The reporter has raised concerns in relation to the proposed Restricted Enroute Conditional Endorsement (RECE) as a solution to Traffic Information Broadcast by Aircraft (TIBA) and controller staff shortages.
The reporter states the RECE is the Airservices Australia (AsA) solution to TIBA and shortage of sector qualified controllers.
The reporter states controllers are provided some computer-based training (which according to those that have completed it is impossible to fail) prior to handing over the airspace to unrated controllers who are then made fully responsible for the airspace throughout the night shift. The unrated controller is responsible for separating all aircraft within the airspace in which rated controllers have at least six months of training. The handover to the unrated controller is conducted over a 30-minute period and they are then deemed 'rated'. The reporter described the following scenario - During winter months the [night shift] takes over with usually 10-20 aircraft on frequency and still some sequencing into Sydney. In summer there’s usually about 10 aircraft on frequency. However, the morning rush starts at 0400 with holding and sequencing into Sydney. The morning shift starts at 0500 so this 'handover-only rated controller' is responsible for all of this sequencing. Or they pass it all on to an already busy Sydney Approach Controller who then has to issue the Standard Terminal Arrival Routes (STAR)s and sequence the aircraft.
The reporter states, 'Most of the controllers who tend to do the current Contingency Response Manager (CRM) shifts have never sequenced aircraft or have not done so for many years'. The reporter further states, 'Many controllers are reluctant to conduct CRM duties as they know what can go wrong. Controllers are very concerned that AsA will direct (force) them to perform CRM or RECE duties because it is now part of our required “ratings”.'
The reporter states, 'This is honestly the most dangerous and unsafe thing AsA has ever initiated. This is literally a loss of separation assurance/breakdown of separation/collision in the making'. The reporter further states, 'AsA will not be notifying airlines that they are operating in airspace that is being controlled by an unrated controller'.
The reporter further advises this is in conflict with the recent interview conducted by [Television station] [Program] with the AsA [Position title] who quotes, 'When we have, whether it's an illness or an unable to place or a shortage for some particular reason of the control for that piece of airspace, we can't readily just grab somebody who's sitting next door and operate that piece of airspace because they don't have that particular qualification and certification for that piece of airspace'.
Airservices appreciates the opportunity to respond to the concerns raised in the REPCON.
The reporter is correct in stating that Restricted En Route Conditional Endorsement (RECE) assists with improved service provision when faced with service variation events in certain circumstances. RECE forms part of a graduated service model which is aimed at providing the highest possible level of service when faced with events that may trigger a service variation. An example of a possible trigger event is short term absenteeism where no other controller is available to work overtime. The rules under which RECE may be utilised are documented in the RECE Activation Plan.
The training requirements for En Route Conditional Endorsement (ECE) have been assessed by completing a detailed Training Needs Analysis (TNA). Such a TNA is prepared when airspace and/or organisational changes require creation of a new endorsement training course, or a significant redesign of an approved published course is required. The TNA is prepared with the input of Air Traffic Control (ATC) Subject Matter Experts (SME), National Check and Standardisation Supervisors, the Training Planning and Quality department and then endorsed through the Training Planning and Quality Lead. The purpose of the endorsement is to confirm agreement by all stakeholders that the training needs and the training strategies defined in the TNA are correct and acceptable to the various stakeholders. This TNA has identified the skills and knowledge requirements and/or gaps and has determined the appropriate training and assessment strategy.
The computer-based training (CBT) referred to by the reporter is only one stream of training documented in the TNA. This particular stream is designed to ensure that all controllers who may be operating adjacent to a RECE endorsed controller are fully aware of the ruleset as documented in the Activation Plan and Letter of Agreement. This CBT also includes an online assessment, the pass mark of which is 100%.
The reporter states that the RECE controller is 'unrated'. This is incorrect. Any controller holding or exercising RECE must already hold an Area Radar rating for a minimum of 12 months and then also complete the required training and assessment to be issued the RECE endorsement. Training for a controller to be issued with and use a RECE endorsement is comprised of CBT, classroom training, and simulator training followed by a closed book written examination and simulator assessment.
Commentary around arrivals bound for Sydney during winter does not consider the context of the RECE Activation Plan. Prior to approving use of RECE the following conditions, amongst others, must be met to the satisfaction of the ATM Director:
- Limited to nightshift hours only.
- All reasonable callout options, shift extensions, or early shift call-ins are exhausted.
- Anticipated workload in the affected sectors and supervisor positions during the RECE period is acceptable or can be managed using Air Traffic Flow Management (ATFM) Measures.
- Staff levels in adjoining sectors pre, post and during the RECE period are acceptable.
- Workload for surrounding sectors is anticipated to be acceptable.
- Workload for supervisors is anticipated to be acceptable.
- The workload is suitable for the RECE controller to also be the Contingency Response Manager (CRM) for the contiguous Class G airspace. This condition may be mitigated, if necessary, by separation of CRM/RECE function where able.
If the above conditions cannot be met, then the airspace would likely have to be declared a Temporary Restricted Area (TRA) with Traffic Information Broadcast by Aircraft (TIBA) procedures.
In a practical sense in this scenario, multiple system safety protections are available to ensure that the Sydney scenario presented in the REPCON is prevented, such as:
- increased spacing between aircraft entering the airspace
- start clearances or traffic metering to/from specific airports
- limiting departures from specific airports
- limiting/delaying traffic from entering the RECE airspace
- rerouting traffic around the RECE airspace
- requesting deactivation of military areas or amended routing around them
- mandating use of standard levels and
- ground delay programs.
The purpose of the above measures is to reduce and regulate the already very low traffic on a night shift even further to provide a trickle-through effect. ECE activation is prevented in situations where high traffic flow exists and cannot be regulated to a suitably low volume and complexity level.
A mandated 30-minute handover period is stipulated in the RECE Activation Plan and Letter of Agreement as the reporter notes. Routine activities such as separating aircraft, sequencing aircraft, extreme weather or abnormal aircraft operations and management of these are part of every controller’s existing skillset.
Under RECE, all standard ATC services continue to be provided in Class A, C and E airspace so there is no impact on scheduled flights and no notification would be issued. The ATM Director has the option to notify industry of potential reduced capacity under RECE via a NOTAM. Under the RECE ruleset, Class G airspace will be declared TIBA and the appropriate NOTAM will be issued as per current procedures.
Airservices is currently working through the required training programs for supervisors and controllers and expect further RECE endorsements to be issued in coming months.
CASA is aware of the change referred to in the report and is engaged with Airservices Australia on the safety implications of the change. CASA understands that Airservices has paused implementation of the change to permit further review.
Airservices Australia has advised the ATSB of the intention to pause the change until processes have been reviewed.