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Effectiveness of the check pilot system
Date issue released
Issue number
MO-2022-005-SI-01
Issue Status
Open – Safety action pending
Transport Function
Marine: Other
Issue Owner
Australian Maritime Safety Authority
Mode of Transport
Marine
Safety Issue Description

The check pilot system was ineffective in providing the Australian Maritime Safety Authority (AMSA) assurance of the competency of coastal pilots, mainly due to the inconsistent and unreliable application of assessment standards between different check pilots. Further, AMSA had not implemented a system to identify the inconsistent application of standards or the trends in assessment outcomes readily apparent in the data that it had held for many years.

Response by the Australian Maritime Safety Authority

On 25 June 2024, the Australian Maritime Safety Authority (AMSA) advised the ATSB that it would seek to improve the current check pilot system in its next review of Marine Order 54. In the short‑term, AMSA intended to develop and implement a new proficiency assessment for use by check pilots and competency-based requirements and assessment to become a check pilot.

ATSB comment

The ATSB acknowledges the safety actions proposed by AMSA, which have the potential to adequately address this safety issue. However, the ATSB remains concerned about the indefinite nature of the advised action, including the absence of a timeline. Accordingly, the ATSB issues the following safety recommendation.

Issue Status Justification

The check pilot system was ineffective in providing the Australian Maritime Safety Authority (AMSA) assurance of the competency of coastal pilots, mainly due to the inconsistent and unreliable application of assessment standards between different check pilots. Further, AMSA had not implemented a system to identify the inconsistent application of standards or the trends in assessment outcomes readily apparent in the data that it had held for many years.

Recommendation
Action number
MO-2022-005-SR-01
Organisation
Australian Maritime Safety Authority
Action date
Action Status
Released
Action description

The Australian Transport Safety Bureau recommends that the Australian Maritime Safety Authority takes safety action to identify and address factors limiting the effectiveness of its check pilot framework as a system for coastal pilot competency assurance. 

Organisation Response

Date Received
Organisation
Australian Maritime Safety Authority (AMSA)
Response Text

On 16 October 2024, AMSA advised the ATSB that it accepted the safety recommendation included in the report and proposed to take the following safety action to give effect to the recommendation: 

  • review the construct of the AMSA Form 15 (check voyage assessment checklist), including the various performance criteria and corresponding performance elements, to ensure the appropriateness of the assessment criteria
  • review the check voyage assessment methodology to ensure the process is fit-for purpose and reflects best practice in the context of coastal pilotage operations
  • implement an appropriate system to enable AMSA to identify potential inconsistencies in the application of assessment standards by AMSA-licensed check pilots, when conducting check voyage assessments on behalf of AMSA
  • review AMSA’s coastal pilot licence renewal and associated continuing professional development (CPD) and consider incorporating a simulator-based coastal pilot proficiency check (CPPC) as an additional check voyage requirement, 
    thereby providing AMSA with greater assurance about the consistent application of assessment standards by AMSA-licensed check pilots

AMSA advised that it anticipated most actions will be completed by mid-2025. Any associated regulatory amendments will be addressed as part of AMSA’s intention to review Marine Order 54 (Coastal pilotage), in accordance with the existing schedule for this review (expected completion by June 2026).

ATSB Response

The ATSB considers the safety action proposed by AMSA has the potential to adequately address the safety issue. 

After AMSA’s next update, the ATSB will reassess the status of the safety issue based on further progress in revising the check pilot system.

ATSB Response date