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safety communications than strict enforcement of regulations. The former approach encourages constructive
dialogue, while the latter encourages concealing or ignoring the real safety problems.
Positive safety culture
4.5.30 Although compliance with safety regulations is fundamental to safety, contemporary thinking is
that much more is required. Organizations that simply comply with the minimum standards set by the
regulations are not in a good position to identify emerging safety problems.
4.5.31 An effective way to promote a safe operation is to ensure that an operator has developed a
positive safety culture. Simply put, all staff must be responsible for, and consider the impact of, safety on
everything they do. This way of thinking must be so deep-rooted that it truly becomes a “culture”. All
decisions (for example, whether by the Board of Directors, by a driver on the ramp, or by an AME) need to
consider the implications on safety.
4.5.32 A positive safety culture must be generated from the “top down”. It relies on a high degree of
trust and respect between workers and management. Workers must believe that they will be supported in
any decisions made in the interests of safety. They must also understand that intentional breaches of safety
that jeopardize operations will not be tolerated.
4.5.33 There is also a significant degree of interdependence between the safety culture and other
aspects of an SMS. A positive safety culture is essential for the effective operation of an SMS. However, the
culture of an organization is also shaped by the existence of a formal SMS. An organization should therefore
not wait until it has achieved an ideal safety culture before introducing an SMS. The culture will develop as
exposure to, and experience with, safety management increases.
Indications of a positive safety culture
4.5.34 A positive safety culture demonstrates the following attributes:
a) Senior management places strong emphasis on safety as part of the strategy of controlling risks
(i.e. minimizing losses).
b) Decision-makers and operational personnel hold a realistic view of the short- and long-term hazards
involved in the organization’s activities.
Chapter 4. Understanding Safety 4-15
c) Those in senior positions:
1) foster a climate in which there is a positive attitude towards criticisms, comments and feedback
from lower levels of the organization on safety matters;
2) do not use their influence to force their views on subordinates; and
3) implement measures to contain the consequences of identified safety deficiencies.
d) Senior management promotes a non-punitive working environment. Some organizations use the
term “just culture” instead of “non-punitive”. As discussed in 4.5.35 d), the term non-punitive does
not imply blanket immunity.
e) There is an awareness of the importance of communicating relevant safety information at all levels
of the organization (both within and with outside entities).
f) There are realistic and workable rules relating to hazards, safety and potential sources of damage.
g) Personnel are well trained and understand the consequences of unsafe acts.
h) There is a low incidence of risk-taking behaviour, and a safety ethic that discourages such
behaviour.
4.5.35 Positive safety cultures typically are:
a) Informed cultures. Management fosters a culture where people understand the hazards and risks
inherent in their areas of operation. Personnel are provided with the necessary knowledge, skills
and job experience to work safely, and they are encouraged to identify the threats to their safety and
to seek the changes necessary to overcome them.
b) Learning cultures. Learning is seen as more than a requirement for initial skills training; rather it is
valued as a lifetime process. People are encouraged to develop and apply their own skills and
knowledge to enhance organizational safety. Staff are updated on safety issues by management,
and safety reports are fed back to staff so that everyone can learn the pertinent safety lessons.
c) Reporting cultures. Managers and operational personnel freely share critical safety information
without the threat of punitive action. This is frequently referred to as creating a corporate reporting
culture. Personnel are able to report hazards or safety concerns as they become aware of them,
without fear of sanction or embarrassment.
d) Just cultures. While a non-punitive environment is fundamental for a good reporting culture, the
workforce must know and agree on what is acceptable and what is unacceptable behaviour.
Negligence or deliberate violations must not be tolerated by management (even in a non-punitive
environment). A just culture recognizes that, in certain circumstances, there may be a need for
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Safety Management Manual (SMM) 安全管理手册(32)
