Helping our neighbours
Australia's reputation for high quality and rigorous
investigations makes it uniquely placed to assist transport safety
in the Asia Pacific. Over the last 25 years Australian
investigators have assisted several of our regional neighbours
during complex investigations.
In addition to onsite investigation support, the ATSB has
provided specialist services and training in areas such as
technical analysis and human factors. This support has been
provided to countries including Indonesia, Fiji, Papua New Guinea,
the Philippines, Taiwan, Malaysia, China and Singapore.
The ATSB's current focus
through regional engagement is outlined below:
Strategic intent
The strategic intent of the ATSB's program of regional
engagement is to improve transport safety for the benefit of our
regional neighbours and the Australian travelling public.
ATSB assistance will be directed at helping our regional
neighbours strengthen their transport safety capability and to meet
their international obligations related to transport safety.
The rationale for the ATSB's regional engagement
The ATSB's commitment to
regional engagement and capability building is in line with:
Australian Government policy
The ATSB's involvement in transport safety
capability-building in the Asia Pacific region supports Australian
government policies administered in the Infrastructure and
Transport and Foreign Affairs and Trade portfolios.
As outlined in the Aviation White Paper1, "aviation safety does not stop at national
boundaries and Australia will remain a key contributor on safety in
international forums, particularly ICAO, and in our own
region." Accordingly, the Minister directed that agencies
"continue Australia's engagement in the region, established by the
Indonesia Transport Safety Assistance Package, the Strongim Gavman
Program and work in the Pacific Aviation Safety Office, to improve
regional aviation safety".
In addition, Australia has a commitment to being a good
international citizen and regional neighbour. This includes a
range of aid and capability building programs by Australian
government departments and agencies. As outlined by the
Minister for Foreign Affairs2, "Australia is committed to an aid program
that is generous, effective and in Australia's national interest -
a program that reflects Australian generosity and which enhances
Australia's reputation as a good international citizen".
As well as promoting Australia's standing in the region and
upholding our broader international obligations, it is in
Australia's best interests to work for stability, safety and
security in the countries that are our regional
neighbours.
Australia's international obligations under ICAO and
IMO
The ATSB's program of regional engagement is in line
with the philosophy and initiatives of both the International Civil
Aviation Organization (ICAO) and the International Maritime
Organization (IMO).
The ICAO framework
The very nature of ICAO rests on the notion of
international cooperation. The Chicago Convention on
International Aviation was based on the ideal of promoting
"cooperation between nations and peoples" (p. 1).
ICAO promotes cooperation between Contracting States in all
matters relating to civil aviation. There is an
acknowledgement that some ICAO States lack the resources to comply
with ICAO standards and recommended practices on their own, and
that the international community has a responsibility to assist
those States to meet acceptable standards. For example, this
approach is emphasised in Resolution A37-8 of the ICAO 37th
Assembly (October 2010), Regional cooperation and assistance to
resolve safety-related deficiencies, which (p. 13), "Urges
Contracting States to develop and further strengthen regional and
sub-regional cooperation in order to promote the highest degree of
aviation safety".
The regional assistance activities of Australian aviation
agencies, including the ATSB, are highlighted as one of the 'Safety
Assistance Success Stories' outlined in the ICAO 2011 State of
Global Aviation Safety report3.
The IMO framework
Similar to ICAO, the IMO places significant emphasis
on cooperation between States. For example, the IMO has an
extensive Technical Co-operation Programme which concentrates on
improving the ability of developing countries to help
themselves. The program concentrates on developing human
resources through maritime training and similar activities.
As outlined by the IMO Secretary-General4, "Technical co-operation is seen as one of
the most important parts of IMO's work and something that can make
a real difference in the places where it is most needed".
ATSB operational benefit
Like all ICAO Contracting States, Australia often needs to work
cooperatively with other States in order to achieve its
objectives. The ability to do this is significantly enhanced
by building good relationships with the safety investigation
agencies of other States, so that when an accident occurs the ATSB
already has effective mechanisms in place to facilitate good
communication and cooperation.
The philosophy and principles underlying the ATSB's
regional engagement
The philosophy underpinning the ATSB's regional engagement is one
of cooperation and mutual respect. This is exemplified by the
ATSB's commitment to engagement with our counterpart agencies at
all levels - from the Chief Commissioner, through the General
Managers and Managers, to investigators and other ATSB staff.
Involvement at all levels is important in order to develop
engagement that has continuity, balance and depth.
An honest approach
The ATSB carries its out regional engagement work in a way that is
unbiased, open, and accountable. The ATSB does not have an
'agenda', and works with our counterpart agencies to develop
programs that are mutually beneficial and that accord with the
policies of both Australia and the other State.
The ATSB acknowledges the experience, knowledge, and capability
that exists within other States in the region, often in spite of
their limited resources. The ATSB works cooperatively to
develop programs that take appropriate account of local conditions
and sensitivities.
Improvements that last
A key principle of the ATSB's program of regional engagement is
that, to the greatest extent possible, activities are aimed at
capability building rather than service provision. That is,
rather than 'doing things', the aim is to help our partner agencies
develop the capability to 'do those things'.
For example, wherever possible, project activities take a
'train-the-trainer' approach. This is illustrated by a
successful ITSAP project in which ATSB support enabled the
Indonesian National Transportation Safety Commission (NTSC) to
develop and present a Human Factors course run entirely by NTSC
investigators.
The type of capability building support that the ATSB is able to
provide includes advice and guidance related to:
- legislation and regulations for accident notification and
investigation related activities
- investigation function/agency structure and staffing
- investigation function/agency policy and procedures
- training for investigators and investigation support staff
- 'first responders' awareness training
There for the long haul
The ATSB's regional assistance program acknowledges that
sustainable capability building is a long term process.
Sometimes there will be quick gains, but often the results are
incremental over time. While capability building must be
guided by milestones along the way, it is also a journey where both
the ATSB and the counterpart agency commit resources in partnership
over an extended period of time.
The focus of the ATSB's regional engagement
Our immediate neighbours
The focus of the ATSB's regional engagement, like that of the
majority of Australian international assistance, is on the
Asia-Pacific region. However, a particular focus of the
ATSB's programs is the South-West Pacific, and specifically, the
countries that form the Pacific Aviation Safety Office (PASO) -
Cook Islands, Fiji, Kiribati, Nauru, Niue, Papua New Guinea, Samoa,
Solomon Islands, Tonga, Tuvalu and Vanuatu, together with Australia
and New Zealand. This is a region where Australia has
historic involvement and where, together with New Zealand, it would
be expected to provide assistance in the event of a major aviation
accident.
The individual PASO States do not have the necessary resources
to develop an aviation accident investigation capability, either as
a standalone agency, or as a functional area within their civil
aviation administration. Even developing this capability as a
regional group is a significant undertaking, given competing
demands on the States' limited resources. Nevertheless, over
time, it is possible that significant steps could be made in the
right direction, given support by Australia and other States with
the capacity to assist.
The ATSB will explore the most effective ways to support the
development of a standing investigation capability in the PASO
region. In doing this, it is working cooperatively with other
regional States that have the resources to assist, such as New
Zealand and Singapore.
Playing to strengths
In developing a program of regional engagement ATSB takes
advantage of opportunities to apply its finite resources to best
effect.
For example, the PNG Accident Investigation Commission (AIC)
already has, and continues to develop, an investigation capability
that considerably exceeds that which PNG has had in recent
times. Hence, ATSB assistance to the AIC is an example of one
of the main messages of the 2010 report, Review of the
PNG-Australia Development Cooperation Treaty5; namely, the theme of
'building on success'. As the report states, capability
building programs should "strive to back winners, to help those
doing a good job do more" and "where things are functioning,
provide resources".
The creation of the AIC as a new organisation is a once-off
opportunity to introduce and embed 'best practice' in PNG air
safety investigation. In the language of the Australian
government Independent Review of Aid Effectiveness6, there is an
opportunity to build capability by applying resources at a 'tipping
point'.
Funding
The ATSB's regional assistance program is primarily funded through
Australian Government aid programs such as the Indonesian Transport
Safety Assistance Package (ITSAP) and cooperation with Papua New
Guinea consistent with the Memorandum of Understanding on
Cooperation in the Transport Sector.
Indonesia Transport Safety Assistance Package
On March 2007, a Garuda Indonesia Boeing 737 crashed while
attempting to land at Yogyakarta airport in central Java. The
accident claimed 21 lives, with others receiving serious injuries.
Five of those who lost their lives were Australians.
This tragic accident was the start of a new initiative in which
Australian transport safety professionals are working closely with
their Indonesian counterparts to enhance safety and build
additional capacity to meet the challenges facing Indonesia.
To this end, in May 2007, the Australian Government announced the
Indonesia Transport Safety Assistance Package (ITSAP), amounting to
nearly $24 million over three years.
On 31 January 2008, the Governments of Australia and the
Republic of Indonesia signed a landmark agreement to work together
to improve Indonesia's transport safety. Mr Albanese, the
Australian Minister for Infrastructure, Transport, Regional
Services and Local Government and the Indonesian Minister for
Transportation, Jusman Syafi'i Djamal, signed a Memorandum of
Understanding on Cooperation in the Transport Sector during a
ceremony in Jakarta.
Under ITSAP, Australia has worked closely with the Government of
Indonesia to develop a package of measures to address areas
identified by Indonesia as its key transport safety priorities.
The main elements of the ATSB's contribution to ITSAP are to
deliver training and support for investigators from the ASTB's
Indonesian counterpart agency, the National Transportation Safety
Committee (NTSC). This includes the ATSB providing staff dedicated
to various capacity building projects, funding ATSB training
courses in Indonesia and Australia, and opportunities for aviation,
marine, and rail investigators to work with their ATSB counterparts
for extended periods. Support is also being provided on individual
transport safety investigations.
This cooperation between the ATSB and the NTSC is one of the key
elements in ensuring lasting transportation safety for the people
of Indonesia and foreign travellers to Indonesia.
Continuation of ITSAP
In May 2010, the Australian Government announced the ITSAP
program would be extended for a further four years, with additional
funding of $14.5 million.
In announcing the additional funding, Minister Albanese said
that the extension of the ITSAP program would build on the progress
achieved to date, as well as help in the transfer of critical
knowledge, skills and systems relating to transport safety.
Together these investments will continue improving safety standards
within our region.
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Footnotes
1. Flight Path to
the Future: National Aviation Policy White Paper.
Minister for Infrastructure, Transport, Regional Development and
Local Government. December 2009, p. 19.
2. Australia's
International Development Assistance: A Good International
Citizen. Ministerial Statement by the Minister for
Foreign Affairs. May 2010, p. iii.
3. 2011 State of
Global Aviation Safety. International Civil Aviation
Organization, December 2011, p. 32.
4. Maritime Policy
and Management - Celebrating 30 Years. IMO
Secretary-General. August 2003, p. 1.
5. Review of the
PNG-Australia Development Cooperation Treaty (1999). Report to
the PNG and Australian Governments, April 2010, p. 1.
6. Independent
Review of Aid Effectiveness. Presented to the Minister for
Foreign Affairs, April 2011, p. 14.
_______________
Related documents
Flight Path to the Future: National Aviation Policy White
Paper.
Minister for Infrastructure, Transport, Regional Development and
Local Government, December 2009.
2011 State of
Global Aviation Safety.
International Civil Aviation Organization, December 2011.
Maritime Policy
and Management - Celebrating 30 Years.
International Maritime Organization. Secretary-General. August
2003.
Australia's International Development Assistance: A Good
International Citizen.
Ministerial Statement by the Minister for Foreign Affairs, May
2010.
Independent Review of Aid Effectiveness.
Presented to the Minister for Foreign Affairs, April 2011.
Review of the PNG-Australia Development Cooperation Treaty
(1999).
Report to the PNG and Australian Governments, April 2010.
Towards an international engagement strategy - Executive
Management Team discussion paper.
Department of
Infrastructure and Transport, May 2011.
