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New Programmes and development
To support Air Traffic Service Providers to cope with the
challenging changes in European air traffic management a
new project is being undertaken to gather best practises in
change and transition. Another initiative will focus on the
development of guidelines, methods and tools encouraging
human-centred safety management systems.
EUROCONTROL AND ACI EUROPE EXPERTISE: CONTRIBUTION TO IMPROVING AVIATION
167
JUST CULTURE
Europe needs to improve incident reporting and the sharing of lessons learnt
to achieve real progress in enhancing ATM safety. Jenny Beechener reports
ork on the eight high-priority areas identified in
the Strategic Safety Action Plan (SSAP) is well
advanced in the lead up to the 2006 completion
date. The exception, however, is incident reporting and data
sharing. Lack of compliance in this area is attributed to legal
impediments, fear of reprisals and absence of a culture within
States that encourages open and honest reporting. The
EUROCONTROL Safety Regulatory Requirement 2 (ESARR 2) that
requires States to report and assess safety occurrences has been
in place since 1999, yet compliance varies between States.
“Until you have an open reporting culture, you will never
have a true idea of what is actually happening, and until you
have an idea of what is happening, there is not a lot you can
do about it,” says Paul Wilson, Head of the EUROCONTROL
Airport Business Unit. Recognising the importance of incident
W reporting to improving safety, EUROCONTROL set up a Safety
Data Reporting & Data Flow (SAFREP) task force at the start of
2005 to address the shortcomings in this area. This group,
which included representatives from navigation service
providers, controllers associations and airline groups, put
forward its recommendations to the Provisional Council in
November for inclusion in the New European Safety
Programme, which is due to start at the end of the current
SSAP in February 2006.
“Among the task force recommendations, States’ service
providers and regulators are urged to contact their ministry of
justice and ensure the legal situation is such that the
impediments we have are no longer the case in the future,”
says Erik Merckx, Head of the EUROCONTROL Safety
Enhancement Business Unit.
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Nevertheless, the task force does not advocate legal
change, and stands by existing regulations that already
mandate incident reporting. “The regulations are clear,”
says Wilson. “Those involved in air traffic control, pilots and
vehicle drivers are legally bound to report the details of an
occurrence or an incident using one of the various
reporting schemes.”
Since July 2005, States have to comply with European
Directive 03/42 which mirrors to a large extent the content of
ESARR 2. Merckx says, “Whereas ESARR 2 is binding for
EUROCONTROL Member States, if these States decide not to
do anything, then there are very little enforcement means
that our Organisation can apply. But if States do not comply
with the EU directive, they can be taken to the European
Court”. Incident reporting has also been an ICAO requirement
since 1994. “Yet despite all the regulation in place, including
ESARR 2, a number of States still do not fully comply.”
Against this trend, Denmark took the bold step of passing a
new law in 2001 to mandate compulsory, non-punitive, strictly
confidential reporting of aviation incidents. Not only are those
people who report incidents protected from penalties and
disclosures, but breach of the non-disclosure guarantee is a
punishable offence. “Denmark is the only country to have
changed the law to this extent,” says Peter Majgard Norbjerg,
Head of Incident Investigation for Danish navigation service
provider Naviair. “In most countries there is a tendency to
punish people for unintentional behaviour.” Norbjerg says a
change of law is crucial in order to communicate a new way of
thinking and ensure trust in the system.
In the year following the law change, incident reports
increased from 15 to 980. In terms of losses of separation,
reports increased by a factor of three. This does not reflect an
increase in the number of incidents, but alerts the authorities
to possible causal factors. Naviair expanded its safety
programme to focus on procedures, technology and culture
and says reports of separation loss have started to fall.
Another country to take this route is Switzerland. A legal
　
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