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b) ensure that remedial actions necessary to mitigate the risks/hazards are implemented; and
c) provide for continuous monitoring and regular assessment of the safety level achieved.
1.4.6 An organization’s SMS accepted by the State shall also clearly define lines of safety
accountability, including a direct accountability for safety on the part of senior management.
1.4.7 ICAO provides specialized guidance material, including this manual on safety management, for
the fulfilment of the SARPs. This manual includes a conceptual framework for managing safety and
establishing an SMS as well as some of the systemic processes and activities used to meet the objectives of
a State’s safety programme.
Acceptable level of safety
1.4.8 In any system, it is necessary to set and measure performance outcomes in order to determine
whether the system is operating in accordance with expectations, and to identify where action may be
required to enhance performance levels to meet these expectations.
1.4.9 The introduction of the concept of acceptable level of safety responds to the need to complement
the prevailing approach to the management of safety based upon regulatory compliance, with a
performance-based approach. Acceptable level of safety expresses the safety goals (or expectations) of an
oversight authority, an operator or a service provider. From the perspective of the relationship between
oversight authorities and operators/service providers, it provides an objective in terms of the safety
performance operators/service providers should achieve while conducting their core business functions, as a
minimum acceptable to the oversight authority. It is a reference against which the oversight authority can
measure safety performance. In determining an acceptable level of safety, it is necessary to consider such
factors as the level of risk that applies, the cost/benefits of improvements to the system, and public
expectations on the safety of the aviation industry.
1.4.10 In practice, the concept of acceptable level of safety is expressed by two measures/metrics
(safety performance indicators and safety performance targets) and implemented through various safety
requirements. The following explains the use of these terms in this manual:
• Safety performance indicators are a measure of the safety performance of an aviation
organization or a sector of the industry. Safety indicators should be easy to measure and be linked
to the major components of a State’s safety programme, or an operator’s/service provider’s SMS.
Safety indicators will therefore differ between segments of the aviation industry, such as aircraft
operators, aerodrome operators or ATS providers.
• Safety performance targets (sometimes referred to as goals or objectives) are determined by
considering what safety performance levels are desirable and realistic for individual operators/
service providers. Safety targets should be measurable, acceptable to stakeholders, and consistent
with the State’s safety programme.
• Safety requirements are needed to achieve the safety performance indicators and safety
performance targets. They include the operational procedures, technology, systems and
programmes to which measures of reliability, availability, performance and/or accuracy can be
specified. An example of a safety requirement is deployment of a radar system in the State’s three
busiest airports within the next 12 months, with a 98 per cent availability of critical equipment.
1-4 Safety Management Manual (SMM)
1.4.11 A range of different safety performance indicators and targets will provide a better insight of the
acceptable level of safety of an aviation organization or a sector of the industry than the use of a single
indicator or target.
1.4.12 The relationship between acceptable level of safety, safety performance indicators, safety
performance targets and safety requirements is as follows: acceptable level of safety is the overarching
concept; safety performance indicators are the measures/metrics used to determine if the acceptable level
of safety has been achieved; safety performance targets are the quantified objectives pertinent to the
acceptable level of safety; and safety requirements are the tools or means required to achieve the safety
targets. This manual focuses primarily on safety requirements, i.e. the means to achieve acceptable levels
of safety.
1.4.13 Safety indicators and safety targets may be different (for example, the safety indicator is
0.5 fatal accidents per 100 000 hours for airline operators, and the safety target is a 40 per cent reduction in
fatal accident rate for airline operations), or they may be the same (for example, the safety indicator is
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