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Further information on collision risk models can be found in the Manual on Airspace Planning Methodology
for the Determination of Separation Minima (Doc 9689).
Safety organization
17.2.11 How an ATS centre or unit is organized for safety management will to a large extent depend
on the volume and complexity of its activities. For example, at a large centre, such as at an international
airport, there are several discrete ATS activities (en-route, terminal, arrival and departure, tower, ground,
etc.). The effectiveness of the safety decision-making processes will be largely dependent on how the
diverse interests of all the service providers are integrated into a coherent “system”.
17.2.12 The Centre Manager or Unit Chief alone will not be able to implement an SMS. In addition to
the cooperation and commitment of other managers and staff, the Centre Manager or Unit Chief will
probably depend on the guidance and assistance of a dedicated SM. In appointing an SM, management
must avoid the temptation to delegate accountability for safety to the SM rather than to all managers and
employees.
Chapter 17. Air Traffic Services (ATS) 17-5
Risk management
17.2.13 As in other aviation activities, the provision of ATS requires a risk-based approach to decisionmaking.
The same processes described elsewhere in this manual are required for reducing or eliminating
risks in the provision of ATS. Risk management requires a coherent system for identifying hazards,
assessing the risks and implementing viable measures for controlling the risks. (See Chapters 6 and 13.)
17.2.14 The Procedures for Air Navigation Services — Air Traffic Management (PANS-ATM,
Doc 4444) requires that all reports of incidents, or reports concerning the serviceability of ATS facilities and
systems (such as failures or degradation of communications, surveillance and other safety significant
systems and equipment) be systematically reviewed by the appropriate ATS authority in order to detect any
trends in the operation of such systems which may have an adverse effect on safety.
Incident reporting systems1
17.2.15 As part of an ATS SMS, a confidential voluntary incident reporting system provides one of the
best tools for hazard identification. Doc 4444 requires a formal incident reporting system for ATS personnel
to facilitate the collection of information on actual or potential safety hazards or deficiencies related to the
provision of ATS.
17.2.16 In addition to mandatory State requirements for reporting accidents and incidents, the ATS
organization may define the types of hazards, events or occurrences with risk potential that staff are
expected to report. An effective reporting system makes provision for the voluntary reporting of any situation
or condition that an employee believes poses accident potential in a blame-free, non-punitive environment.
Emergency response2
17.2.17 ATS personnel must be prepared to continue to provide services through emergency
situations, such as following an accident, a power or communication failure, loss of radar coverage, and
security threat. Emergency procedures must be in place to guide operations without further compromising
safety. The appropriate response of the unit requires a sound Emergency Response Plan (ERP).
17.2.18 The ERP should reflect a collaborative effort between management and the operational
personnel who will have to execute it, in particular the controllers. Backup procedures must be in place and
be regularly tested to ensure the continued provision of services to maintain the safe, expeditious and
orderly flow of air traffic — perhaps at a degraded level, for example, shifting to procedural control in the
event of a radar failure.
Safety investigations3
17.2.19 When an accident or serious incident occurs, competent investigators must be available to
conduct an investigation in order to:
1. Chapter 7 provides further information on the principles and operation of effective incident reporting systems.
2. See Chapter 11 for guidance on emergency response planning for dealing with an accident or a major incident with ATS
involvement.
3. See Chapter 8 for guidance on the conduct of safety investigations.
17-6 Safety Management Manual (SMM)
a) better understand the events leading up to the occurrence;
b) identify hazards and conduct risk assessments;
c) make recommendations to reduce or eliminate unacceptable risks; and
d) communicate the safety messages to the appropriate stakeholders.
17.2.20 The investigation of minor incidents, such as losses of separation, may yield evidence of
systemic hazards. For maximum effectiveness, management should focus on determining risks rather than
identifying persons to discipline. How this is done will be influenced by the safety culture of the organization.
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Safety Management Manual (SMM) 安全管理手册(130)
