ICAO – EUROCONTROLEUROPEAN SEMINAR ON LANGUAGE PROFICIENCY FOR
AERONAUTICALCOMMUNICATIONS Brussels, 27-28 October 2005
ICAO Standards and Recommended Practices
Paul Lamy Chief, Flight Safety Section – ICAO
FSS – Oct. 05
ICAO Aviation Language Proficiency requirements
WhyThe safety concern
HowThe work of the PRICE Study Group
WhatThe ICAO Language proficiency requirements
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Aviation Language ProficiencyAviation Language Proficiency
Why What is the What is the safety concern(s)safety concern(s) in international civil in international civil
aviation for which the ICAO language proficiency aviation for which the ICAO language proficiency requirements might provide anrequirements might provide an answeranswer??
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A review of 28,000 safety reportsA review of 28,000 safety reports Over 70% of problems
cited involved message exchange.
Communication errors still represent largest category of problems.
However, only 1% of communications are compromised by inaccuracy.
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The Trail of WreckageThe Trail of Wreckage Trident/DC-9 mid-air collision, Zagreb -1976Trident/DC-9 mid-air collision, Zagreb -1976 Double B747 runway collision, Tenerife - 1977Double B747 runway collision, Tenerife - 1977 B707 fuel exhaustation, JFK - 1990B707 fuel exhaustation, JFK - 1990 B757 CFIT, Cali - 1995B757 CFIT, Cali - 1995 IL-76/B747 mid-air collision, India - 1996IL-76/B747 mid-air collision, India - 1996 MD83/Shorts 330 runway collision, Paris/CDG -2000MD83/Shorts 330 runway collision, Paris/CDG -2000 MD80/Citation runway collision, Milan – 2001MD80/Citation runway collision, Milan – 2001 Helios Airways – Greece August 2005 (?)Helios Airways – Greece August 2005 (?)
• … … The common element: The common element: CommunicationCommunication
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Air-Ground CommunicationsAir-Ground Communications
Has been a safety concern for decades Action up to the 90s
Standardized Phraseologies Hope of development of a radiotelephony speech based on a
simplified English Realization that it was not sufficient
A Systemic PerspectiveA Systemic Perspective
OperationsOperations
Design Design
Training Training
SupervisionSupervision
Management Management
Kept under control inKept under control innormal system conditions…normal system conditions…
Reason Model Reason Model
Sources: Docs 9683; 9806Sources: Docs 9683; 9806
A Systemic PerspectiveA Systemic Perspective (cont.)(cont.)
Design Design
Management Management
Training Training
Supervision Supervision
OperationsOperations
……surface in unstable surface in unstable system conditions system conditions (with great damaging (with great damaging potential)potential)
Sources: Docs 9683; 9806Sources: Docs 9683; 9806
A Training PerspectiveA Training Perspective
Mismatches at the operational interfaces = breeding Mismatches at the operational interfaces = breeding grounds for operational errorsgrounds for operational errors
LL
LL
LLSS EE
HH
SHELL ModelSHELL Model
Source: Doc 9683Source: Doc 9683
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An Operational PerspectiveAn Operational Perspective
ThreatsThreats
Threat ManagementThreat ManagementStrategiesStrategies
Error ManagementError ManagementStrategiesStrategies
ErrorsErrors
Undesired StateUndesired State
Threat and ErrorThreat and ErrorManagement (TEM)Management (TEM)Model Model
Source: Doc 9803Source: Doc 9803
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Language Proficiency: A ThreatLanguage Proficiency: A Threat
WeatherWeather
MaintenanceMaintenance
GroundGround CrewCrew
CabinCabin CrewCrew
Passenger managementPassenger management ATCATC
TerrainTerrain
SimilarSimilar callcall signssigns
TimeTime pressurepressure
HeavyHeavy traffictraffic
UnfamiliarUnfamiliar airportsairports
AutomationAutomation eventsevents MissedMissed approachesapproaches
FlightFlight diversionsdiversions
SystemSystem
malfunctionsmalfunctions
Source: Doc 9803Source: Doc 9803
Language ProficiencyLanguage Proficiency
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Therefore, as Safety Practitioners…Therefore, as Safety Practitioners… Language proficiency isLanguage proficiency is
NOTNOT a cultural issue a cultural issue NOTNOT a case of cultural imperialism a case of cultural imperialism• From a safety management perspectiveFrom a safety management perspective
A latent condition with safety damaging potentialA latent condition with safety damaging potential• From a training management perspectiveFrom a training management perspective
A technical skill acquired through conventional trainingA technical skill acquired through conventional training• From an operational management perspectiveFrom an operational management perspective
A threat that increases complexity of aviation operationsA threat that increases complexity of aviation operations
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Managing language proficiency in aviation safety:Managing language proficiency in aviation safety:A risk management exerciseA risk management exercise
Denial: defensive attitudeRepair: cosmetic acceptance Reform: tackle the safety concern
Aviation Language ProficiencyAviation Language Proficiency
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IIICAO Aviation Language Proficiency requirementsICAO Aviation Language Proficiency requirements
How to tackle the safety concern?
IL-76/B747 mid-air collision, India – Nov. 1996IL-76/B747 mid-air collision, India – Nov. 1996 32nd ICAO Assembly 1998
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RESOLUTION A-32 by 32nd Assembly of ICAO 1998RESOLUTION A-32 by 32nd Assembly of ICAO 1998
“…steps to ensure that air traffic controllers and flight crews involved in flight operations in airspace where the use of the English language is required, are proficient in conducting and comprehending radiotelephony communications in the English language”
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PRICE STUDY GROUPPRICE STUDY GROUP Proficiency Requirement In Common English Study
Group Comprised aviation and linguistic experts from
Argentina, Canada, China, France, Russia, Ukraine, the United Kingdom, the United States, EUROCONTROL, IATA, IFATCA, IFALPA and ICAO.
Mandated toReview all aspects of air-ground and ground-ground voice
communicationDevelop requirements concerning English language testingDevelop language proficiency requirements
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The IssuesThe Issues
Existing provisions at the time Phraseology vs. plain language English only or English and other languages Means to assess language proficiency reliably
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Previous Annex 10 requirementsPrevious Annex 10 requirementsPhraseologies to be used when
specifiedLanguage
Language of the ground station Hope of developing a universal
radiotelephony speech English should be made available
pending the development of such universal radiotelephony speech
Use of interpreters
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Previous ICAO language requirementsPrevious ICAO language requirements For controllers: “… speak the languages
designated for use in air traffic control without accent or impediment which could adversely affect communication”;
For pilots:Strangely quiet!
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Pre-eminent R/T communication problems:Pre-eminent R/T communication problems:
frequency congestion, poor microphone technique, ambiguity, phonetic similarity, incomplete call-signs, confused sequence of
numbers in messages,
strings of instructions, truncated phraseologies, inadequate
acknowledgements, readback errors, hearback errors.
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How compliant are pilots and controllers?How compliant are pilots and controllers?
“In spite of the efforts made to achieve compliance with agreed international standard procedures, violations are commonplace. It is probably the case that the gap between theory and practice is wider in communication procedures than in any other facet of aviation” (Wiener and Nagel, 1988).
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Standardized PhraseologyStandardized Phraseology … is insufficient to deal with the full range of situations
requiring R/T exchange.
… but how to complement standardized phraseologies?
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English vs. universal speech English vs. universal speech More recent research established that….
There is no more effective form of speech than natural languages, and Plain language is the only medium of communication sufficiently reliable,
comprehensive and adaptable for international aviation operations.
English for aviation .. does not belong to a culture; is a tool, used by controllers & pilots as a matter of convenience; has no special inherent qualities; is the most accessible of all second languages.
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English: Sole universal aviation language?English: Sole universal aviation language? Would it eradicate all possibility of misapprehension?
No! Would it greatly aid situational awareness?
Yes, but it assumes that everyone has proper English proficiency Yes; but it would not make it complete!
Some transmissions are blocked; Not all aircraft transmit on frequency; Controllers hand-over blocks of airspace to third parties; Crews’ workload disallows constant monitoring.
An erroneous assumption of situational awareness could be prejudicial to safe operations.
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PRICE SG conclusions (1)PRICE SG conclusions (1) Phraseologies shall be used whenever possible but … … there is no practical alternative to the use of plain language for
the full range of aeronautical R/T communication, and
The use of plain language in the exchange of critical operational information requires:
an understanding of the fundamentals of linguistics, an appreciation of the susceptibility of language to misapprehension, and a commitment to the highest standards of discipline and care.
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PRICE SG conclusions (2)PRICE SG conclusions (2) The universal availability of at least one
medium of radiotelephony communication is important for safety and efficiency in international air navigation;
The lack of a language common to the aircrew and the ground station could lead to an accident;
There is a need to retain the language used by the station on the ground.
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PRICE SG conclusions (3)PRICE SG conclusions (3) Parity must exist between pilots and controllers in language
proficiency requirements; thus A single minimum standard is the best solution for the entire
target group; but .. .. it does not mean that the test shall be the same Responsibility shall also be vested in airline operators and ATS
providers for ensuring that staff meet proficiency requirements
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PRICE SG conclusions (4)PRICE SG conclusions (4)The new provisions will impact heavily the aviation
community but with: Extensive guidance material, Education & awareness programs worldwide, Staff support activities by operators, Increased compliance with ICAO standardized phraseology,
and Highest standards of discipline,
We need and can improve the 1% figure!
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WhatWhat
Annex 10 Annex 1
General concept Review of the provisions Implementation timeline
Annex 6 Annex 11 PANS-ATM
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Annex 10 – Volume IIAnnex 10 – Volume II
Chapter 5 addresses voice communications in the aeronautical communication service linking ground stations and aircraft.
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Annex 10 – Volume IIAnnex 10 – Volume II
Phraseology and Plain Language Para 5.1.1.1- ICAO phraseology shall be used in all situations for
which it has been specified. Only when standardized phraseology cannot serve an intended transmission, plain language shall be used
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Annex 10 – Volume IIAnnex 10 – Volume II
Language(s) to be used Para 5.2.1.2.1: The air-ground radiotelephony communications
shall be conducted in the language normally used by the station on the ground or in the English language
Para 5.2.1.2.2 The English language shall be available, on request from any aircraft station, at all stations on the ground serving designated airports and routes used by international air services
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Annex 10 – Volume IIAnnex 10 – Volume II
Provisions no longer in force Interpreters are no longer authorized The Attachment on the development of Radiotelephony speech
for international aviation has been withdrawn
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Annex 1Annex 1
Licences with language proficiency requirements Aeroplane and helicopter pilots Glider and free balloon pilots Flight Engineers and Flight Navigators Air Traffic Controllers Aeronautical Station Operators
Licences without language proficiency requirements Flight Dispatcher Aircraft Maintenance Engineer
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General PrinciplesGeneral Principles
Limited to radiotelephony communication The “Speak and Understand” Standard Cover all languages used in radio communication Assessment using a rating scale (level 4) Progressive implementation
27 Nov. 2003
5 March 2008
Rating scale is applied
Shall speak and understand
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Annex 1Annex 1
• Aeroplane & Helicopter Pilots (PPL, CPL and ATPL)
• Air Traffic Controllers and Aeronautical Station Operators
• Flight Engineers
• Free balloon and glider pilots
•Flight Navigators
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Language proficiency in Annex 1Language proficiency in Annex 1
shall demonstrate the ability to speak and understand the language used for radiotelephony communications (Standard 1.2.9.1)
after 5 March 2008, the “speak and understand” ability shall be demonstrated to level 4 of
the ICAO rating scale (Standard 1.2.9.4 and Appendix) recurrent testing will be required for those below level 6
(recommendation: every 3 years for level 4 and every 6 years for level 5)
previous Standard on the use of radiotelephony procedures and phraseology still applies
Aeroplane & helicopter pilots (PPL, CPL and ATPL)
Air traffic controllers and aeronautical station operators
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Language proficiency in Annex 1Language proficiency in Annex 1
should demonstrate the ability to speak and understand the language used for radiotelephony communications.
Previous Standard on the use of radiotelephony procedures and phraseology still applies for flight engineers
Free balloon and glider pilots
Flight engineers
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Language proficiency in Annex 1Language proficiency in Annex 1
If required to use a radio telephone on-board, flight navigator shall demonstrate the ability to speak and understand the language used for radiotelephony communications
Previous Standard on the use of radiotelephony procedures and phraseology still applies for all Flight Navigators
Flight navigators
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Implementation notesImplementation notes
Standard 1.2.9.1 will apply only on 5 March 2008 for aeroplane and helicopter pilot who have a licence issued before 5 March 2004
No “grandfather” clause for Air Traffic Controllers and Aeronautical Station Operators
Language proficiency requirements applies to pilots who are engaged in international flights and ATCO/ASO providing services to international flights
Pilots shall demonstrate proficiency in at least one of the language(s) offered in the airspace that is used
ATCO/ASO shall demonstrate proficiency for each of the language(s) offered in the airspace in which they are providing service
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Other AspectsOther Aspects
The Rating Scale and Holistic Descriptors are contained in the Appendix and the Attachment to Annex 1
Consequences of non-compliance with the language proficiency Standards For pilots For Air Traffic Controllers and aeronautical Station Operators
Guidance on the implementation of the Standards has been published in the Manual on the Implementation of ICAO Language Proficiency Requirements (Doc 9835)
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Other AspectsOther Aspects
Some good reasons to start evaluating language proficiency using the ICAO rating scale before 5 March 2008:
a) for recruitment purposes
b) for benchmarking purposes
c) to be prepared for the 5 March 2008 deadline ICAO will review the progress in the implementation of the Language
proficiency Standard in 2006
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Other AnnexesOther Annexes
Annex 6: (Parts I and III) operators shall ensure that flight crew speak and understand the language used for radiotelephony communications
Annex 11: Air traffic service providers shall ensure that air traffic controllers speak and understand the language used for radiotelephony communications
English language shall be used for communications between air traffic control units except when another language is mutually agreed
PANS-ATM: ATS and other ground personnel will be expected to use plain language to the level specified in the ICAO language proficiency requirements contained in Annex 1
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Review by the CommissionReview by the Commission
The Air Navigation Commission will undertake a review of the implementation of the language proficiency provision in 2006: Assessment of the level of implementation (actual and planned) Review of the difficulties faced during the implementation Corrective measures if necessary and assistance No significant changes are to be expected in view of the safety
concern
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AuditAudit
The ICAO Universal Safety Oversight Audit Programme The comprehensive audit programme starting in 2005 will cover all
the language proficiency Standards of Annexes 1, 6, 10 and 11 Compliance Checklists: the State will have to identify the level of
implementation of each provision contained in ICAO Annexes before the Audit. The ICAO auditor will validate the information submitted prior to the on-site audit
During the actual audit, the auditor will assess the steps States have taken to address the new language requirements using a standard protocol
FSS – Oct. 05
ICAO – EUROCONTROLEUROPEAN SEMINAR ON LANGUAGE PROFICIENCY
FOR AERONAUTICALCOMMUNICATIONS
End