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Regional engagement

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
  • Australia's international obligations under ICAO and IMO
  • ATSB operational benefit.

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.

Signing ceremony

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.

 

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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.

 
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