.
Collaboration with educational institutions supports continuous skills development.
For Indonesia, a dedicated seaplane operations training programme could be developed in partnership with aviation academies and maritime vocational schools. This would create a skilled workforce capable of supporting seaplane hubs across multiple provinces, while also generating local employment.
Financial Sustainability Through Revenue Diversification
VIH operates under a public–private partnership model. Government agencies provide oversight and some infrastructure funding, while private operators manage daily operations and contribute investment capital.
Revenue streams include:
- Landing and passenger fees.
- Facility leasing to commercial tenants.
- Tourism packages combining seaplane travel with cruise services.
Diversification reduces dependency on government subsidies and stabilises income across seasonal tourism cycles.
In Indonesia, integrating seaplane services into broader tourism packages could create similar financial resilience. Bundling flights with resort stays, diving tours, or cultural experiences could enhance revenue while supporting local economies.
Environmental Management and Community Engagement
Environmental protection is integral to VIH’s operations. Measures include:
- Noise reduction procedures through low-throttle approach zones.
- Carbon offset programmes and development of electric-powered aircraft.
- Regular environmental impact audits with public reporting.
- Engagement with local communities, including Indigenous groups, during planning and operational decision-making.
In Indonesia, early engagement with coastal communities and local governments would be essential to gain acceptance for seaplane operations. Environmental safeguards should be incorporated into licensing requirements, including restrictions on operations near sensitive ecosystems.
Implementation Pathway for Indonesia
Adapting VIH’s model to Indonesia could be implemented in three phases:
- Pilot Projects
Select one or two locations as model seaplane bases, such as Labuan Bajo or Lake Toba.
Build modular water-based infrastructure with integrated marine–air traffic management.
- Regulatory Integration
Develop a harmonised regulatory framework covering aviation, maritime, and environmental aspects.
Establish clear agency roles, communication protocols, and licensing requirements.
- Network Expansion
Scale operations to connect strategic island clusters, focusing on regions with strong tourism demand or essential public service needs.
Standardise training, safety protocols, and environmental guidelines across the network.
Closing
The operational model of Victoria Inner Harbour demonstrates that seaplane bases can be integrated into busy urban and maritime environments while maintaining safety, efficiency, and environmental responsibility.
For Indonesia, adopting this model would address critical gaps in island connectivity, particularly in remote and tourism-driven regions. By focusing on modular infrastructure, coordinated regulation, integrated traffic management, workforce training, financial sustainability, and environmental safeguards, Indonesia can develop a modern and reliable seaplane network.
This is not only a matter of transport development, but also a strategic investment in regional economic integration, tourism growth, and equitable access to essential services across the archipelago.
