Introduction To Defence Aviation Safety

INTRODUCTION TO DEFENCE AVIATION SAFETYDefence Aviation AuthorityPROGRAM LEVELAustralia is a signatory to the Convention onInternational Civil Aviation, also known as theChicago Convention. Article 3 of the ChicagoConvention states that the convention appliesto civil aviation and does not apply to stateaircraft. The Civil Aviation Act of 1988 definesfor Australia that a state aircraft is one thatis owned and/or operated by any part of theDefence Force or an aircraft commanded by amember of the Defence Force in the course oftheir duties. The Act also defines aircraft usedin the military, customs or police services ofa foreign country as state aircraft. While theChicago Convention excludes state aircraft,Article 3 requires that contracting Statesundertake, when issuing regulations for theirstate aircraft, that they will have due regard forthe safety of navigation of civil aircraft.Assure aviation safetyIn 1999, ICAO issued annex 19 to theChicago Convention that requires contractingstates to develop a State Safety Program(SSP). Australia’s Aviation SSP aims toconform to the requirements of annex 19, withcompliance assessed by ICAO. The DefenceAviation Safety Program (DASP) has beendeveloped cognisant of, and broadly alignedwith, the ICAO SSP requirements.COMMAND RESPONSIBLITYAustralian Government agencies haveagreed to pursue an integrated approach tomanagement of Australia’s civil SSP and theDASP, strengthening interagency agreementsand pursuing common initiatives to promotethe improvement of aviation safety in Australia.Closer engagement between the DASP andthe civil SSP offers Australia the opportunityfor better engagement with ICAO in the future,an inexpensive and highly valued vehicle forinternational engagement in the Asia-Pacificregion, and reduced overheads for Australianindustry with increased harmonisation andrecognition of the respective regulation inDefence and civil aviation.6DEFENCE AVIATION SAFETY FRAMEWORKChief of Air ForceDefence Aviation Safety CouncilAirworthiness Board PanelDefence Aviation Safety AuthorityEXECUTIVE DIRECTORSFlightOperationsInitial & ContinuingAirworthinessFlightSafetyHigher commandSAFETY INVESTIGATIONThe Second World War was the catalystfor significant developments in aviation thatallowed for increased networks and capacityfor the movement of passengers and freightaround the world. In 1944, the United Statesinvited 55 nations to attend an InternationalCivil Aviation Conference in Chicago. Buildingon the work of the International Commissionfor Air Navigation that was established inParis in 1919 and other pre-war conferences,committees and conventions, the InternationalCivil Aviation Organisation (ICAO) wasratified in 1947. The core ICAO mandate,which remains unchanged, is to help Statesto achieve the highest possible degreeof uniformity in civil aviation regulations,standards, procedures, and organisation.Since its formation, ICAO has remainedcontemporary, increasing the number ofannexes and issuing more than 12,000international standards and recommendedpractices (SARPs), which have been agreedby consensus by ICAO’s 192 Member States.Australian AviationSafety EnvironmentOVERSIGHT AND ENFORCEMENTGlobal AviationSafety EnvironmentMILITARY AIR OPERATORAerodromeOperatorsAir NavigationService ProvidersInitial AirworthinessOrganisationsContinuing AirworthinessOrganisationsEnsure aviation safetyFigure 2. The Defence Aviation Safety FrameworkDefence Aviation SafetyFrameworkThe framework of organisations andaccountabilities, and prescribed policy andregulation, that contextualise and amplifystatutory WH&S obligations for militaryaviation is called the Defence AviationSafety Framework (DASF). The frameworkis established by the Chief of Defence Force(CDF) and Secretary of Defence through theirJoint Directive (JD) 24/2016 Defence AviationSafety Framework. Figure 2 provides anillustration of the DASF. JD 04/2018 extendedthe period of operation of JD 24/2016.The DASF has been established inaccordance with global developments incivil and military airworthiness to optimisemutual recognition and interoperability withinternational partner nations.Defence Aviation AuthorityThe Chief of Air Force (CAF) has beenappointed as the Defence Aviation Authority(Defence AA) and is accountable to CDF andthe Secretary to: Establish an appropriately resourced safetyorganisation called the Defence AviationSafety Authority (DASA); Implement the DASP in line withcontemporary international conventions; Prescribe effective Defence Aviation SafetyRegulation (DASR) in line with contemporaryinternational regulation; Monitor, advise and report on aviation safetyperformance in Defence; and Establish an independent agency for theinvestigation of aviation safety incidents andaccidents.INTRODUCTION TO DEFENCE AVIATION SAFETY7

Defence Aviation SafetyAuthorityDefence Aviation Safety AuthorityDefence Aviation Safety CouncilThe Defence AA has established theDefence Aviation Safety Council (DASC)to provide oversight of the DASP. TheDASC is also responsible for consideringthe views of all significant Defence aviationstakeholders when aviation safety initiativesare proposed, and that the approach toaviation safety adopted by the DASA isaligned, where appropriate, with that takenby the Civil Aviation Safety Authority (CASA)and the Australian Transport Safety Bureau(ATSB). The DASC is chaired by a two-starofficer appointed by the Defence AA.Independent review of aviation safetymanagement – Airworthiness BoardJoint Directive 24/2016 also directs that theDefence AA will establish mechanisms toenable independent review of the aviationsafety management within Defence. TheDefence AA maintains a panel of Reserveofficers of one or two star rank, with anoperational aircrew or aviation engineerbackground, to be members of anAirworthiness Board (AwB). At the directionof the Defence AA, an AwB consisting ofan operational and a technical membermay be convened to review any aspect ofthe DASF and, most importantly, AwB’sare routinely convened to review the safetyperformance of military air operationsand the airworthiness of State aircraft.8INTRODUCTION TO DEFENCE AVIATION SAFETYAviation Safetyand CommandWhile the DASF is a structured frameworkto assure the credibility and defensibility ofaviation safety within Defence, responsibilityto ensure the safety of military air operationsand the airworthiness of aircraft rests withthe Command Chain. The well-known adageremains true, ‘Aviation safety is a Commandresponsibility’.The DASA is an organisation in Defence thatoperates independently of the CommandChain to enhance and promote safety ofmilitary air operations and the airworthinessof State aircraft in Defence. This objective isprimarily achieved through implementationof the DASP that supports compliance withstatutory safety obligations and assures theeffective management of aviation safety risks.The DASA is administered by the DirectorGeneral DASA (DGDASA) and comprisesseven functional directorates, each led bya senior military or senior Australian PublicService (APS) officer as follows: Director of the AirworthinessCoordination and Policy Agency (ACPA)– Military aviation operatorCommanders and managers are thereforeaccountable for ensuring aviation systemsunder their command or control are designed,constructed, maintained and operatedto approved standards and limitations bycompetent and authorised personnel actingas members of an approved organisation. Director of Initial Airworthiness– APS engineerThe nature of military aviation is unique andcomplex, and the need for commandersto balance operational objectives andsafety outcomes is well understood. TheDASR contains flexibility provisions toassist commanders faced with compellingoperational imperatives to make informedjudgements regarding compliance withsafety obligations. Such judgements mustbe made at the appropriate command leveland must ensure that aviation safety hazardsand risks are eliminated SFARP, and if itis not reasonably practicable to eliminatehazards and risks to health and safety, then tominimise those hazards and risks SFARP. Director of AviationEngineering – Military engineer Director of Continuing Airworthiness –Military engineer Director of Policy, Engagement,Promotion and Safety– APS engineer Chief of Staff– APS Engineer Director of the Defence FlightSafety Bureau (DFSB)– Military aviation operatorWhile these directors are responsible forthe smooth operation of the DASP on aday-to-day basis, and have clear leadershipfunctions within the DASA, the Defence AAhas appointed three Executive Directors viapersonal charter letters to make key decisionsand issue key instruments on his behalf.These Executive Directors have direct accessto the Defence AA on any matter regardingsafe air operations, initial and continuingairworthiness, and air safety investigationrespectively; and each is required to attendand make regular reports to the DASC.Executive Director – Flight OperationsDirector Airworthiness Coordination andPolicy Agency (DACPA) is appointed as theExecutive Director – Flight Operations and isthe principal representative for the DefenceAA on matters concerning safe air operations,including the broader remit of OperationalAirworthiness. This includes the formulationand interpretation of policy and regulations,approval of Operations Specifications andmaintaining the Defence Register of aircraft.DACPA provides administrative support tothe Defence AA, including maintaining theDefence AA registry and providing secretariatsupport to AwBs and the DASC.Executive Director – Flight SafetyDirector Defence Flight Safety Bureau(DDFSB) is appointed as the ExecutiveDirector – Flight Safety and is the principalrepresentative for the Defence AA on mattersconcerning aviation safety investigations,safety event reporting, cultural surveys,safety education, promotion and trainingand provides specialist advice to aviationcommanders. DFSB provides an independentaviation safety function to the Defence AAand commanders. The Director of DFSB isthe point of contact for Confidential IncidentReports (CONFIR).Executive Director – Initial andContinuing AirworthinessDGDASA is appointed as the ExecutiveDirector – Initial and Continuing Airworthinessand is the principal representative forthe Defence AA on matters of initial andcontinuing airworthiness. This includesthe issue of airworthiness standards, theINTRODUCTION TO DEFENCE AVIATION SAFETY9

certification of State aircraft, and the issueof organisational approvals and licences.DGDASA has also been delegated theauthority to prescribe regulations and establishdelegates of the safety Authority.at the aircraft platform level in CapabilityAcquisition and Sustainment Group (CASG) toprogress initial and continuing airworthinessmatters, and in the ADF to progress flight testand licencing matters.Delegate of the Safety AuthorityThe ‘Authority’To assist in the smooth administration of theDASA, and to enable routine matters to bequickly progressed in support of day-to-dayoperations, the DASA appoints agents –known as Delegates of the Safety Authority(DoSA) – to perform specific DASA functions.The term ‘Authority’ is often used in regulationand training material without specific referenceto the either the Defence AA, DASA, theExecutive Directors or an individual DoSA.This is a natural by-product of adoptingglobal conventions in aviation safety andairworthiness, and then exploiting the globallyavailable training and education material.The DoSA is a personal appointment basedon the skills, knowledge and experiencea person holds in aviation safety; and thelevel, scope and limitations of the agencyarrangement are contained in written letter ofdelegation. DoSAs are typically establishedIn nearly every case, the use of the term‘Authority’ is intended to refer to the DASA,and the regulated community should notengage directly with the Defence AA.Joint Directive 24/2016Mandates Defence Aviation Safety Framework(extended by Joint Directive 04/2018)Defence Aviation SafetyAssurance ManualArticulate activities toassure aviation safetyFigure 3. Hierarchy of the Defence Aviation Safety PolicyDefence AviationSafety ProgramThe DASP was introduced in 2011, well aheadof the DASA’s formation and issuance of newDASR in 2016. In all respects the DASP hasbeen developed in cognisance of, and broadlyaligns with, ICAO’s requirements in Annex19. The DASP focusses significant effort forDefence aviation safety around the four pillarsof: Policy and regulation Education and promotion Initial certification and approval (based onthe management of risk) Oversight and Enforcement (as the keyaspects of compliance assurance)In the same manner that ICAO uses SARPsto benchmark the performance of civilSSPs around the world, the performanceof Australia’s DASP is benchmarked undermutual recognition arrangements by otherNational Military Aviation Authorities (NMAA).This benchmarking activity uses the globallyagreed Military Authorities RecognitionQuestionset (MARQs), which are a militaryderivative of ICAO’s SARPs.The similarity between Australia’s SSP for civilaviation and Australia’s DASP for Defenceaviation, provides the framework for improvedengagement across Government agencies so10INTRODUCTION TO DEFENCE AVIATION SAFETYDefence Aviation Safety RegulationBasic RegulationImplementing RegulationGlossarythat common safety initiatives can be pursuedas a matter of policy for the promotion ofaviation safety in Australia.Defence aviation safety arrangements areprescribed in Government policy, legislation,the Joint Directive, the DASP Policy Statementissued by the Defence AA, the Defence AviationSafety Assurance Manual, and the DASR.Figure 3 illustrates this hierarchy of theDefence Aviation safety policy which providesthe framework, authority, obligations andaccountabilities necessary to implement andoperate an effective aviation safety program.Defence Aviation SafetyAssurance ManualThe Defence Aviation Safety Assurance Manual(DASAMAN) is used by DASA to provide policiesand procedures to support implementationof the DASF and articulate activities to assureeffective management of aviation safety.Key objectives of the manual are to: Articulate authoritative aviation safety policyobjectives and requirements. Provide supporting detail and guidance on theDASF. Amplify and contextualise requirementsdetailed in DASR.INTRODUCTION TO DEFENCE AVIATION SAFETY11

Airworthiness NomenclatureThe DASR brings revised languageand concepts to the Defence Aviationenvironment. While retaining thefundamental tenets of the previoussystem, DASR aims to align the DASFwith contemporary aviation safetyconventions, including ICAO standards andrecommended practices, and EuropeanMilitary Airworthiness Requirements (EMAR).Under the ICAO framework, the termAirworthiness (encompassing InitialAirworthiness and Continuing Airworthiness)is associated with design, production andmaintenance of aircraft.The ADF’s ‘Operational Airworthiness’ termhas been retained under DASR as a keyconcept that uniquely addresses the ADF’smeans of striving for high professionalstandards and a zero-accident rate.Operational AirworthinessOperational Airworthiness extends beyondthe scope of flight operations regulationand provides a framework of controls andunderpins the learned safety culture requiredto enable commanders to eliminate risks toaviation safety SFARP and, if not able to beeliminated, then minimise SFARP.This is particularly relevant in situationswhere commanders are routinelyexpected to operate Defence aircraftoutside of their certification basis orcertificate of airworthiness, often athigher levels of risk than civil aviation, tomaintain key capabilities at high levels ofoperational readiness and to undertakenon-discretionary activities in support ofAustralia’s national interests. While theAustralian military concept of OperationalAirworthiness is not a feature of globalaviation conventions, it will remain withinthe ADF’s nomenclature to provide the12INTRODUCTION TO DEFENCE AVIATION SAFETYnecessary framework of culture and controlsso that aviation commanders can routinelyoperate State aircraft in satisfaction of theirobligations under the Defence Act 1903, whilestill satisfying their obligations for safety riskmanagement under the WHS Act 2011. Thedescription of Operational Airworthiness is:The operation of aircraft, includingunmanned aircraft, and interfacing orsupporting systems, in approved roles,with correct mission equipment, byqualified and authorised individuals,in accordance with approved orders,instructions and publications, under asafety framework that recognises andsupports compliance with statutory safetyobligations, enabling appropriate flexibilityprovisions to support risk based commanddecisions in delivering capability.Initial AirworthinessInitial Airworthiness covers the design,production and certification aspects ofan aircraft. This includes, ‘ContinuedAirworthiness’, which defines ongoingobligations necessary to ensure the continuedvalidity of a design. Initial airworthinessestablishes the criteria for certification ofmilitary aircraft and related products as well asdesign and production organisations.Continuing AirworthinessContinuing Airworthiness covers all processesthat ensure an aircraft continues to complywith initial airworthiness requirements andsupports the ongoing validity of the aircraft’sCertificate of Airworthiness (CoA).The language, Continued and ContinuingAirworthiness can be confused. To describethis in a simple way: Continued Airworthinessis a ‘Design’ function and ContinuingAirworthiness is a ‘Maintenance’ and‘Configuration Management’ function.INTRODUCTION TO DEFENCE AVIATION SAFETY13

Defence AviationSafety RegulationOperations outside of the approvedconfiguration, role, environment,limitations or conditionsThe DASR was issued on 30 September 2016,introducing f

was accurate at the time of printing. However, this document is a guide and readers are reminded that the Defence Aviation Safety Assurance Manual (DASAMAN) and the Defence Aviation Safety Regulations (DASR) remain the authoritative documents for the management and regulation of aviation safety in the Defence. Reserved sections within