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The key to ensuring that the SSAP objectives are met is to
monitor the progress made by individual Member States – a
task which SSAP Programme Manager, Tony Licu, describes as
“an essential component of any programme that aims to
reach agreed targets within a given timescale”. Monitoring
not only allows a review of progress on SSAP targets, but
ensures that States, ANSPs and EUROCONTROL co-ordinate
their activities and have a common understanding of the
status of implementation.
To do this, EUROCONTROL has established a comprehensive
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mechanism for monitoring and tracking the progress made by
States on implementing the eight high-priority action areas and
associated critical milestones. This makes use of the existing
European Convergence and Implementation Plan (ECIP)
process, which describes the actions States have agreed should
be carried out in order to improve Air Traffic Management
(ATM) services. Each State monitors the implementation of ECIP
objectives using Local Convergence and Implementation Plans
(LCIPs), which are medium-term national plans for achieving the
ECIP objectives.
In June, the SSAP Group issued its first report on SSAP
implementation, focusing on progress made up to March
2005. The report builds on the findings of an independent
study commissioned by EUROCONTROL in 2002, which
looked at the overall status of ATM safety in European Civil
Aviation Conference (ECAC) States. The study revealed that
the level of maturity of ATM systems was uneven across the
41 ECAC States, and that “leadership and commitment was
lacking” in some of them.
Independent study
This led to another independent study, this time commissioned
for the SSAP Programme, which used the earlier report as its
benchmark. Based on self-assessment, this found that ATM
safety maturity has increased from around 55 per cent to 62
per cent according to the ANSPs contacted, and from 53 per
cent to 62 per cent from the national Regulators’ point of view.
The report found, for example, that since 2002 most ANSPs
had moved forwards significantly on developing safety
management organisations that were compliant with ESARRs
(EUROCONTROL Safety Regulatory Requirements). However, it
also found that many were inhibited by the practical difficulties
of creating workable reporting systems to monitor safety
performance, developing safety organisations and carrying out
internal safety assessments on the effects of any organisational
or infrastructure changes.
The picture for regulators was more mixed. On one hand
they are positive about the improvements made by their ANSPs,
while on the other many are frustrated at the slowness of their
governments to introduce the legal requirements necessary to
facilitate further progress. Regulators also complain that they
do not have sufficient staff to carry out the ATM regulation and
supervisory roles properly. According to EUROCONTROL’s SSAP
Group, this reflects the fact that there is often a lack of priority
for aviation amongst lawmakers, coupled with inadequate
financial rewards to attract the kind of talent needed to carry
out ATM regulatory work.
The level of maturity
of ATM systems was
uneven across the
41 ECAC States
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115
Another important factor behind the slow introduction of
new legislation is the apparent confusion over where the
aviation legislative environment is heading. The European
Commission, for example, has issued its Single European Sky
directives, while the European Aviation Safety Agency (EASA),
still in its formative stage, is looking to take on an
international rulemaking role, which will supersede existing
national regulations.
This, says the SSAP group, is leading many to adopt a ‘wait
and see’ approach while questions about differences between
ESARRs and European Commission legislation are resolved.
The recent SSAP report indicates that there are also worries
about the future role of EUROCONTROL. It says: “Some States
fear that the technical capability of the Commission (or
indeed EASA) with regard to ATM is inadequate to establish
appropriate regulation and to deliver sufficient support for
implementing the technical harmonisation and improvement
programmes now being implemented by EUROCONTROL.”
Significant improvements
Notwithstanding these issues, the 2004 SSAP report found
that there have been “significant improvements throughout
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A vision for European aviation(37)
