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Federal Public Service Mobility and TransportBelgian Civil Aviation AuthoritySafety Plan 2010-2014

Federal Public Service Mobility and TransportBelgian Civil Aviation AuthoritySafety Plan 2010-2014

Federal Public ServiceMobility and TransportBelgian Civil Aviation Authority

2013 Update


135272_FOMV_Rap_2013_Cover_UK:Mise en page 1 20/02/14 9:33

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Belgian Safety Plan 2010-2014 � 2013 Update

Belgian Safety Plan 2010-2014

2013 Update

135272_FOMV_Rap_2013_Inter_UK:Mise en page 1 3/03/14 9:48 Page 1

2 Federal Public ServiceMobility and TransportBelgian Civil Aviation Authority

OUTLINE The present document is already the third update of the Belgian Safety Plan 2010-2014 and has been developed accord-ing to the same methodology that was used to develop previous editions.

The Belgian Safety Plan is the documented output of an evidence based, pro-active approach to safety risks. The improvement of safety is achieved by implementing actions that will best mitigate these risks.

The Belgian Safety Plan encompasses two broad areas:

– Systemic Actions (SA) designed for the further development of the Belgian Safety Programme (BSP);

– Operational Actions (OA) largely derived from the risk management system for civil aviation occurrences. A numberof risk-mitigation actions were developed in consultation with the Belgian service providers and incorporated intothis safety plan.

The status of the standing actions has been revised. An action is considered closed when the proposed deliverable isachieved.

We believe that this Plan represents an opportunity to make a difference in aviation safety. During the period of thisplan, we expect to see measurable improvements in safety performance.

Frank Durinckx,The BCAA Director-General


CONTENTS 3


CONTENTS

Outline 2

Link between the European Aviation Safety Plan (EASp) and the Belgian Safety Plan 4

Systemic Actions (SA) 5SA1: Further implementation of the Belgian Safety Programme (BSP) 5SA2: Developing Safety Performance Indicators (SPI’s) 7SA3: Developing a strategy with respect to safety training and safety promotion 8

Operational Actions (OA) 10OA1: Establishing a Belgian Aviation Wildlife Hazard Committee and drafting

a national action plan to prevent collisions with animals 10OA2: Resolving problems related to ground handling in partnership with the market sector 14OA3: Investigation of unruly passenger incidents and prosecution of unruly passengers 16OA4: Annual check of the reliability of flight controls for commercial aircraft 17OA5: Targeting of aircraft with lasers 18OA6: Implementation of the European Action Plan for the Prevention of Runway Incursions (EAPPRI) 20OA7: Implementation of a National Action Plan for Airspace Infringement Risk Reduction 22

Appendix 1: Outline of risks in the Belgian civil aviation sector 24

Appendix 2: ANS Safety Performance 25

Appendix 3: Belgian Civil Aviation Safety Policy 31



In the European aviation system, rulemaking, oversight and safety promotion activities are sharedbetween the Member States and the European Institutions. The European Aviation SafetyProgramme (EASP) describes the roles and responsibilities that each of them have while perform-ing these functions. As certain competencies have been transferred from the Member States to theEuropean Union, in order to obtain a complete picture of safety in any single State, both the EASPand the BSP needs to be considered.

EASA has published a third edition of the EASp. It covers the period between 2013 and 2016 and hasbeen developed according to the same methodology that was used to develop the previous editionsof the EASp. Therefore the main risk areas have not been changed. The third edition of the EASpexpands the initial list of safety actions proposed in the previous edition by incorporating 15 newactions.

The risks identified in the EASp are mitigated by safety actions that EASA, Eurocontrol, the EuropeanCommission, the industry and EASA Member States take on board. All the partners work together,streamline their activities and add their efforts to drive the accident rate even further down.Through this Belgian Safety Plan, the BCAA aims to contribute to the realisation of the EASp. Thealignment between the EASp and the Belgian Action Plan is shown for the relevant safety actions.

LINK BETWEEN THE EUROPEAN AVIATION SAFETY PLAN (EASP)AND THE BELGIAN SAFETY PLAN


SYSTEMIC ACTIONS (SA) 5


In the course of 2013 the BCAA has conducted asecond gap analysis for determining a newstate of affairs with regard to the further appli-cation of the BSP. The analysis was conductedby means of the ICAO Gap Analysis Tool oniSTARS. This main chapter has been reviewed inaccordance with the outcome of the last analy-sis.

� SA1: Further implementation of theBelgian Safety Programme (BSP)

a. DescriptionThe BCAA will take the following actions:

– Action SA1.1 (date: 2014): develop the legisla-tive framework for implementing and main-taining the Belgian Safety Programme;

– Action SA1.2 (date: ongoing): develop andmaintain the Belgian Civil Aviation SafetyPolicy;

– Action SA1.3 (date: ongoing): develop andmaintain the safety risk managementprocesses and procedures;

– Action SA1.4 (date: recurring yearly): managedata related to accidents, serious incidentsand reported occurrences;

– Action SA1.5 (date: recurring yearly): performthe annual risk analysis.

Expected Safety Benefit:Improvement of the Belgian safety perform-ance to enable proportionate and timely cor-rective actions to be taken, to continuouslyimprove aviation safety

Safety Performance Indicators:Timely implementation of actions and gapsas identified through the ICAO gap analysis

Safety Outcome Owner:– The BCAA Aviation Inspectorate;– The BCAA Company Approvals Directorate;– The BCAA Airspace and Airports

Directorate;– The Belgian Supervising Authority for Air

Navigation Services;– The BCAA Licensing Directorate;– The Air Accident Investigation Unit;– The BCAA Legal Affairs Department;– The BCAA General Affairs Directorate.

Alignment with EASp:Safety Actions SYS1.1, 1.7

SYSTEMIC ACTIONS (SA)



b. Progress on Actions– Action SA1.1: PARTIALLY CLOSED

A Decision of the BCAA Director-General hasalready been elaborated and implemented inthe course of January 2010. ICAO Annex 19became applicable on 14 November 2013. Thefour components of the State SafetyProgramme (SSP) framework (safety policy andobjectives, safety risk management, safetyassurance, safety promotion) have now beenelevated to the status of ICAO Standard. Mostof the ICAO Annex 19 Standards andRecommended Practices have already beenconverted into EU legislation or into nationallegislation. However the BCAA has to convertsome lacking Annex 19 Standards into theBelgian legislation. This amendment will bedone before the end of 2014.

– Action SA1.2: ONGOINGThe BCAA Safety Policy has been defined andimplemented in the course of January 2010. Afourth revision of the BCAA Safety Policy hasbeen performed in 2013. The BCAA has devel-oped and implemented a new internal con-trol system. Internal control is an integralprocess that is designed to address internalrisks and to provide reasonable assurancethat the objectives of the BCAA are beingachieved.

– Action SA1.3: ONGOINGSafety risk management processes and proce-dures have already been developed in thecourse of 2008-2010. These processes and relat-ed procedures define the responsibilities andaccountabilities of all concerned parties.In response to the EC Regulation 390/2013 lay-ing down a performance scheme for air naviga-tion services and network functions and inanticipation of the future Regulation of theEuropean Parliament and of the Council onoccurrence reporting in civil aviation imposingthe assessment of each occurrence, BCAA isrevising its current risk management processes.The aim is to improve the quality of safetyoccurrences encoded in ECCAIRS and to intro-duce validation mechanisms in order to providecorrect data for risk analysis purpose and forsafety performance review. Secondly, the con-cerned process descriptions on storage, analysisand follow-up of occurrences will be amended.To support the BCAA risk management process-es, a new version of the current request collectorlinked to the reporting address is in the processof implementation and matrixes for the stan-dardized encoding of safety occurrences inECCAIRS shall be developed.The new version ofthe request collector should be implemented by01 February 2014. The new safety risk manage-ment processes and procedures should beadapted by June 2014.

– Actions SA1.4 and SA1.5: RECURRING YEARLYThe yearly risk analysis of civil aviation occur-rences for 2012 was performed and subse-quently discussed at the BCAA safetycommittee. Aviation risks to be handled withpriority were selected and risk-mitigationactions were put in place.




� SA2: Developing Safety PerformanceIndicators (SPIs)

a. DescriptionThe BCAA has a risk management system inplace for aviation occurrences in order to deter-mine SPIs for Belgian civil aviation.

The BCAA will take the following actions:

– Action SA2.1 (date: in accordance with regula-tory requirements): systematically imple-ment SMS for the service providers inaccordance with the regulatory require-ments;

– Action SA2.2 (date: end 2014): determine SPIsat a national level in conjunction with theBelgian service providers;

– Action SA2.3 (date: end 2014): contribute tothe safety actions of the EASp with regard tothe development of SPIs.

Expected Safety Benefit:– Improvement of the monitoring of Belgian

safety performance to enable proportion-ate and timely corrective actions to be tak-en, to continuously improve aviation safety;

– Increase the safety performance of serviceproviders leading to an increase in the over-all safety performance of the Belgian avia-tion system.

Safety Performance Indicators:– SPIs established for all key safety issues in

the Belgian Safety Plan;– Number of service providers that have fully

implemented SMS before the final transi-tional dates allowed by EASA regulations.

Safety Outcome Owner:– The BCAA Aviation Inspectorate;– The BCAA Company Approvals Directorate;– The BCAA Airspace and Airports


Navigation Services;– The BCAA Licensing Directorate;– The BCAA General Affairs Directorate.

Alignment with EASp:Safety Actions SYS2.7, 2.9, 2.10, 3.1, 3.4, 3.5, 3.6,3.7, 3.16

b. Progress on Actions– Action SA2.1: systematically implement SMS

for the service providers in accordance withthe regulatory requirementsThe initial requirements will cover thedomains of flight crew licensing and air oper-ations. The organization requirements for aircrews have been published in the EuropeanRegulation EC 290/2012. Implementation ofSMS for the Approved Training Organizations(ATO), Aero-medical Centres and Operators ofFlight Synthetic Training Devices thereforebecomes mandatory from April 2014.The organization requirements for air oper-ations have been published in the EuropeanRegulation EC 965/2012. All organisationswithin the scope of this Regulation and towhich Annex III (Part-ORO) applies, need tobe fully compliant with the new manage-ment system requirements by 28 October2014. SMS is already required for ATS providers inthe European Regulation EC 1035/2011 andwithin NPA-2013-08. SMS is also required forBelgian international airports in accordancewith the Royal Decree of 15 March 1954.These requirements will be further extendedto the domains of continuous airworthiness(2015) and initial airworthiness (2017).



Extensive guidance material has alreadybeen developed by the different teams of theEuropean Strategic Safety Initiative (ESSI)and by the Safety Management InternationalCollaboration Group (SMICG) and addressesSMS principles and implementation. TheBCAA continuously encourages the imple-mentation of this material across their serv-ice providers.

– Action SA2.2: develop SPIs at a national levelin conjunction with the Belgian service provi-dersThe BCAA has already developed a number ofSPIs that are in use at national level. Theseindicators are published in this safety plan.The BCAA organizes periodic consultativemeetings with representatives of the Belgianaviation sector (Belgian Flight SafetyCommittee, Local Runway Safety Teams,ANSPs etc.) to debate on SPIs and safety lev-els in the Belgian civil aviation sector and tocommunicate the achievements related tothe Belgian Safety Plan.

– Action SA2.3: contribute to the safety actionsof the EASp with regard to the developmentof SPIsThe BCAA is an active member of theNetwork of Analysts (NoA). This voluntarypartnership between EASA and other avia-tion organizations aims to enhance aviationsafety in Europe by providing a framework forthe collaboration of safety analysis activitythroughout the European Aviation SafetyCommunity. The primary mission is toimprove aviation safety by identifying safetyrisks and bringing such risks to the attentionof the decision makers. The BCAA partici-pates in the NoA Subgroups “RiskClassification” and “Development of SPIs”.

On 29 July 2010, the Commission Regulation(EU) No 691/2010 laid down a performancescheme for air navigation services and net-work functions. This Regulation establishedthree safety key performance indicators(SKPI) for the first reference period (RP1) cov-ering 2012 till 2014. Those indicators were tobe developed jointly by the Commission, theMember States, EASA and Eurocontrol and tobe adopted by the Commission prior to RP1.This work was concluded by the publicationof the Commission Implementing Regulation(EU) No 1216/2011 of 24 November 2011, defin-ing the three SKPIs: the effectiveness of safe-ty management, the application of theseverity classification and Just Culture (seealso Annex 2: ANS Safety Performance).




� SA3: Developing a strategy withrespect to safety training and safetypromotion

a. DescriptionThe BCAA has already taken a number ofimportant steps to improve the communica-tion of information related to safety.The operational departments of the BCAA haveaccess to data related to aviation occurrencesin the ECCAIRS database and, based on thisinformation they can launch an investigationor gather additional data.The BCAA and the Accidents and IncidentsInvestigation Unit hold bimonthly meetings todiscuss accidents, incidents and occurrences.This process is in line with the concept of acci-dent prevention and helps establish potentialcauses and formulate any measures to be tak-en and safety recommendations to be made.The reports of all accidents and serious inci-dents occurring in Belgian airspace or involv-ing Belgian aircraft can be consulted on thewebsite of the Federal Public Service forMobility and Transport.The Belgian Safety Plan is communicated toboth the employees of the BCAA and theBelgian aviation sector.

The BCAA will further develop safety trainingand safety promotion through the followingactions:

– Action SA 3.1 (date: ongoing)Provide initial and recurrent training relatedto the BSP and SMS as part of the BCAAemployee training programmes;

– Action SA3.2 (date: recurring yearly)Organize or participate in safety seminars inconjunction with the Belgian commercialand general aviation sector in associationwith the Belgian Accidents and IncidentsInvestigation Unit.

Expected Safety Benefit:– Employees of the BCAA and the Accidents

and Incidents Investigation Unit are trainedand competent to perform their BSP duties;

– Safety information is communicated anddisseminated to the Belgian aviation sector.

Safety Performance Indicators:– Proportion of relevant BCAA employees

appropriately trained against their compe-tence requirements;

– Belgian aviation sector timely informed ofnew promotional material developed bythe European Commercial Aviation SafetyTeam (ECAST), the European HelicopterSafety Team (EHEST) and the EuropeanGeneral Aviation Safety Team (EGAST).

Safety Output Owner:– The Belgian Accidents and Incidents

Investigation Unit;– The BCAA General Affairs Directorate;– The BCAA Operational Directorates.

Alignment with EASp:Safety Actions SYS 2.7, HE1.3



b. Progress on Actions– Action SA3.1: ONGOING

The BCAA provided initial and recurrenttraining related to BSP and SMS as part of theBCAA employee training programmes in thecourse of 2013. The BCAA has a process inplace to identify safety management relatedtraining requirements including SSP andSMS. Training records show that personnelinvolved in SSP implementation have under-gone appropriate SSP/ SMS training.

– Action SA3.2: ONGOINGRepresentatives from the Belgian AirAccident Investigation Unit and the BCAAparticipated in a safety seminar for micro-light pilots on 16 March 2013. The topics cov-ered included the analysis of accidents, theimportance of reporting and the preventionof airspace infringements. The Belgian AirAccident Investigation Unit also organized asafety seminar on 22 April 2013 with regard tounmanned aerial vehicles and air crash inves-tigation.

The Belgian ANSP (Belgocontrol), EUROCON-TROL, the Aviation Safety Department ofDefence (ASD), the Royal Belgian Aero-cluband the BCAA developed an informationleaflet to raise awareness of the risksinvolved with Airspace Infringements and toprovide correct information in order to avoidAirspace Infringements in the BelgianAirspace. This leaflet was distributed to allflight training organisations and aero-clubs,both in Belgium and the surrounding coun-tries. It was publicised by free distributionand publication on various websites and arti-cles in aviation related magazines (see alsoOA7: Implementation of the National ActionPlan for Airspace Infringement RiskReduction).

The BCAA already supports the EuropeanStrategic Safety Initiatives (ESSI), and specifi-cally each of the three pillars: EuropeanCommercial Aviation Safety Team (ECAST),European Helicopter Safety Team (EHEST)and European General Aviation Safety Team(EGAST). The BCAA encourages the imple-mentation of the promotional materialdeveloped by ECAST, EHEST and EGAST. TheBCAA website continuously informs theBelgian aviation industry of the availability ofnew promotional material at the EASA web-site through a direct link

The Belgian CAA, the Belgian Air AccidentInvestigation Unit and other stakeholderswill organize a major safety seminar for gen-eral aviation in the autumn of 2014.


OPERATIONAL ACTIONS (OA) 11


Operational issues are mainly brought to lightby the reporting and analysis of occurrencedata. The primary focus is on commercial airtransport operations, especially those carriedout by aeroplanes.

The operational actions are designed to reducethe risks derived from the risk managementsystem for aviation occurrences. The risks to behandled were selected by the BCAA SafetyCommittee and the related corrective actionswere further developed in conjunction withthe Belgian aviation sector.

� OA1: Establishing a Belgian AviationWildlife Hazard Committee anddrafting a national action plan toprevent collisions with animals

a. DescriptionThe presence of wildlife (birds and other ani-mals) on and in the vicinity of an aerodromeposes a serious threat to aircraft operationalsafety. The majority of collisions occur at lowaltitudes, in the vicinity of an airport duringtakeoff and landing. Annex 14-certified aero-

drome operators are required to take the nec-essary actions to identify, manage and miti-gate the risk to aircraft operations posed bywildlife by adopting actions likely to minimisethe risk of collisions between wildlife and air-craft, to as low as reasonably practicable.

The appropriate authorities are required tohave in place procedures for the identificationand control of wildlife hazards on and in thevicinity of an aerodrome, and to ensure thatcompetent personnel evaluates the wildlifehazard on a continuing basis.

OPERATIONAL ACTIONS (OA)




– Action OA1.1 (date: 2011): foundation of theBelgian Aviation Wildlife Hazard Committee(BAWiHaC);

– Action OA1.2 (date: 2011): preparation of anational action plan in order to reduce risksrelated to collisions with animals;

– Action OA1.3 (date: end 2013): organization ofcourses for Bird Control Unit (BCU) person-nel;

– Action OA1.4 (date: recurring yearly):exchange of experience about specific tech-nical issues in the field of wildlife manage-ment;

– Action OA1.5 (date: end 2013): improvementof the reporting of wildlife occurrences;

– Action OA1.6: development of regulatoryactions;� Action OA1.6.1 (date: end 2013): develop-

ment of a Wildlife Management Manual;� Action OA1.6.2 (date: end 2013): develop-

ment of regional hunting legislation;� Action OA1.6.3 (date: end 2014): develop-

ment of regional land use regulations.

Expected Safety Benefit:Minimize the risk of collisions betweenwildlife (birds) and aircraft, to as low as rea-sonably practicable

Safety Performance Indicators:– Wildlife Strikes at Belgian aerodromes ;– Bird Strikes at Belgian aerodromes.

Safety Outcome Owner:The BCAA Airspace and Airports Directorate

Alignment with EASp:Safety Actions AER1.5, AER 4.5, 4.7

b. Progress on Actions– Action OA1.1: CLOSED

The BCAA established the BAWiHaC toexchange information and expertise on thesubject of wildlife strikes. Based on the guid-ance in the ICAO Airport Services ManualPart 3 (Doc 9137), the BCAA documented thepossible operation of the BAWiHaC, amongothers by performing benchmark tests andby determining the potential members.During a preparatory meeting the BAWiHaCmembers (the airport authorities of the certi-fied aerodromes, the Aviation SafetyDepartment of Defence (ASD) and the BCAAestablished the committee’s objectives andprocedures (i.e. Terms of Reference). TheBAWiHaC meets at least once a year.

– Action OA1.2: CLOSEDDuring the second meeting of the BAWiHaC,the committee’s members defined, in addi-tion to the Terms of Reference, the top priori-ties to reduce the wildlife risk in Belgium. Thisresulted in a national action plan in order toreduce risks related to collisions with ani-mals. The BAWiHaC meetings follow theintroduction of the national action plan,assure the possible amendment of the planand guarantee the exchange of information.




– Action OA1.3: PARTIALLY CLOSEDAll airports had different levels of trainingand finding good courses for BCU personnelwas not easy. Moreover, the existing courseswere focusing too much on lethal methodsand were not giving enough attention to, forexample, habitat management. Within theframework of the BAWiHaC and the collabo-ration between ASD and BCAA, personnelfrom all civil airports and the Belgian CAA areparticipating in a comprehensive in-depthcourse on Wildlife Hazard Managementorganised by ASD. In the spring of 2013 theDutch modules were finalized and the Frenchmodules will be finalized in the beginning of2014. The BCAA notes during oversight auditsthat the organisation of this course had adirect and structural impact on the compe-tence and motivation of the BCU personnel.

– Action OA1.4: CLOSEDAirport authorities need a discussion forumto exchange ideas about specific technicalissues in the field of wildlife management.The aim of exchanging experience is clearlymentioned In the BAWiHaC Terms ofReference. Therefore regular meetings wereorganized to achieve this goal. Until now,specific topics were mentioned, such as forexample grass management (especially thelong grass policy). The committee meetingsare held at different airports in order to com-bine them with a visit of the local BCU serv-ice. The BAWiHaC members invite from timeto time other aviation community players inorder to widen the scope of experience. Thediscussions within the BAWiHaC resulted in astrong and open collaboration between dif-ferent airports for BCU matters, a higher pri-ority for wildlife issues on all levels ofmanagement and a greater respect for thedaily work of the BCU teams.

– Action OA1.5: CLOSEDThe BCAA is keeping statistics on the wildlifeoccurrences reported by the airports.However it was difficult to draw clear conclu-sions from these figures. The quality of thereports was rather low and the reporting cul-ture was company dependent. The BAWiHaCmembers therefore decided to adopt sec-tions of the ICAO reporting template. Next tothis, the BCU personnel of the airports is bet-ter qualified (see action OA1.3), and the qual-ity of the reporting of the occurrencesimproved significantly. Previously, the BCAAand the airports almost never receivedreports from foreign aircraft operators. Aninstruction note by the BCAA concerning thereporting practices was distributed to all air-craft operators active in the Belgian airports.After this, different airports graduallyreceived more reports by foreign operators.As an ongoing action, the BAWiHaC mem-bers will continue to encourage wildlife riskawareness within the aviation communityand the reporting of wildlife occurrences tothe BCAA and the airports concerned.



– Action OA1.6:� Action OA1.6.1: some European countries

developed a wildlife management manual.The BCAA is not providing such a manual forthe moment. As a result of the establish-ment and the realisations of the BAWiHaC(OA1.4), the Belgian certified airports nolonger experience the same need for a BCAAmanual determining how to implementwildlife management. Additionally, it wasdetermined that a lot of very detailed anduseful international documents alreadyexist concerning wildlife hazard manage-ment on aerodromes. The project was rede-fined in order to create a document with thebest practices discussed within theBAWiHaC meetings. This document will beguidance material, taking into account theupcoming EASA regulation on aerodromes.

� Action OA1.6.2: CLOSEDRestrictions in the regional legislations forhunting can pose problems for effectivewildlife management. The BCAA supportedthe pursuit for waivers in the (Flemish)hunting decree and the species resolutionby Brussels Airport. “Agentschap Natuur enBos” issued a specific license to BrusselsAirport Company to take the appropriateaction to guarantee the safety of aeroplaneoperations. Due to the different nature oftheir operations, an additional waiver wasnot deemed necessary at the other airports.

� Action OA1.6.3: the lack of land use regula-tions for the surroundings of airports andthe unclear division of responsibilities inthe wildlife risk issue between the airportauthorities, the BCAA and the Regions needfurther attention. The State Secretary forMobility wrote a letter to the 3 regionalgovernments to draw attention to theirresponsibilities and to offer the expertiseof the BAWiHaC in this matter. Until now,no concrete action was taken by theregional governments. In the meantime,the BAWiHaC decided to start case by casebilateral negotiations when the wildlife sit-uation outside the aerodrome is a dangerfor aircraft operations. The BAWiHaC is forexample negotiating with the racingpigeon owners association. In the frame-work of the upcoming EASA regulations foraerodromes, the BCAA will also send areminder to the Regions.




� OA2: Resolving problems related toground handling in partnership withthe market sector

a. DescriptionThe risk analysis of the reported occurrenceshas demonstrated that problems related toground handling are common. This representsa broad spectrum of occurrences, e.g. incorrectloading procedures and filling up fuel withoutthe necessary authorizations, near-collisionsbetween aircraft and ground vehicles or dam-age caused to an aircraft by one such groundvehicle, etc.

The Belgian State does not currently have suf-ficiently detailed national regulations in placewith respect to ground handling.


– Action OA2.1 (date: end 2012): investigationof the handling companies in order to gatherinformation on their organizational struc-ture, activities, equipment, training coursescompleted, etc.;

– Action OA2.2 (date: publication of a circular -end 2013): approval of renewal and mainte-nance programs for centralized infrastruc-ture facilities;

– Action OA2.3: completion of the national reg-ulations for ground handling;� Action OA2.3.1 (date: July 2014): publication

of a Ministerial Decree regarding the estab-lishment of conditions for survey, mainte-nance and periodic inspection of rollingequipment used for ground handling servic-es;

� Action OA2.3.2 (date: July 2014): publicationof a Ministerial Decree regarding theapproval of maintenance programmes forequipment essential to the provision ofground handling services;

� Action OA2.3.3 (date: July 2014): publicationof a Ministerial Decree regarding the certifi-cation of ground handling service providersand self-handlers.

The implementation of the actions listedabove should result in lower risk levels as wellas in a relative decline in the number of occur-rences related to ground handling.

Expected Safety Benefit:Increased internal supervision and auditingto monitor the handling companies.

Safety Performance Indicators:– Collisions, near-collisions and conflicts

involving vehicles and taxiing aircraft atBelgian aerodromes;

– Collisions involving vehicles and parked air-craft at Belgian aerodromes.

Safety Outcome Owner:The BCAA Airspace and Airports Directorate

Alignment with EASp:Safety Actions AER5.9 and 5.10

Event Type 2009 2010 2011 2012

Collisions and near-collisionsinvolving vehicles and taxi-ing aircraft at Belgian aero-dromes

10 8 11 4

Collisions involving vehiclesand parked aircraft atBelgian aerodromes

20 36 48 53




The BCAA created a questionnaire for han-dling companies active at Brussels NationalAirport. The aim of this questionnaire was toobtain a clear view of their organization. Thisdocument has been sent to all dedicatedcompanies at the beginning of 2012. Focuswas in relation to the type of handling per-formed, a request for detailed inventories ofmaterials and equipment used for their han-dling activities and a review of certain certifi-cations, existing criteria (standards, rules)etc. Since then, the BCAA has received all nec-essary information.

– Action OA2.2: CLOSEDThe BCAA has prepared a circular whichincludes among others the criteria for theapproval of maintenance and renewal pro-grams of centralized infrastructures. This cir-cular, CIR/GH-01, has been published inMarch 2013. The Brussels Airport Company(BAC) is currently in the process of reworkingtheir maintenance and renewal programs asper criteria listed in this circular.

– Action OA2.3:� Action OA2.3.1: the BCAA has developed a

draft Ministerial Decree to list the condi-tions for survey, maintenance and periodicinspection of rolling equipment used forground handling services.

� Action OA2.3.2: the draft Ministerial Decreewhich lists the conditions for survey, main-tenance and periodic inspection of therolling equipment will also determine theconditions of maintenance requirementsfor the essential material used by theground handling companies. This draftMinisterial Decree was presented at thebeginning of June 2013 to the handling com-panies, airport users and BAC. All contactedcompanies were invited to comment to theBCAA. The BCAA is currently finalizing theMinisterial Decree based on the commentsreceived.

� Action OA2.3.3: the approval of the groundhandling service providers and self-handlerswill be based on the requirements as listedin a dedicated Ministerial Decree. The BCAAhas developed a draft Ministerial Decree tolist the criteria and procedures in order toobtain approval for providing ground han-dling services and self-handling. This draftMinisterial Decree has also been presentedat the beginning of June 2013 to the han-dling companies, airport users and BAC. Allcontacted companies were invited to com-ment to the BCAA, prior to 31 August 2013.The BCAA is currently reviewing all informa-tion received. Once the Ministerial Decree ispublished, the BCAA will review eachrequest for approval, in relation to the crite-ria and procedures mentioned in theMinisterial Decree, and will grant anapproval to ground handling serviceproviders and self-handlers when therequirements are met.




� OA3: Investigation of unrulypassenger incidents and prosecutionof unruly passengers

a. DescriptionSecurity related acts such as those performedby unruly passengers can lead to accidents asdefined by ICAO Annex 13, although someorganizations do not consider these to be acci-dents. Regardless, these events have similarconsequences in that they may result in seri-ous injury or death to person(s) and/or sub-stantial damage to the aircraft.

A certain number of occurrences are related tounruly passengers. Two-thirds of these casesrepresent occurrences related to smoking inthe lavatories of the aircraft, which is strictlyprohibited due to being a fire hazard. In addi-tion, air rage incidents are prevalent as well.


– Action OA3.1 (date: end 2011): awareness-rais-ing of all airports and aircraft operators toreport occurrences related to unruly passen-gers;

– Action OA3.2 (date: recurring yearly): system-atically investigate the occurrences involvingunruly passengers and prosecute any viola-tions administratively or through the courts;

– Action OA3.3 (date: end 2013): conduct a sur-vey among the aircraft operators in order toevaluate the current scheme of administra-tive fines and the possibility of additionalsanctions to be taken with regard to unrulypassengers.

Expected Safety Benefit:Improved investigation and prosecution ofunruly passenger incidents

Safety Performance Indicators:Unruly Passenger Occurrences;

Safety Outcome Owner:– The BCAA Aviation Inspectorate;– The BCAA Legal Affairs Department.




The airport police of Brussels NationalAirport and the BCAA have been raisingawareness of the airports and aircraft opera-tors to report all incidents regarding unrulypassengers. The report of such an incidenthowever cannot in itself lead to a prosecu-tion. This requires a more formal complaintto be filed.

– Action OA3.2: CLOSEDIn practice, cabin crew and passengers do nothave time following a flight to lodge a com-plaint and be interviewed. Therefore theyoften prefer to simply mention the incidentso that the airport police and the BCAA donot dispose of an official complaint. In orderto improve willingness to lodge complaints,the airport police at Brussels National Airporthave a form in use that victims of unruly pas-sengers can fill in. The airport police considersuch a form as a statement and this consti-tutes, together with the interrogation of theunruly passenger, the basis of a charge. Onthis basis, either the prosecutor may proceedto prosecute or the BCAA may impose anadministrative sanction. The airport policeand the BCAA Aviation Inspectorate investi-gate all findings with regard to unruly pas-sengers. Actual offences are transferred tothe relevant Crown Prosecutor. If a violation isdismissed for reasons unrelated to the con-stituent elements of the violation, the BCAAAviation Inspectorate will impose an admin-istrative fine.

– Action OA3.3:The BCAA will conduct a survey among theaircraft operators by way of the NationalAviation Security Committee before the endof 2013 in order to evaluate the currentscheme of administrative fines and the pos-sibility of additional sanctions to be takenwith regard to unruly passengers.




� OA4: Annual check of the reliabilityof flight controls for commercialaircraft

a. DescriptionThe annual risk analyses have demonstratedthat there have been technical problems relat-ed to flight controls. These analyses take intoaccount the number of flights operated byBelgian aircraft operators, thereby creating asimilar frame of reference.


– Action OA4.1 (recurring yearly): Perform adetailed annual analysis of all occurrencesrelated to flight controls for commercial air-craft in Belgium and determine annual SPIsfor identifying trends;

– Action OA4.2 (recurring yearly): Determineitems to be addressed and taking targetedactions where necessary (this includesanalysing the reliability programmes of theBelgian aircraft operators).

Expected Safety Benefit:Improvement of the flight controls reliability

Safety Performance Indicators:Flight Control Occurrences

Safety Outcome Owner:The BCAA Company Approvals Directorate

Alignment with EASp:Safety Actions AER4.6 and 4.7

b. Progress on Actions– Actions OA4.1 and OA4.2: CLOSED

There was a slight increase in the number offlight control incidents. After analysis, thisincrease can be attributed to a few specific air-craft that encountered a recurring problemwith flight controls. Since corrective actionsdid not solve the problem immediately, severalproblems repeated themselves several times,increasing the overall number of incidents.

It should be noted that a large number of flightcontrol incidents actually appear to be indicat-ing problems instead of actual flight controlproblems.Comparing the actual number of flights, andtaking into account the repetitive failures, ageneral decreasing trend in the number ofoccurrences can be observed. Reliability meet-ings with the different operators seem to con-firm this trend. The oldest aircraft typesresponsible for the majority of the occurrencescontinue to be phased out. This further renew-al of the Belgian registered fleet, as observedwithin several Belgian operators, shouldimprove the reliability of the aircraft operated.

YEAR Number of Events

2008 51

2009 53

2010 21

2011 43

2012 49



� OA5: Targeting of Aircraft with Lasers

a. DescriptionThe last four years have seen a rapid growth inthe number of reports of Belgian aircraft beingtargeted by hand held lasers. A number ofreports were received from Belgian aircraftwhen operating outside Belgium so the tablebelow has been broken down into events with-in Belgium and events outside Belgium.

Laser emitters continue to pose a significantthreat to aviation safety and security. The useof hand lasers could potentially harm aircraftoperations and require adequate countermea-sures to mitigate this threat.


– Action OA5.1 (date: end 2012): improve thecooperation between the ANSP, the FederalPolice and BCAA by developing procedures tofollow in the case of laser interference;

– Action OA5.2: (date: end 2013): complete theAviation Law of 27 June 1937 (if necessary) tomake the malicious use of lasers against air-craft and ATS personnel an offence;

– New Action OA5.3 (date: July 2014): improveguidance for aircrew reporting of unautho-rized laser illumination.

Expected Safety Benefit:Minimize the effects of laser attacks duringthe critical phases of flight

Safety Performance Indicators:Number of laser occurrences

Safety Outcome Owner:– The BCAA Aviation Inspectorate;– The BCAA Legal Affairs Department.

Within Belgium Outside Belgium

Year Number of Laser Events Year Number of

Laser Events

2009 5 2009 8

2010 80 2010 27

2011 144 2011 27

2012 207 2012 26




b. Progress on Actions– Actions OA5.1 and OA5.2: CLOSED

The Belgian ANSP and the BCAA have organ-ized preparatory meetings in order to discussthe reporting of targeting of aircraft withlasers and how to improve cooperation withthe Federal Police. The Belgian ANSP subse-quently developed internal procedures forinformation to Air Traffic Controllers andTower Supervisors on how to establish con-tact with the responsible police unit in caseof laser illumination. These procedures havebeen published in the Local Unit OperationsManuals of the Belgian international air-ports. Those overall coordination proceduresassure transparent feedback and communi-cation between the police, the Belgian ANSPand the BCAA. Several perpetrators werecaught red-handed after the application ofthe new procedures. The Belgian court suc-cessfully applied the articles of the AviationLaw of 27 June 1937 and the perpetratorswere convicted.The completion of the Aviation Law of 27June 1937 to make the malicious use of laseragainst aircraft and ANS personnel a specificoffence is therefore no longer necessary.

– Action OA5.3:The BCAA shall develop a specific template for thereporting of unauthorized laser illumination byaircrew upon arrival at destination. All aircrewthat have been affected by a laser attack will berequested to complete the specific template andto send the form to the BCAA in accordance withthe guidelines in Circular CIR/INS-01.



� OA6: Implementation of theEuropean Action Plan for thePrevention of Runway Incursions

a. DescriptionThe prevention of runway incursions is a keyissue for airport safety. The European ActionPlan for the Prevention of Runway Incursions(EAPPRI) is the result of the combined efforts ofmultiple organizations dealing with safety atairports, and its 2nd edition was published in2011. It contains recommendations to all air-port stakeholders (including regulators, airportoperators, ATC, aircraft operators, etc.). Whenimplemented, the EAPPRI recommendationswill enhance runway safety. A major recom-mendation is the organization of Local RunwaySafety Teams.


– Action OA6.1 (date: recurring yearly): ensurethat Local Runway Safety Teams are dealingwith runway safety and runway incursionsbased on local risks.

– Action OA6.2 (date: end 2014): promote therecommendations from the EAPPRI to the air-port stakeholders and verify the implemen-tation by all stakeholders (including aircraftoperators, Air Navigation Service Providersand airport operators).

Expected Safety Benefit:Enhanced runway safety

Safety Performance Indicators:– Runway Incursions by aircraft at Belgian

aerodromes;– Runway Incursions by vehicles and persons

at Belgian aerodromes;– Proportion of EAPPRI recommendations

implemented.

Safety Output Owner:– The Belgian Accidents and Incidents

Investigation Unit;– The BCAA Company Approvals Directorate;– The BCAA Airspace and Airports


Navigation Services.

Alignment with EASp:Safety Actions AER5.1, 5.2, 5.4 and 5.5





At every Belgian airport Local Runway SafetyTeams have been established, which com-prise representatives from aircraft operators,Air Navigation Service Providers, airport oper-ators and the BCAA. The BCAA is an activemember of those teams. The SMS audits per-formed by the BCAA verify their existenceand effectiveness.

– Action OA6.2:The BCAA has been promoting the EAPPRIrecommendations to all stakeholders (theaircraft operators, the Belgian Air NavigationService Provider and the airport operators).The BCAA Operations Department has pub-lished a “Notice to Aircraft Operators”, amongother things, with the request to implementthe EAPPRI recommendations.The BCAA has already started examining theimplementation of EAPPRI recommenda-tions by all stakeholders. This has been doneby sending out questionnaires and organiz-ing surveys. In addition the BCAA AirportsDepartment ensures compliance with EAP-PRI recommendations through audits on air-port operators. The Belgian Air NavigationService Provider has recently begun imple-menting EAPPRI recommendations. TheBCAA will start comparing the aircraft opera-tor, the Belgian ANSP and the airport opera-tor EAPPRI issues to identify possibleshortcomings. Specific improvements will bediscussed by the Local Runway Safety Teamsto facilitate effective implementation of EAP-PRI recommendations after taking local con-ditions into account.

The BCAA has also prepared a post-infringe-ment questionnaire for use by pilots on a vol-untary basis in order to develop a betterunderstanding of why runway incursionsoccur. In collaboration with the Belgian AirAccidents Investigation Unit, 40 question-naires have been sent to Belgian and foreignpilots between July and November 2013 and36 answers have been received in return,which for the vast majority were very positiveand constructive. The information collectedfrom completed questionnaires has beenanalyzed by the BCAA to identify whetherthere are common factors or trends associat-ed with such events. The information and itsanalysis will assist in developing a betterunderstanding of the causes of runwayincursions and will support the identificationof optimum means of preventing incursionsand their associated risks.



� OA7: Implementation of a NationalAction Plan for AirspaceInfringement Risk Reduction

a. DescriptionAirspace infringement (AI) is also referred to asunauthorized penetration of airspace and isgenerally defined as a flight into notified air-space without previously requesting andobtaining approval from the controllingauthority of that airspace in accordance withinternational and national regulations.

Since 2008 the overall number of reported inci-dents was almost constantly increasing. Theupward trend is influenced by the increasingawareness of this type of risk and encourage-ment by all stakeholders of a correct reportingculture, both with pilots and Air TrafficControllers.

The analysis of the reported incidents clearlyindicates that the majority of infringementsare committed by General Aviation VFR flights.Almost half of the aircraft involved have a non-Belgian registration.


– Action OA7.1 (date: July 2013): establish anational action plan for airspace infringe-ment risk reduction derived from theEuropean Action Plan for AirspaceInfringement Risk Reduction;

– Action OA7.2 (date: end 2014): promote andverify the implementation of the nationalaction plan for airspace infringement riskreduction.




Expected Safety Benefit:Reduced Risk of Collision

Safety Performance Indicators:– Belgian airspace infringements;– Proportion of the national action plan for

airspace infringement risk reduction imple-mented.

Safety Output Owner:– The BCAA Licensing Directorate;– The BCAA Airspace and Airports


Navigation Services;

Alignment with EASp:Safety Actions AER2.1, 2.8, 2.9 and GA1.5




The BCAA has established the BelgianAirspace Infringement Reduction Plan(B/AIRP) for airspace infringement risk reduc-tion in accordance with the guidelines stipu-lated in the European Action Plan forAirspace Infringement Risk Reduction. TheB/AIRP focuses on General Aviation VFR pilotsto encourage them to avoid committing air-space infringements and raising awarenessof the risks involved. The B/AIRP encouragesthe composition of a VFR-guide and the fos-tering of the (correct) use of emerging tech-nologies (GPS, tablet etc.) as an add-on forsuccessful navigation and the possible sim-plification of the Belgian airspace amongstother things.The BCAA also supports the evolutiontowards a voluntary reporting culture, for thebenefit of learning from each other’s experi-ences and mistakes.

– Action OA7.2: PARTIALLY CLOSEDThe BCAA has started with the promotionand implementation of the Belgian actionplan for airspace infringement risk reduction(B/AIRP).

The Belgian ANSP (Belgocontrol), EUROCON-TROL, the Aviation Safety Department ofDefence (ASD), the Royal Belgian Aero-club andthe BCAA has drawn up an information leaflet,to raise awareness of the risks involved withAirspace Infringements in general and to pro-vide correct information in order to avoidAirspace Infringements in the Belgian Airspace.This leaflet was distributed to all approvedtraining organisations and aero-clubs, both inBelgium and the surrounding countries (UK,France, Holland, Germany and Luxemburg).Attention was drawn to it by free distributionand publication on various websites and arti-cles in aviation related magazines.

The BCAA has also prepared a post-infringe-ment questionnaire for use by pilots on a vol-untary basis in order to develop a betterunderstanding of why airspace infringe-ments occur. The questionnaire will be madeavailable through the website of the FederalPublic Service Mobility and Transport. Theinformation collected from completed ques-tionnaires will be analyzed by the BCAA toidentify whether there are common factors ortrends associated with such events. The infor-mation and its analysis will assist in develop-ing a better understanding of the causes ofairspace infringements and will support theidentification of optimum means of prevent-ing infringements and their associated risks.

The other actions of the B/AIRP consist of anin-depth analysis of airspace infringementoccurrences, the publication of a secondinformation leaflet, the composition of a VFR-guide for the Belgian Airspace and the prepa-ration of a briefing package for generalaviation pilots. Long-term actions include apossible simplification of the Belgian air-space.


APPENDIX 1: OUTLINE OF RISKS IN THE BELGIAN CIVIL AVIATION SECTOR 27


The risk management performed by theBelgian State relates to any occurrences occur-ring on Belgian territory and in Belgian air-space. In addition, occurrences occurring onforeign territory and foreign airspace involvingBelgian aircraft operators are also included.The various aspects of aviation are considered,including aircraft, companies operating in theaviation sector, air traffic control services, air-ports, ground equipment, etc.

Any occurrences reported are entered in theECCAIRS database, which was created by theEuropean Union in 2003 for the implementa-tion of the European Directives related toreporting aviation occurrences. The main safe-ty risks can be deduced from the analysis ofthese occurrences, and the priorities to be setby the management in view of accident pre-vention can be determined.

The BCAA risk management system for avia-tion occurrences is based on the DynamicIntegrated Risk Management (DIRM) model.The BCAA risk management system isdescribed in the Risk Management ProceduresManual with reference BCAA/PM/10/INS PartII. The risk level of a specific type of occurrenceis determined by applying a combination ofprobability and impact.

The BCAA Safety Committee discusses thesetypes of occurrences and subsequentlyaddresses the aviation risks to be dealt with asa priority, selected by taking into account fac-tors such as the level of the risk-mitigationactions already in place.

The table below shows the types of occur-rences with the highest risk levels derived fromthe risk analysis 2012.

APPENDIX 1: OUTLINE OF RISKS INTHE BELGIAN CIVIL AVIATION SECTOR

2008 2009 2010 2011 2012

Number ofreceivedoccurrences

2209 20207 2270 2586 2808

EVENT TYPE RISK LEVEL RBroadband interference 4,5Near collisions - Loss of separation 4,5Communications pilot / ANS 4,5Other warning system triggered 4,5ACAS / TCAS triggered 4,5Ground proximity warning 4,5Declared emergency 4,5Clearance related 4Collision aircraft - object - ground 4Windshear 4Ground handling services 4Systems / crew mismatch 4Airspace infringement 4Deviation / ATC clearance 4Landing gear 4Aircraft flight control 4Unstabilized approach 4Turbine engine 4Runway incursions 4Vehicle / equipment operations 4Aircraft - bird strike 4Turbine ingestion - bird 4Interference by laser / beamer 3,5Weather encounters 3,5Difficult / unruly passenger 3,5Missed approach 3,5Aircraft return 3,5Rejected take-off 3,5Communication system 3,5Autoflight system 3,5Fuel system 3,5Flight preparation 3,5Aircraft handling 3,5Explosions / fire / fumes / smoke 3,5Configuration warning 3,5



� 1 EU-wide Safety Performanceindicators

Since 2012, first year of the Reference Periodcovering 2012 to 2014 (RP1), the Belgian Stateand its National Air Navigation ServiceProvider (Belgocontrol) are subject to the mon-itoring and reporting of their safety perform-ance in accordance with the CommissionRegulation (EU) No 691/2010 as amended byRegulation (EU) 1216/2011 and referred to as the“Performance Scheme Regulation”.

Three key performance indicators are definedand apply to both State and service providers:

– The first Safety Key Performance indicator(SKPI) for RP1 is the Effectiveness of SafetyManagement (EoSM) as measured by amethodology based on the ATM SafetyFramework Maturity Survey. Through ques-tionnaires, this SKPI is measured by the levelof implementation of the following manage-ment objectives:� Safety policy and objectives;� Safety risk management;� Safety assurance;� Safety promotion;� Safety Culture.

– The second SKPI for RP1 is the application ofthe severity classification based on the RiskAnalysis Tool methodology to the reportingof, as a minimum, three categories of occur-rences:� Separation Minima Infringements (SMI);� Runway Incursions (RI);� ATM-specific occurrences at all Air Traffic

Control Centers and at airports (ATM SO).

– The third SKPI for RP1 is the reporting by theMember States and their ANSPs through aquestionnaire which measures the level ofpresence and corresponding level of absenceof Just Culture. The Just Culture means a cul-ture in which front line operators or othersare not punished for actions, omissions ordecisions taken by them that are commensu-rate with their experience and training, butwhere gross negligence, willful violationsand destructive acts are not tolerated.

The Belgian Safety Plan is intended to providean overview of the current situation and shallbe updated annually to provide historical dataand general actions to maintain or improve theBelgian safety performance.

APPENDIX 2: ANS SAFETY PERFORMANCE


APPENDIX 2: ANS SAFETY PERFORMANCE 29


� 2 Safety Performance 2012

a. SKPI 1 – Effectiveness of SafetyManagement (EoSM)

The EoSM indicator has been measured by ver-ified responses to questionnaires atState/competent authority and service provi-sion level, as provided by the EuropeanAviation Safety Agency (EASA). For each ques-tion the response indicated the level of imple-mentation, characterizing the level ofperformance of the respective organization.

EFFECTIVENESS LEVELS AND EFFECTIVENESSSCORE When answering the questions, one of the fol-lowing levels of implementation is to be select-ed:

– Level A which is defined as “Initiating”, mean-ing that processes are usually ad hoc andchaotic;

– Level B which is defined as “Planning/InitialImplementation”, means that activities,processes and services are managed;

– Level C which is defined as “Implementing”means that defined and standard processesare used for managing;

– Level D which is defined as “Managing &Measuring” means that objectives are usedto manage processes and that performanceis measured; and

– Level E which is defined as “ContinuousImprovement’ means continuous improve-ment of processes and process performance.

When answering the questionnaire, an effec-tiveness level has been selected only if all theelements described in the questionnaire werefully observed by the Belgian State/competentauthority. If elements were identified in vari-ous adjacent effectiveness levels, a conserva-tive approach was taken and the lowereffectiveness level was selected for which allelements were covered. All 29 European States filled in the self-assess-ment questionnaires used for the measure-ment of the Effectiveness of SafetyManagement KPI in accordance withAcceptable Means of Compliance (AMC) andGuidance Material (GM) for theImplementation and Measurement of SafetyKey Performance Indicators, (EASA Decision2011/017R). In accordance with those AMC, theanswers of the Belgian State have been veri-fied by the EASA.



Based on the answers, the following scores have been derived:

� KPI 1 – State:The average effectiveness scores achieved by the individual European States range from a mini-mum of 29 to 85 with 41% of the States scoring below 50. The Belgian CAA and BSA-ANS obtainedan overall effectiveness score of 61,82%.

The following figure shows 2012 EoSM scores for all Member States. (Source PRB)

The score obtained by the Belgian State has been set as the baseline for the following years andan action plan is already in construction to improve the effectiveness of our safety management.




� KPI 1 – ANSP (Belgocontrol):The average effectiveness scores achieved by the 37 individual European ANSPs range from a min-imum of 42 to 89%. Belgocontrol obtained an overall effectiveness score of 72,5%.

As historical data were available, compared to the 2011 value (70,2%), Belgocontrol improved itsSMS effectiveness. In 2012, so as to comply with the regulatory verification process required forthis indicator, they were subject to an audit performed by the BSA-ANS which did not lead to anynon-conformity and further improvements are expected by 2013.

The following figure shows 2012 EoSM scores for all ANSPs. (Source PRB)

b. SKPI 2 – Risk Analysis Tool (RAT)The application of the severity classificationbased on the Risk Analysis Tool methodologywas measured on the individual occurrencelevel as “yes/no” value of application of the RATmethodology for severity classifications ofoccurrences with category A (serious inci-dents), B (major incidents) or C (significant inci-dents) for all separation minima infringements(SMIs), runway incursions (RIs) and ATMSpecific Technical Events at ATS Centers andairports. This indicator was expressed in termsof the percentage (%) of occurrences for whichseverity has been assessed using the RATmethodology.

For the first time, through the existing safetydata reporting system of ESARR2 / AnnualSummary Template (AST), the verification ofthe application of the RAT methodology hasbeen performed.The RAT methodology allows a report of an“Overall” score composed of the ATM groundand the ATM airborne part. The ATM groundbeing the extent to which ATM Ground’sactions contributed to the occurrence and theATM airborne being the extent to which pilot’sactions contributed to the occurrence.



� KPI 2 – State (RAT Overall score)As required the State should establisharrangement to collect and report the overallscore. As this verification and measurementcycle was the first ever, some start-up prob-lems were to be expected, also due to somemisunderstanding and misinterpretation bysome of the stakeholders. A first review of themain difficulties encountered in this first yearof RP1 clearly shown some issues:

– The RAT should be implemented in differentState entities (Air Accident InvestigationBody, Belgian Supervisory Authority andBelgian Civil Aviation Authority or othersafety occurrence related entities)

– In order to score the airborne part, data shallbe made available; this includes data from for-eign states or bodies (Airlines, airports, etc.)

– The main data channel being the AnnualSummary Template collected twice a yearthrough database sorting (ECCAIRS data-base), the process shall be reviewed toensure data quality.

Being the first year of the first reference peri-od, 2012 has been used to address those dif-ferent issues. The BSA-ANS initiated acomplete review of the AST process and hasdeveloped new processes in coordination withthe BCAA/Inspection directorate to improvedata quality.

The first effective results of those processesbeing expected in 2013 onwards, and prefer-ring a conservative approach, the overall scorereported was for 2012: 0%

� KPI 2 – Belgocontrol (RAT Ground score)The implementation of the RAT (Risk AnalysisTool) in Belgocontrol is progressing to reach100% by the end of 2014 as defined in the FABECPerformance Plan.The tool is fully implemented for the assess-ment of the Separation Minima Infringements(SMI) and Runway Incursions (RI). For the ATM-Specific technical occurrences, the tool is stillconsidered in a trial phase but expected to befully implemented by 2013 even if all 2012occurrences have been assessed by the RAT.

The Annual Summary Template as verified bythe BSA-ANS reported the following figures:

– For SMI, 52 occurrences have been reportedfrom which 58% have been assessed byBelgocontrol using the RAT for their identi-fied impact on the ATM ground provision.

– For RIs, 17 occurrences have been reportedfrom which 38% have been assessed byBelgocontrol using the RAT for their identi-fied impact on the ATM ground provision.

– For ATM Specific technical events, 78 occur-rences have been reported from which100% have been assessed by Belgocontrolusing the RAT.

The 2012 figures, as reported to the EU Commission are summarized in the following table:

APPLICATION OF THE SEVERITY CLASSIFICATION OF THE RAT

2012

Reported Occurrences % RAT Assessment

Separation MinimaInfringements (SMI)

ATM Ground52

58%

ATM Overall 0%

Runway Incursions (RI)ATM Ground

1738%

ATM Overall 0%

ATM Specific TechnicalEvents ATM Overall 78 100%




c. SKPI 3 – Just CultureThe Just Culture KPI aims at measuring the lev-el of presence and corresponding level ofabsence of Just Culture at State and at ANSPlevel. The metrics have been constructed torespond to the criteria of: clearly defined,auditable, verifiable, repeatable and indicativeof the level of Just Culture being implemented.The just culture KPI consists of metrics in theareas of policy and its implementation,legal/judiciary and occurrence reporting andinvestigation.The main aim of the indicator and of the ques-tionnaires is to identify possible obstacles andimpediments to the application of the JustCulture (JC).Reference is made to the ‘State level’ instead of‘NSA level’ because, although a large numberof questions refer to the existing situation inthe national authority, a limited number ofothers deal with elements which go beyondthe field of competence of the authority andmay have to be addressed at the level of otherState entities.

The questionnaires identify several elementsrelated to an effective Just Culture, each ele-ment in turn with a number of sub-elements.These sub-elements are binary, i.e. the answercan only be “yes” or “no”. The States and ANSPsmay qualify the “no” answers in their respec-tive completed questionnaire by indicating therelated obstacles.A positive reply gives an indication of a JustCulture context while a negative reply indi-cates potential deficit/obstacles in Just Cultureimplementation. However, it is not expectedthat all replies should be positive but the iden-tification of negative elements would giveindication of possible areas of improvementand could be considered as incentives forimproving the Just Culture in a particularState/organization.

� KPI 3 – Just CultureBeing the first year of the first reference peri-od, 2012 has been used to identify the currentsituation and potential areas of improve-ment; nevertheless the “YES/NO” value usedin the questionnaire does not allow a bench-marking of the actual situation. Belgocontrol will be implicated with theBCAA and the BSA-ANS to develop actions topromote the principles of Just Culture.

d. Functional Airspace Blockobjectives.A Functional Airspace Block (FAB) means an air-space block based on operational require-ments and established regardless of Stateboundaries, where the provision of air naviga-tion services and related functions are per-formance-driven and optimized with a view tointroducing, in each functional airspace block,enhanced cooperation among air navigationservice providers or, where appropriate, anintegrated provider.For the implementation of the required SKPIsand with the required development of FAB’s,the decision was taken to have a common per-formance plan for the six states composing theFAB Central Europe (FABEC):

– Belgium, – France, – Germany, – Luxembourg, – The Netherlands and,– Switzerland.



This performance plan requires a safety per-formance monitoring and reporting fromStates and ANSPs. The BSA-ANS is leading theFABEC Safety Performance Task Force thatincludes Safety Experts from all FABEC Statesand analyzed and aggregated data from the 6States and 7 ANSPs composing the FABEC. Thefirst reporting on FABEC safety performancewas done in June 2013.

For the first reference period, there were no EU-wide targets for safety, but in addition to regu-latory safety KPIs, the FABEC Performance Planset 5 objectives:– A determined level shall be achieved at the

end of 2014 based on the EoSM scores forboth States and ANSPs,

– The Risk Analysis Tool shall be implementedby the end of 2014 in all FABEC ANSPs,

– The possibility of implementation of auto-mated reporting systems shall be evaluatedand,

– Definitions and processes shall be harmo-nized by the end of 2014.

FABEC objective – EoSM StatesBased on the FABEC ATM Safety MaturitySurvey scores from the six states, a baselinehas been defined using the 2012 results, and anobjective has been set for the 2013-2014 period,on the level to be achieved at the end of RP1. In 2013, at least two study areas will beimproved by FABEC processes and furtherefforts will be made to reach a higher level in2014.

FABEC objective – EoSM ANSPsBased on the FABEC ATM Safety MaturitySurvey scores from the seven ANSPs, a baselinehas been defined using the 2012 results, and anobjective has been set for the 2013-2014 period,on the level to be achieved at the end of RP1.The FABEC ANSPs are committed to reach a“Level C” in all study areas by the end of 2014.

FABEC objective – RAT ANSPsTo allow the harmonization of the reporting ofseverity assessment, FABEC ANSPs are commit-ted to implementing the RAT (Risk AnalysisTool) before the end of RP1. In 2012, this objec-tive shall be considered as on track as nearly allANSPs are using the RAT, either on trial or effec-tively. Belgocontrol is now using the tool for all therequired occurrences.

FABEC objective – Automated ReportingSystemsThe FABEC ANSPs were requested to perform aCost Benefit Analysis and an initial feasibilitystudy for the implementation of automatedreporting systems, at least for En-Route traffic.The added value of those automated systemsshould be assessed and the objectives of thosetools should be clearly identified and stated inJust Culture policies. The feasibility study that shall be completedprior to the end of RP1 suffered from delay dueto financial constraints but should be complet-ed on schedule. Based on the results, a poten-tial implementation phase might beconsidered for RP2 for the ANSPs not havingthem.




FABEC objective – HarmonizationThe improved collaboration between theFABEC states and ANSPs identified heteroge-neous processes in safety management. Theobjective set in the performance plan wasintended to harmonize sets of definitions,working processes and historical data prior tothe end of RP1. The current situation shows that the new pro-cedures and close cooperation between theStates and the service providers drasticallyimproved the situation. As well as regardingthe data collection, the monitoring and thereporting of safety data, progress is continuousand best practices are shared and implement-ed when advisable. This objective shall be con-sidered as on track.

e. ConclusionsFor the first time, safety performance wasassessed on defined key performance indica-tors. The first reference period covering 2012 till2014 should be considered as a test phase forthe following reference periods.

The current safety performance for both theBelgian State and Belgocontrol shall be consid-ered as very good. Improvements are alwayspossible and willingness is visible on bothsides to works towards excellence. The nexttwo years will address the different issues thatarose during 2012 and results should bealready visible in 2013.

Both the State and Belgocontrol will be readyfor the second reference period that will cover5 years (2015 – 2019). During this period, targetswill be defined at an EU-wide level and furtherperformance improvements are expected.



� 1 Introduction

One of the duties of the Belgian State is to cre-ate an environment in which the aviation sec-tor can perform its activities at the highestpossible safety level. The Belgian Civil AviationAuthority (BCAA) is responsible, on behalf ofthe Belgian State, for developing and main-taining the Belgian Safety Programme (BSP) inaccordance with the requirements of theUnited Nations International Civil AviationOrganization (ICAO).The BSP applies to the BCAA, the BelgianAccidents and Incidents Investigation Unit andthe Ministry of Defence. The BSP is based to alarge extent on the system of risk manage-ment.

The purpose of risk management is to preventaccidents, personal injury and material dam-age. An effective risk management policyensures that potential causes of safety prob-lems can be swiftly detected and resolvedthrough the optimization of regulatory andsupervisory actions.

In addition, the BCAA has begun implementingone of the main elements of the Belgian SafetyProgramme: the implementation of the SafetyManagement Systems (SMS) for the Belgianservice providers.

� 2 General provisions

a. Definitions– Belgian Safety Programme (BSP): an integrat-

ed set of regulations and activities estab-lished by the Belgian State aimed atmanaging civil aviation safety;

– Occurrences: any accidents and incidentsarising in the Belgian civil aviation sector;

– Safety: the state in which risks associatedwith aviation activities are reduced and con-trolled to an acceptable level;

– Safety Management System (SMS): a system-atic approach to managing safety includingthe necessary organizational structures,accountabilities, policies and procedures;

– Safety Performance: the safety achievementof the Belgian State or of the service provideras defined by its safety performance targetsand safety performance indicators;

– Safety Performance Indicator: a data-basedsafety parameter used for monitoring andassessing performance;

– Safe Performance Target: the planned orintended objective for safety performanceindicator(s) over a given period;

APPENDIX 3: BELGIAN CIVIL AVIATION SAFETY POLICY


APPENDIX 3: BELGIAN CIVIL AVIATION SAFETY POLICY 37


– Service Providers: air traffic control and airnavigation services (ATC/ANS), airport opera-tors, aircraft operators, approved trainingorganizations, aero-medical centres, organi-zations for flight synthetic training devices,production organizations, maintenanceorganizations and maintenance trainingorganizations.

– Safety Risk: the predicted likelihood andseverity of the consequences or outcomes ofa hazard.

b. Purpose of this document– Inciting the Belgian aviation sector and the

relevant BCAA employees to develop andmaintain a culture of safety in civil aviation;

– Providing the BSP with internal managementstructures that ensure its implementation;identifying risks and potential dangers; anddrafting and amending the Belgian SafetyPlan. These structures have been establishedthrough a series of processes and procedures.

c. Objective of the BSPThe BSP is developed to improve aviation safe-ty by promoting close cooperation betweenthe Belgian aviation sector and the BCAA.

� 3 Strategic orientation

a. BCAA Safety CultureAs safety is of primary importance at the BCAA,the latter will never yield to economic, com-mercial and political pressure. The BCAA iscommitted to integrating a safety culture intoall its activities in order to ensure that aviationsafety is managed as effectively as possible.

b. Regulatory and SupervisoryActivities

The BCAA is dedicated to improving coopera-tion with the Belgian aviation sector in order toidentify key safety issues and optimize its reg-ulatory and supervisory activities.

The BCAA undertakes to modify and optimizeits regulatory and supervisory activities follow-ing the introduction of SMS for the Belgianservice providers.

The BCAA undertakes to perform safetyassessments on foreign airlines in order toensure a standardised safety level within thecontext of European regulations.



c. Belgian Safety Plan The implementation of the BSP has resulted inthe drafting of a Belgian Safety Plan. This planforms part of the safety policy of the BelgianState and seeks to eliminate potential sourcesof safety problems through the optimizationof regulatory and supervisory activities.The Safety Plan, which is valid for a period offive years, is mainly based on the operationalobjectives derived from the risk managementsystem. Recommendations and guidelines ofthe Accidents and Incidents Investigation Unitare also incorporated into the Safety Plan. Theoperational objectives contained in the SafetyPlan are developed in consultation with theBelgian service providers.The Safety Plan is approved by the BCAADirector-General and is annually assessed andpublished.

d. Means and Human ResourcesThe allocation of means is based on the opera-tional activities that contribute to increasingsafety levels and, by extension, to the realiza-tion of the Belgian Safety Plan.As part of its training programmes, the BCAAoffers training related to BSP. This traininghelps foster a culture of safety and clarifies theroles played by each of the parties in imple-menting the plan.

e. Internal control and internalcompliance audits

The BCAA has an internal control system inplace. Internal control is an integral processthat is designed to address risks and to providereasonable assurance that the objectives ofthe BCAA are being achieved. The BCAA inter-nal control system determines the internalaudit priorities.The BCAA internal audits are conducted inaccordance with the processes and procedurescontained in the Quality Manual. These com-pliance audits serve to establish whether theBCAA Departments respect the regulationsand correctly execute the applicable processes,procedures and guidelines. The internal auditsare performed on the basis of an audit pro-gramme approved annually by the BCAADirector-General. The audits, which are basedon the PDCA cycle (‘Plan, Do, Check, Act’), con-tribute to the continuous improvement of theoperational activities.


APPENDIX 3: BELGIAN CIVIL AVIATION SAFETY POLICY 39


� 4 Organisation of the BSP

a. Scope of the risk managementThe BCAA is responsible for collecting andmanaging the aviation occurrences reportedto the BCAA by the service providers. Risk man-agement relates both to aviation occurrencesoccurring on Belgian territory and those occur-ring in Belgian airspace. In addition, occur-rences taking place on foreign territory andforeign airspace involving Belgian airlines areregistered in the risk management system aswell.

b. Procedures and processesThe BCAA has a number of processes and pro-cedures in place designed to effectively imple-ment the BSP. These processes and proceduresare approved by the Director-General and sub-sequently managed by the relevant BCAAdepartments. The processes and procedures ofthe Accidents and Incidents Investigation Unitare approved by the Chairman of the FederalPublic Service for Mobility and Transport inorder to protect the independence of this unit.

c. Safety CommitteeThe Safety Committee is comprised of theDirector-General, the directors of the opera-tional departments, the risk manager and themanager of the Accidents and IncidentsInvestigation Unit. The Safety Committee,which convenes three times per year, is respon-sible for:

– discussing and selecting the aviation risks tobe handled with priority;

– taking corrective actions where necessary;– assessing, approving, modifying and follow-

ing up these corrective actions;– validating and amending the Belgian Safety

Plan.

d. Risk managerThe risk manager is responsible for:

– collecting data on, and managing, aviationoccurrences;

– participating in bimonthly meetings regard-ing occurrences that require immediateaction;

– performing the risk analysis (i.e. preparing alist of risks to be handled with priority);

– drafting the Belgian Safety Plan, includingannual changes and updates.

e. Operational DepartmentsThe operational departments are responsiblefor:

– performing regulatory and supervisory activ-ities;

– proposing, implementing and realising cor-rective actions in order to increase aviationsafety;

– participating in bimonthly meetings regard-ing occurrences that require immediateaction;

– investigating these occurrences if necessary.

g. Involvement of externaldepartments

The BCAA has signed a Service LevelAgreement (SLA) with the Accidents andIncidents Investigation Unit in order to ensuresmooth cooperation between these two enti-ties.

The BCAA has regular consultations with theMinistry of Defence with regard to commoninterests in the domains of ANS/ ATC, Search &Rescue and aerodromes.



h. Coordination with internationalagencies

The BCAA supports the initiatives to developand implement the European Aviation SafetyProgramme and Plan at the level of theEuropean Aviation Safety Agency (EASA).

The BCAA also supports the initiatives of theEuropean Regional Aviation Safety Group(RASG-EUR) at the level of the InternationalCivil Aviation Organization (ICAO) to imple-ment the Global Aviation Safety Plan (GASP)and the Global Aviation Safety Roadmap(GASR).

j. Internal communicationThe employees of the BCAA and the Accidentsand Incidents Investigation Unit are informedannually about the Belgian Safety Plan and anyamendments to this plan.

The employees of the BCAA and the Accidentsand Incidents Investigation Unit are informedabout the Belgian Civil Aviation Safety Policyand any amendments to this policy.

i. Consultation with the Belgianaviation sector

The BCAA organizes periodic consultativemeetings with representatives of the Belgianaviation sector (e.g. representatives of Belgianservice providers, pilots’ associations, aviationclubs, etc.).

These meetings have the following objectives:

– conducting a debate on safety levels in theBelgian civil aviation sector;

– communicating achievements related to theBSP to aviation sector representatives;

– presenting the Belgian Safety Plan to avia-tion sector representatives, including anymodifications and updates;

– consulting on the policy objectives of theBelgian Safety Plan (including on the rele-vance of the risks to be handled with priority).

The Belgian Safety Plan is assessed and pub-lished annually. The Belgian service providersand aviation associations receive a copy of theSafety Plan each year.


BELGIAN CAA RISK MANAGEMENT PROCESS 41


Occurrence Reportsfrom Aviation Industry

Process 1 (SPOC):Data Collection &

Storage in ECCAIRS

Process 3: Yearly Risk Analysis ofOccurrences by Risk Manager

Process 2: Bimonthly BCAA meetingsconcerning analysis of individual

occurrences requiring immediate action

BCAA SafetyCommittee

Prioritize RiskDomains

Evaluation

Risk Mitigation(Actions & Projects)

Aviation Industry& BCAA Directorates

Process 4: Draw-up and realize fizeyearly Belgian Safety Plan

Project / Action closed Project / Action continues

BELGIAN CAA RISK MANAGEMENT PROCESS



� Info

Belgian Civil Aviation Authority - HeadquartersCCNVooruitgangstraat / Rue du Progrès 80 B5 – 2nd floor1030 Brussel / Bruxelles

Tel: 32-(0)2-277.43.11Fax: 32-(0)2-277.42.59E-Mail: [email protected]: www.mobilit.fgov.be

Belgian Civil Aviation Authority – Aviation InspectorateRaketstraat 90 / Rue de la Fusée 901130 Brussel / Bruxelles

Tel: 32-(0)2-724.03.07Fax: 32-(0)2-724.03.08E-Mail: [email protected]

� Useful Links

Federal Public Service Mobility and Transport: www.mobilit.fgov.be ICAO: www.icao.int EASA: www.easa.eu


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2013 Update


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