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Regulation Commission (SRC) has been conducting visits
under its ESARR Implementation Monitoring and Support
(ESIMS) programme. The success of the ESIMS approach has
led to close co-ordination and joint activities with the
International Civil Aviation Organisation’s (ICAO) approach to
auditing Member States for their compliance with ICAO
requirements under its Universal Safety Oversight Audit
Programme (USOAP).
ESIMS oversight is conducted in two phases, the first being
a review of compliance with the relevant ESARR documents,
which are then kept up to date as an ongoing status record.
In the second phase, a series of visits is carried out by a
EUROCONTROL audit team to perform an on-site audit of the
State’s safety oversight capability.
The first round of ESIMS visits to EUROCONTROL Member
States was completed between 2002 and the end of 2003,
the experience gained being used to strengthen the
programme for the second round, which began in June. This
revealed that there remained several outstanding regulatory
issues, says Peter Stastny, Head of the Safety Regulation Unit.
“The main problem is a serious lack of resources to monitor
and put safety systems in place. To be properly implemented,
ESARR 1 needs commitment and resources in a new area of
activity for national administrations, so progress is slow and
difficult in some cases”.
Getting the required ATM expertise within the NSA often
requires recruitment of staff from ANSPs. “This proves to be
very difficult in practice,” says Stastny. He points out that
salary levels for regulators in civil administration are up to 30
per cent lower than for similar levels in ANSPs. “So there is
very little financial incentive to move to regulation.”
He points out, however, that from the passenger’s point of
view, the fact that SMS application is still not comprehensively
implemented is unsatisfactory. “SMS has to be
working well over all of the European airspace. Passengers
can only feel really safe if all of the countries are up to
same standard.”
Another important element to safety management is the
ongoing issue of reporting operational problems that occur.
ESARR 2 requires that States set up an “occurrence reporting
and assessment scheme for ATM Safety” and that they
establish a formal reporting system. Many States are
experiencing problems doing so, however, despite the
existence of international aviation law that uses the idea of
‘Just Culture’ to protect controllers from prosecution if they
admit to mistakes while performing their tasks.
The EUROCONTROL Provisional Council therefore
recommended that the Agency sets up a task force, under
Director General Víctor M. Aguado, to look into why these
States have difficulty reporting problems. The task force
reported in November and its recommendations will be
implemented in a new safety programme. “We need a much
higher emphasis on the benefits of safety reporting,” says
Merckx. “If we want to learn from mistakes and how to avoid
them in the future, we first have to know what they were,
not to point the finger at anybody, but look at what caused
them in a scientific way.”
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Safety Management function
Managing the safety function is another important
component of the overall task of ensuring ATM safety, and the
need for good safety management is recognised in ESARR 3,
which says: “The prime responsibility for the safety of an ATM
system rests with the service provider.”
A key element of this ESARR is that it requires ATM service
providers to establish complete Safety Management Systems
(SMS) to ensure a “formalised, explicit and pro-active
approach to systematic safety management”. The SMS should
operate throughout the ATM system and supporting services
and should include a statement of safety policy that defines
the approach a State takes to managing safety.
A functional SMS also calls for the service provider to carry
out regular safety surveys, monitor safety standards and
maintain comprehensive records of actions taken. An
additional SMS task is risk assessment, to ensure that any
significant change to a system is documented.
Under the EUROCONTROL Strategic Safety Action Plan
(SSAP) implementation programme, Member States were
assessed in 2002 as to how far they had progressed in
establishing an SMS. “We found that some were doing very
well, but that others still had a long way to go,” says Merckx.
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A vision for European aviation(42)
