The check pilot system was ineffective in providing the Australian Maritime Safety Authority (AMSA) assurance of the competency of coastal pilots, mainly due to the inconsistent and unreliable application of assessment standards between different check pilots. Further, AMSA had not implemented a system to identify the inconsistent application of standards or the trends in assessment outcomes readily apparent in the data that it had held for many years.
Response by the Australian Maritime Safety Authority
On 25 June 2024, the Australian Maritime Safety Authority (AMSA) advised the ATSB that it would seek to improve the current check pilot system in its next review of Marine Order 54. In the short‑term, AMSA intended to develop and implement a new proficiency assessment for use by check pilots and competency-based requirements and assessment to become a check pilot.
ATSB comment
The ATSB acknowledges the safety actions proposed by AMSA, which have the potential to adequately address this safety issue. However, the ATSB remains concerned about the indefinite nature of the advised action, including the absence of a timeline. Accordingly, the ATSB issues the following safety recommendation.
The check pilot system was ineffective in providing the Australian Maritime Safety Authority (AMSA) assurance of the competency of coastal pilots, mainly due to the inconsistent and unreliable application of assessment standards between different check pilots. Further, AMSA had not implemented a system to identify the inconsistent application of standards or the trends in assessment outcomes readily apparent in the data that it had held for many years.
The Australian Transport Safety Bureau recommends that the Australian Maritime Safety Authority takes safety action to identify and address factors limiting the effectiveness of its check pilot framework as a system for coastal pilot competency assurance.
On 16 October 2024, AMSA advised the ATSB that it accepted the safety recommendation included in the report and proposed to take the following safety action to give effect to the recommendation:
AMSA advised that it anticipated most actions will be completed by mid-2025. Any associated regulatory amendments will be addressed as part of AMSA’s intention to review Marine Order 54 (Coastal pilotage), in accordance with the existing schedule for this review (expected completion by June 2026).
The ATSB considers the safety action proposed by AMSA has the potential to adequately address the safety issue.
After AMSA’s next update, the ATSB will reassess the status of the safety issue based on further progress in revising the check pilot system.
On 14 July 2025, AMSA advised that it had completed a review of the check pilot framework, resulting in improvements to the check pilot checklist and associated data capture processes. The improvements are intended to bolster the robustness of the AMSA evaluation procedures and AMSA advised it was in the final stages of stakeholder consultations regarding these revisions.
Following the stakeholder consultations, AMSA projected the revised check pilot framework to be fully implemented across all relevant operations by September 2025.
Additionally, AMSA advised that it was engaging with the coastal pilotage industry reference group as part of its review of Marine Order 54. The finalisation of the amendments to Marine Order 54 is anticipated to be completed by July 2026.
The ATSB acknowledges the progress made by AMSA to address the safety issue.
The ATSB will re-assess the safety issue status following the implementation of AMSA's anticipated amendments to the check pilot system.
