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providers and legislators have found diffi cult
to interpret within their respective national
judicial systems.
Adopting the right mentality
The new ESP Plus programme places the
achievement of a safety culture throughout
the ECAC area at the centre of its list of
activities. However, EUROCONTROL director
general David McMillan insists that although
implementing SMS throughout the ATM
community remains a vital element of the
safety story, it will not solely be enough to
provide adequate safety in the future SES
environment. “We need to adopt the right
mentality,” he said at the EUROCONTROL
Safety Culture Conference in Rome, in
December 2008. “An enlightened common
sense approach that goes beyond a checklist
of rules to be adhered to. We have to have organisations
where safety permeates through
to the bone and beyond. In other words, we
need a culture of safety that incites each and
every one of our colleagues to put safety
right at the top of their agendas – always.”
The Rome conference saw the launch of
the joint EUROCONTROL/Federal Aviation
Administration White Paper entitled Safety
Culture in Air Traffi c Management. This document
describes the approach that will have
to be taken if safety is to be increased to
the level required for the next generation of
ATM. It reveals that, whereas implementing
SMS will achieve a three-fold improvement
in safety by 2020, the addition of a proper
safety culture could increase this to a 10-fold
improvement by 2030. Licu is in total agreement:
“Bringing in a safety culture is essential
to bridging the gap to the safety levels
required for the SES. We can’t do it with
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regulation and compliance alone; we have
to solve the cultural problems as well.”
But what, exactly, is meant by the term
’safety culture’? The White Paper draws on a
description taken from the nuclear industry,
which describes it as “the product of individual
and group values, attitudes, competencies
and patterns of behaviour that
determine commitment to, and the style
and profi ciency of, an organisation’s health
and safety management”.
In less formal terms, a positive safety
culture is one in which staff members know
their roles with respect to safety and understand
that the organisation is committed to
it – to the extent that it is always at the top of
the agenda. Safety is discussed frequently at
all levels and can be raised by any member
of staff without fear of recrimination or even
of losing face among their peers.
The White Paper goes on to point out that
safety culture in an organisation can be positive,
neutral or negative. The negative side
can be seen when, for example, investigations
into accidents, incidents or operational errors
place blame on individual employees without
examining other potential problems. This
does not help, as Licu explains: “Getting rid
of a blame culture is central to establishing a
proper safety culture.” He applauds the acrossthe-
board recognition of the importance of
establishing a safety culture by the US Federal
Aviation Administration, the Civil Air Navigation
Services Organisation and ANSPs, all of
whom are cooperating in the task throughout
the world’s ATM network. “This has to be
done by all the stakeholders,” he concedes.
One of the biggest challenges is fi nding
a way to measure safety cultures. The diffi
culty is that they evolve over time, can take
years to change and, according to the White
Paper, require a constant push in the safety
direction to prevent a drift back to the ‘norm’.
Complacency is an ever-present threat. History
has shown that some organisations do
not learn, even after catastrophic accidents.
EUROCONTROL’s drive to implement safety
culture among ANSPs is strongly supported
by director general McMillan, who has extensive
experience in safety management in
other organisations. “I am looking forward to
attempting to de-mystify the safety culture,
and jointly fi nd ways of promoting and implementing
a common sense approach to safety,”
he told the delegates at the Rome conference.
A €1 million, four-year contract has
recently been awarded to a consortium of
EUROCONTROL, the UK’s National Air Traffi c
　
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