International Civil Aviation Organization HLSC/15-WP/17 10/12/14 WORKING PAPER SECOND HIGH-LEV VEL SAFETY CONFERENCE 2015 (HLSC 2015) PLANNIN G FOR GLOBAL AVIATION SAFETY IMPROVEMENT Montréal, 2 to 5 February 2015 Theme 1: Reviewing the current situation Topic 1..1: Achievements and remaining work REGIONAL AVIATION SAFETY GROUP ASIA/PACIFIC (RASG-APAC) (Presented by the RASG-APAC Chairperson) SUMMARY This working paper presents the establishment of RASG-APAC, its organizational structure and work arrangement, activities and deliverables, as welll as its challenges and strategy for success. Action: The conference is invited to: a) note the progress of the RASG-APAC; and b) support the work of the RASG-APAC by contributing to safety-related APAC Region. activities in the 1. INTRODUCTION 1.1 The Regional Aviation Safety Group Asia/Pacific (RASG-APAC) was established further to the ICAO Council Directive (190th Session of the ICAO Council, 25 May 2010) and the direction by the Asia Pacific Directors General of Civil Aviation (DGCA) Conference held in New Caledoniaa in 2011. The main objectives of the RASG-APAC are to support the establishment and operation of a performance-based safety system in the APAC Region and the implementation of the Global Aviation Safety Plan (GASP). Its mission is to enhance civil aviation safety in the APAC Region by ensuring effective coordinationn and cooperation between all aviation stakeholders and monitoring progress in the implementation of the GASP. 1.2 The current RASG-APAC the RASG-APAC has established the following subsidiary bodies: a) the APAC Regional Aviation Safety Team (APRAST), the working arm of organizational structure is at Appendix A. In order to conduct and manage its activities, RASG-APAC to support the RASG in the development, implementationn and monitoring of safety enhancement initiatives (SEIs) and detailed implementation plans (DIPs) related to the identified focus areas (FAs), as well as emerging risks as identified by various means by the RASG-APAC members. APRAST is co-chaired by State and industry, and meets twice a year; (11 pages) HLSC.2015.WP.017.en.docx
HLSC/15-WP/17-2 - b) the Asia Pacific Safety Reporting and Programme Working Group (AP-SRP WG) assisted by the Information Analysis Team (IAT) is responsible to gather safety information from different available sources to determine the main aviation safety risks and FA in the APAC Region and compile the APAC annual safety reports (APAC-ASR); c) the Asia Pacific Accident Investigation Group (APAC-AIG) is responsible for assisting APAC States in enhancing the level of effective implementation of Annex 13 Aircraft Accident and Incident Investigation; and d) the Safety Enhancement Initiatives Working Group (SEI-WG) to assist in the development, implementation and review of SEIs to reduce aviation risks. 1.3 The RASG-APAC membership includes representatives from States within the area of accreditation of the ICAO APAC Regional Office. The aircraft operators, international organizations, maintenance and repair organizations, regional organizations, training organizations, aircraft manufactures, airport and air navigation service providers and any other allied organizations/ representatives are invited to attend RASG-APAC meetings. The members and invitees serve as partners of RASG-APAC and their collaborative commitment is fundamental for the success in improving aviation safety in the region and globally. 1.4 The RASG-APAC is administered by a chairperson and a vice-chairperson elected from the Member States of the group. The term of the chairperson and vice-chairperson is three years. The ICAO APAC Regional Director serves as the secretary of the group. Currently the following serve as the chairperson and vice-chairpersons of RASG-APAC, elected at the fourth meeting of the RASG-APAC (RASG-APAC/4) held in 2014: a) Chairperson: Mr. H. M. C. Nimalsiri, Director General, Civil Aviation Authority of Sri Lanka (CAASL), Sri Lanka; and b) Vice-Chairperson: Capt. Victor Liu, Assistant Director General of Civil Aviation Department, Hong Kong, China. 1.5 The safety information presented in the APAC annual safety reports is based on the analysis and compilation of data provided by ICAO, States and partners (Federal Aviation Administration (FAA), International Air Transport Association (IATA) and Boeing). The first edition of the APAC annual safety report (issued in 2013) focussed solely on reactive information. The second edition, planned to be published by early 2015, addresses both reactive and proactive information, as well as commenting on the development of predictive information for use in future reports. 1.6 The APAC-AIG developed a Code of Conduct on Cooperation Relating to Civil Aviation Accident/Incident Investigation and a database of APAC accident/incident investigation bodies which has been developed by Bangladesh and which will be hosted by the ICAO APAC Regional Office on its website. Furthermore, the APAC-AIG has contributed to the increased regional cooperation on accident/incident investigation related activities with the expansion of the database of APAC investigation agencies to include the information on underwater search resources.
- 3 - HLSC/15-WP/17 2. DISCUSSION 2.1 Regional priorities and targets for safety, implementation progress and status 2.1.1 At the RASG-APAC/4 meeting held in Hong Kong, China from 20 to 21 November 2014, the meeting endorsed the APAC regional priorities and targets for safety developed through a tedious consultative process by APRAST. 2.1.2 The RASG-APAC endorsed version of the regional safety priorities and targets are at Appendix B, which includes the following five broad priority areas: a) reduction in operational risks; b) improvements in safety oversight and compliance; c) consistent and effective safety management systems (SMS) and State safety programmes (SSP); d) predictive risk management and advanced regulatory oversight; and e) enhanced aviation infrastructure. 2.1.3 RASG-MID regional safety priorities and targets support the collection of data for the new regional performance dashboards. The implementation progress is reflected in the regional performance dashboards that were launched in 2014. 2.2 RASG-APAC activities and initiatives to improve safety, results and future plans 2.2.1 The RASG-APAC, through its working arm APRAST, ensures the development and implementation of SEIs and DIPs to address the regional FAs and other safety issues such as addressing deficiencies in accident investigations and SSP implementation in the APAC Region. Detailed information on the SEIs and DIPs are included in the RASG-APAC reports. 2.2.2 Main RASG-APAC deliverables are: a) compilation of two APAC annual safety reports; b) establishment of the APAC regional safety priorities and targets (in line with the GASP); c) development of numerous safety tools to be used by States and industry, such as model regulations, model advisory circulars, guidance materials and training material to address controlled flight into terrain (CFIT), loss of control in flight (LOC-I) and runway safety matters; d) establishment of the foreign air operator surveillance database, a web-based application for sharing ramp inspection data among RASG-APAC safety partners; and
HLSC/15-WP/17-4 - e) in coordination with COSCAPs, hold safety seminars/workshops for States in the region aimed at providing implementation assistance on RASG initiated SEIs. 2.3 RASG-APAC challenges and strategy for success 2.3.1 The success of RASG-APAC is dependent on the commitment, participation and contributions of its members and partners from States and industries. However, the level of participation in the meetings of the RASG-APAC and its subsidiary bodies is still below expectation. Furthermore, the level of response to the ICAO APAC Regional Office State letters on RASG initiatives, in particular response to surveys is very low. Therefore, arriving at any meaningful conclusions/inputs through such surveys has been challenging. 2.3.2 It is also worth mentioning that the facilitators and champions responsible for developing all forms of safety enhancement initiatives act on a voluntary basis, spending valuable time and resources to complete the RASG-APAC approved safety tools. However, as the level of implementation of these safety initiatives at the State and industry level is extremely low, it is a strong possibility that these facilitators and champions will lose the current level of interest and dedication to RASG activities. 2.3.3 ICAO USOAP statistics indicate that twenty States in the APAC Region are below the global average of effective implementation. RASG-APAC and its subsidiary bodies take these statistics into consideration when developing implementation assistance programmes in the APAC Region. 3. CONCLUSION 3.1 The RASG-APAC is committed to enhance aviation safety in the APAC Region and support the implementation of the GASP by ensuring effective coordination and cooperation between all stakeholders, avoiding duplication of efforts, sharing of resources, and monitoring progress of GASP implementation. 3.2 The APAC Region safety priorities and targets have been developed in line with the GASP with a Strategic Safety Objective of continuous improvement of aviation safety through a progressive reduction of the number of accidents and related fatalities in the APAC Region to be in line with the global average. 3.3 The success of RASG-APAC initiatives resulting in a reduction in fatal accidents will be mainly dependent on the level of commitment by all Member States and industry to implement RASG safety enhancement initiatives. 3.4 The RASG-APAC will continue to share its experiences with other RASGs and industry partners with a view to improve aviation safety globally.
HLSC/15-WP/17 Appendix A English only APPENDIX A RASG-APAC ORGANIZATIONAL STRUCTURE
APPENDIX B HLSC/15-WP/17 Appendix B English only RASG-APAC AVIATION SAFETY PRIORITIES AND TARGETS Note: Targets that are proposed to be placed on the ICAO Regional Performance Dashboard are denoted with [RPD] 1. REDUCTION OF OPERATIONAL RISKS According to the APAC annual safety report, the percentage of global fatal accidents attributed to the APAC Region has increased from 11 per cent in 2008 to 25 per cent in 2011. The report has also identified LOC-I, CFIT and runway safety-related accidents as the main contributing factors to fatal accidents in the APAC Region, which is in line with the analysis in the GASP. Action Implement priority Safety Enhancement Initiatives (SEIs) RASG-APAC should continue its focus on the development of the current SEIs to address the priority areas of LOC-I, CFIT and runway safety. RASG-APAC should continue to provide implementation support to States and industry. States and industry should likewise accord priority to the implementation of these SEIs. Targets RASG-APAC to complete the development of currently identified priority SEIs by end 2016. States and industry to complete the implementation of all priority SEIs in RASG-APAC work programme by 2018. [RPD] Reduction in the number of fatal accidents in 2018 compared to 2014 irrespective of the volume of air traffic in the APAC Region. Metric Number of fatal accidents irrespective of the volume of air traffic in the APAC region. 2. IMPROVEMENTS TO SAFETY OVERSIGHT AND COMPLIANCE Recognizing that the APAC Region has one of the fastest air traffic growth rates and that effective safety oversight systems are crucial in ensuring high standards of safety, States should enhance their safety oversight system as a high priority. Action Enhance safety oversight systems through capacity building Capacity building is an important element to enhance safety oversight capabilities. Considering that ICAO s last comprehensive systems approach audit cycle showed that the highest lack of effective implementation (52 per cent, please see Figure 1 below) was
HLSC/15-WP/17 Appendix B B-2 in the area of CE 4 qualified personnel, programmes should be initiated to increase the number of qualified inspectors in the region. A dedicated task force should be established by APRAST to develop an action plan on capacity building. LEI (%) Figure 1 LEI by CE APAC region Action Resolve Significant Safety Concerns (SSCs) States should accord the utmostt priority to the resolution of any SSCs identified by the ICAO Universal Safety Oversight Audit Programme Continuous Monitoring Approach (USOAP CMA) programme. States with SSCs should draw on the necessary resources available, including technical assistance from other Statess and regional programmes such as COSCAPs, where necessary, to resolve thee SSCs promptly. Action Use of the IATA Operational Safety Audit (IOSA) and the IATA Standard Safety Assessment (ISSA) IOSA registered carriers have demonstratedd safety performance more than two times better than that for non-registere d operators for the period between 2008 and 2013. IOSA can be utilized as an effective tool for States to evaluate operational capability and to establish level of confidence of air operators. Airlines are encouraged to pursue IOSA registration as a means to strengthen their safety management and compliance. States should consider various options to leverage IOSA from ncluding recognition of IOSA to encouraging IOSA registration for all applicable operators. ISSA is a new safety programme, applicable to smaller operators whose aircraft or business model does not meet the eligibility criteria of IOSA. States are also encouraged to promote ISSA registration for all applicable operators. Action Use of the IATA Safety Audit forr Ground Operations (ISAGO) to improve ground safety Aircraft ground damage is a significant APAC issue and contributes to a global figure of nearly USD 4 billion annual losss in terms of damage and injury. ISAGO aims to improve safety oversight of ground service providers, promptly identify ground operation activities with higher risks and reduce the number of accidents related to ground
B-3 HLSC/15- WP/17 Appendix B operations. With these aims in mind, operators are encouraged to pursue ISAGO registration for ground service providers for enhancement in aviation safety. Targets Task force (to be formed by APRAST) to develop an action plan on capacity building by December 2015. [RPD] States to resolve any SSCs identified by the ICAO USOAP CMA programme promptly within the timeline specified in the corrective action plan and agreed to by ICAO. [RPD] States to achieve at least 60 per cent EI in USOAP CMA by 2017. Maintain at least 60 per cent of applicable APAC airlines to be IOSA certified by the end of 2017. Achieve at least 15 per cent of applicable APAC airlines to be ISSA certified by the end of 2017. Pursue at least a 50 per cent increase in ISAGO registrations by end of 2017. Metrics APAC States ICAO USOAP CMA effective implementation rate. Registration rate for IOSA and ISAGO. 3. CONSISTENT AND EFFECTIVE SAFETY MANAGEMENT SYSTEMS (SMS) AND STATE SAFETY PROGRAMMES (SSP) The growing air traffic in the APAC Region and the increasingly complex operating environment necessitate the involvement of both industry and States in ensuring high levels of safety. During the period between 2008 and 2012, 27 per cent of APAC accidents involved deficiencies in safety management while 33 per cent of the accidents in APAC involved deficiencies in regulatory oversight. Effective implementation of SMS is essential for the industry to identify hazards and resolve safety concerns. The robust implementation of the SSP also enables States to focus their safety oversight resources where they are most needed. Action Support robust implementation of SMS and SSP RASG APAC should facilitate the sharing of best practices amongst States in the region on SMS and SSP. States should accord priority to the implementation of SMS and SSP to achieve an acceptable level of safety in aviation operations. APAC COSCAPs should focus on assisting States in the implementation of SMS and SSP. Targets [RPD] Industry, particularly airlines, aviation training organizations, maintenance and repair organizations, airport operators, air navigation service providers, organizations responsible for the type design or manufacture of aircraft and aviation service providers to implement SMS by 2017.
HLSC/15-WP/17 Appendix B B-4 [RPD] States to implement the full ICAO SSP by 2022. Metrics Number of organizations that have implemented SMS as a percentage of the number of organizations required to implement SMS. Number of States that have implemented SSP. 4. PREDICTIVE RISK MANAGEMENT AND ADVANCED REGULATORY OVERSIGHT The evolution from reactive to predictive safety management and data-driven regulatory oversight systems hinges on the availability of high quality safety data. Proper risk management and oversight is also reliant on the effective investigation of accidents and incidents in order to prevent recurrence. Many APAC States have yet to fully implement ICAO Annex 13 requirements for accident investigation (53 per cent - please see Figure 2 below). AIG AWG recommendations offer guidance to States to at least meet the minimum requirements. Implementation of these recommendations would help to improve each State s capacity to effectively investigate accidents and serious incidents and should also enhance the level of reporting by States to assist in the identification of regional safety issues and trends. 100 LEI 75 50 25 30 35 31 35 27 53 40 39 0 LEG ORG PEL OPS AIR AIG ANS AGA Figure 2 LEI by area - APAC region Furthermore, APAC States often lack the resources and expertise to manage and collect data on a State level and there are currently no formal mechanisms in place that allow for the sharing and benchmarking of information at the regional level. Finally, while many air operators in APAC have flight data analysis programmes, many have yet to fully incorporate the data into their risk management decision-making and few are leveraging on the valuable information available from external data-sharing platforms such as the IATA Flight Data Exchange (FDX) or the FAA Aviation Safety Information Analysis and Sharing (ASIAS) programmes.
B-5 HLSC/15- WP/17 Appendix B Action Implementation of AIG AWG recommendations to address Annex 13 requirements States should consider it a priority to implement the APAC AIG s recommendations. Action Establish a structure for safety data collection, analysis and sharing RASG APAC should establish an action plan that facilitates the use of standardized taxonomies for data collection in the region. Standardized taxonomies, for example in the description of safety occurrences, ramp inspection outcomes and definitions of audit findings, would facilitate the benchmarking and sharing of data among States. In the longer term, RASG-APAC should put in place a structure for the collection, analysis and sharing of safety and operational data in the region in support of predictive risk management. Action Establish a mechanism for regional data collection and sharing RASG-APAC should facilitate initiatives to develop regional data collection, analysis and sharing systems, including collaboration with existing data sharing systems ASIAS and IATA FDX programmes, with support from States and industry. Targets [RPD] States to achieve at least 60 per cent EI in AIG of USOAP CMA by 2017. To develop regional mechanism for data collection, analysis and sharing by 2017. 50 per cent of APAC air operators participating in flight data sharing initiative by 2016. APAC States to provide assurance that predictive risk management is fully effective by 2027. Metrics States ICAO USOAP CMA EI rate for AIG module. 5. ENHANCED AVIATION INFRASTRUCTURE Air traffic services Sustainable growth of the international aviation system will require the introduction of advanced safety capabilities (e.g. full trajectory-based operations) that increase capacity while maintaining or enhancing operational safety margins. The long-term safety objective is intended to support a collaborative decision making environment characterized by increased automation and the integration of advanced technologies on the ground and in the air, as contained in ICAO s Aviation System Block Upgrades (ASBUs) strategy.
HLSC/15-WP/17 Appendix B B-6 Aerodrome facilities Particular attention should be paid to runway safety. Most aerodromes in the region are not certified due to lack of capacity of their respective regulatory authorities. The aerodrome and ground aids (AGA) CMA module has one of highest levels of lack of effective implementation (39 per cent, see Figure 2 above). In 2012, 13 per cent of APAC accidents included threats that were related to the malfunction or unavailability of ground based navigation aids. During the period between 2008 and 2012, 30 per cent of the accidents in APAC were runway excursions. Action Coordination with APANPIRG Support the implementation of ASBU and ensure their implementation accounts for and properly manages existing and emerging risks (i.e. approaches with vertical guidance (APV) to mitigate CFIT and runway excursion). Jointly develop the proper structures to sustain the collection and sharing of regional ATM data. Action Promotion of effective implementation of AGA RASG-APAC should promote effective implementation of AGA, with focus on runway safety programmes that support the establishment of Runway Safety Teams (RSTs) and implementation of inter-organizational SMS and collaborative decision making schemes. Targets Implement structures between RASG and APANPIRG to facilitate collection and sharing of ATM data by end 2015. [RPD] States to achieve at least 60 per cent EI in AGA of USOAP CMA by 2017. Promote runway safety through workshops and seminars at least yearly. All aerodromes in the APAC Region that are used for international operations to have RSTs by 2017. Metrics Structures in place to collect and share regional ATM data. States ICAO USOAP CMA EI rate for AGA module. Number of runway safety seminars, workshops or other events at APRAST or RASG-APAC. Number of aerodromes with RSTs in APAC Region that are used for international operations. END