28TH ANNUAL CONFERENCE, Frankfurt/Main, Germany, 8-11 May 1989WP No. 69Licensing of Air Traffic Controllers |
Introduction
With the worldwide increasing demands on ATC to meet the challenge of a growing Aviation industry, the need for ATCOs to be properly trained and competent to carry out their duties, is paramount. To ensure that the highest standards are achieved and maintained, it is essential that ATCOs are correctly licensed in accordance with ICAO recommendations, as set out in Annex 1 – Personnel Licensing. The issue of ATC Licences, the attention to monitoring Medical Standards, and the Proficiency Checking of an ATCO’s competence, vary throughout MAs. When issued, ATC Licences may be suspended, revoked, or have restrictions placed upon them. Formal Competency Checking, Illness or other Medical conditions, Minimum Time experience, and Age, may well have an immediate effect on the issue, suspension, or revocation of an ATC Licence.
Discussion
ICAO
ICAO recognises the necessity to check the proficiency of personnel who perform activities which, unless performed correctly, could jeopardise the safety of Aviation. The recognition of this competency is generally made by issuing a Licence and Annex 1 – Personnel Licensing, has been created and developed to specify the requirements for the issue of Licences and Ratings. The personnel Licensing and Training Panel (PELT) of ICAO are presently engaged in reviewing and amending Annex 1.
Work on Flight Crew Licensing has been completed and was adopted by ICAO in March 1988, becoming effective 1st August 1988. With respect to Licenses for non-flight crew personnel, two study groups are being formed. One group will concentrate on Aircraft Maintenance Engineers, the other for Air Traffic Controllers. The study Groups will be less formal but will not alter the working process of participants. IFATCA has been invited to join the ATC Study Group; and, as this is a Study Group, rather than a Panel, IFATCA will have participant status instead of just being an Observer.
The ATC Study Group will be formed in 1989 and will have to provide a draft for PELT by late 1989/early 1990. It is hoped that ICAO Council approval will be given in 1990, with an amendment to Annex 1 following thereafter. The Requirements for the Issue of an ATCO Licence can be seen in the relevant parts of Annex 1, attached as an Appendix to this paper.
AIR TRAFFIC CONTROLLER LICENCE
ICAO recommends that a Contracting State shall require an applicant for an ATCO Licence to meet certain requirements in respect of age, knowledge, experience, skill and medical fitness, as well as additional requirements for at least one of the ATC Ratings (Aerodrome, Approach, Approach Radar, Area, etc.). (Annex 1 – 4.3.1)
ICAO also makes provision that unlicensed State employees may operate as ATCOs on condition that they meet the same requirements. (Annex 1 – 4.3.1)
The ATCO Licence in itself carries no privileges. These are conferred with additional Ratings to the Licence, which actually characterise the specific duty/duties of the ATCO. That is, Aerodrome Control Rating, Area Control Rating, etc.
ICAO comprehensively sets out the requirements for an ATCO Licence, but also allows for non- licensed ATCOs provided they also meet the requirements specified in Annex 1. This may seem to be a contradiction of terms. What is the benefit of being a licensed Air Traffic Controller? The flexibility that ICAO allows Contracting States reduces the Status of some ATCOs, Some are Licensed, others are not.
The ATCO Licence is more than just a piece of paper. It is an official recognition of the skills and qualities that an ATCO has developed, the knowledge that has been gained, and the experience that is required to fulfil the functions of the ATCO Profession. In an attempt to set International Standards in ATC, it would be hoped that ICAO would ensure that the issue of an ATC Licence was a mandatory part of the whole Licensing System.
In 1992, in Europe, there will be pressure to standardise many Professional qualifications for mutual recognition by Member States. Perhaps a “Euro ATC Licence” will be introduced. The issue of an “ICAO Licence” by Contracting States identifies that the Licence complies with the Annex 1 provisions. Regrettably, the ICAO Licence is not fully recognised and accepted by all Contracting States. There are many States who have individual requirements and specific differences to ICAO recommendations.
ISSUE OF AN ATCO LICENCE
A Multi-Step process must be completed before an applicant can be issued with a Licence. Namely:
PREREQUISITES
TRAINING
DEMONSTRATION OF COMPETENCY
ISSUE OF AN ATCO LICENCE – PREREQUISITES
AGE, EXPERIENCE, MEDICAL FITNESS.
AGE:
The ICAO recommended minimum age is 21. The maximum is left for Individual States to decide. In the U.K. the minimum age for a Non-Radar ATCO is 20, and for a Radar ATCO – 21. Existing IFATCA Policy recommends recruitment of ATCO candidates between the ages of 17 and 25. As far as maximum age is concerned, IFATCA recommends that at the age of 50, the ATCO shall cease from Active Controlling duties.
EXPERIENCE:
This may be difficult to determine. Normally the complexity of the task will dictate the minimum experience necessary. The important consideration must be whether the individual demonstrates a satisfactory level of maturity and has had sufficient time to develop the professional skills necessary for the issue of the ATC Licence. ICAO recommendations are shown in 4.3.1.3 a), b), and c). (See Appendix A). IFATCA recommends a 3-year Curriculum for Training to Licensing Standards.
IFATCA recommends that the training programme for ATCOs should be in three phases before licensing, namely classroom instruction, ATC simulators, and Practical experience, with an optional fourth phase involving flying training to private standard.
MEDICAL FITNESS:
ICAO recommends that Controllers should meet the standards of a Class 3 medical Assessment. Commercial Aircrew are required to be Class 1 and this includes Airline Pilots, Flight Engineers and Flight Navigators. The International Labour Office (ILO) has recently reclassified the Air Traffic Control Officer into the Professional Category – the same classification as Airline Pilots.
Apart from some differences in physical and mental requirements, the main difference between Class 3 and 1 is the regularity of medical examinations, particularly with regard to the Electro Cardio-Grams (ECGs). ICAO requires an ECG at the initial examination and then every 5 years after the age of 40. Given that the incidence of Heart Disease is greater in the U.K. than most States, ATCOs in the U.K. are required to meet the requirements of a Class 1 assessment. (In the U.K., Commercial Aircrew and ATCOs have ECGs every 2 years between the ages of 30 and 40. At the age of 40, Aircrew have ECGs and medicals every 6 months, ATCOs annually). Present IFATCA policy endorses ICAO recommendations. Additionally, IFATCA recommends psychological and aptitude testing specifically designed for ATCO so that mental fitness can also be assessed. In the ATC world, it is apparent that Medical Fitness Examinations and Assessments vary in MAs. An initial medical examination is a requirement of licensing, but with a Class 3 requirement, the ATCO does not have progressively regular medical examinations as he/she gets older. It may well be considered that the stresses and strains of the ATC profession, working irregular hours in varying shift patterns, requires a greater requirement to be assessed as medically fit. The application of a Class 1 medical assessment would check the medical proficiency of personnel to perform activities which, unless medically fit to do so, could jeopardise the Safety of Aviation not to mention the individual.
ISSUE OF AN ATCO LICENCE – TRAINING
BASICS, RATING, VALIDATIONS, CONTINUATION
BASICS:
Training is one of the most important parts of the licensing system. Initial Training leading to the issue of a basic ATC Licence may cover such items as Navigation, Meteorology and Legislation – ICAO and for individual states. It is suggested that to raise and maintain the highest standards of ATC, IFATCA should recommend that ATCO Training be carried out at approved ATC Training Schools or Colleges, following ICAO approved Courses based on ICAO Training Requirements.
IFATCA already recommends that Training Officers and Instructors should use the ICAO Training Manual Part D-2 to assist them organising Training Courses. Standardisation of Training will assist in the correct procedures being learnt, that Instructors are suitably qualified, and the training material and Instruction conforms to an International Standard. Additionally, the application of an approved Course can reduce the minimum level of experience, especially important when considering the urgent need to train more ATCO-s to meet the current shortages (Europe).
RATINGS:
After the issue of the basic ATC Licence, additional Ratings are added appropriate to the requirement demanded of the ATCO. Again the use of approved and standardised training Courses and Instruction can reduce the time spent in the Training process.
VALIDATION:
Once licensed and/or rated, Validation training will be carried out at the Individual ATC Units. Once, again, the requirement for formal training and excellence of instruction/supervision, will assist to maintain the highest standards and reduce the minimum experience necessary to undertake the duties safely and competently.
CONTINUATION TRAINING:
Something that is not universally applied, or implemented. Are there needs to re-train established ATCOs, or provide a continuation training to evaluate their ability to reach certain standards. Would the use of Simulators be beneficial, so as to be able to examine and review procedures for handling emergencies and procedural exercises for Radar Units?
The maintenance of Standards is the real requirement, and if competency is found to be deficient, then further training is an option that should be adopted. IFATCA already recommends that Licensed ATCOs should receive regular refresher training, as well as training on new equipment and procedures prior to their introduction.
ISSUE OF AN ATCO LICENCE – DEMONSTRATION OF COMPETENCY
Each Licence and Rating has specific skill and knowledge requirements. Each applicant must demonstrate compliance with the appropriate requirements of each Licence/Rating and Validation Stage. Once licensed, rated and validated, the ATCO may be subject to continuous, or annual, competency checks. Proficiency checking of ATCOs is already undertaken in some MAs and will shortly start in others.
The competency assessment usually takes the form of a State, or locally based State approved, examiner monitoring an ATCO in the ‘normal’ execution of his/her duties, in every rated/validated position. Additionally, as in the U.K., an Oral examination on local and State regulations, procedures and instructions, is carried out. The yardstick, by which the ATCO is considered competent, is whether the ATCO meets the original validation examination standard. Existing IFATCA policy recommends that a system of regular proficiency checking should be established for Air Traffic Controllers.
CURRENCY OF LICENCES
Depending on the requirements of individual States, two different types of Licences/Licensing are usually provided. Some Licences have a period of currency, which are limited to a defined time period and then expire. Renewal requires the holder to provide evidence of competency (minimum time experience qualifications, or from appropriately recognised competency checking procedures) and medical fitness (medical examinations by a State approved Doctor or medical establishment in accordance with regulatory requirements.
The other type of Licence (continuous type) is not limited to a defined time period of currency and can be issued for the “lifetime” of the individual (U.K.). The holder is allowed to exercise the privileges of the Licence (including Ratings) as long as he/she holds a current medical certificate (assessment as “fit”) and complies with the regulations detailing the actions necessary to ensure maintenance of competency.
In the case of the U.K., the ATC Licence has no defined time of expiry (“lifetime” of the holder), but is subject to the inclusion of an annual medical examination certificate and competency checking procedures established and monitored by the State Civil Aviation Authority.
To maintain the standards of medical fitness and competency, and to uphold the integrity of ATCO Licensing procedures, it follows that regular medical checks and competency checking should be considered as absolutely necessary. Existing IFATCA policy supports this statement.
ICAO recommends that routine medical examinations should be carried out at intervals not greater than 2 years for Air Traffic Controllers. Yet for a Flight Navigator or Flight Radio Operator Licence, ICAO recommends that medical examinations should be carried out at intervals not greater than 1 year. It surely follows that an ATCO should be at least compared with these Professional Licence requirements, and should have medical examinations at comparable time intervals.
SUSPENSION OR REVOCATION OF ATC LICENCES
An ATC Licence is normally suspended, or revoked, on medical grounds. That is, a Controller failing to meet the requirements for the issue of a medical certificate, or medical approval. These medical grounds may be a temporary illness or disability, of Pregnancy, for example. Following a satisfactory medical assessment, the Licence suspension will be lifted, or re-issued with certain operating restrictions placed on the holder. Such as, the need for the holder to use spectacles to correct visual deficiencies. Or, if high blood pressure requires treatment and there is an additional requirement for the Licence holder not to work alone, but to be accompanied at all times by another qualified Controller.
There are other medical conditions that may cause the Licence to be immediately revoked, such as Heart Disease, Diabetes, or Epileptic Fits.
If a Licence is suspended for a long time period, the minimum experience to maintain the validity (validation) of Ratings may also be affected. ICAO recommends that a Rating shall become invalid when an Air Traffic Controller has ceased to exercise the privileges of the Rating for a period of six months (Annex 1 – 4.4.5.2.). This is also IFATCA policy. (In the U.K. this time period is reduced to 90 days).
ICAO also recommends that the Rating shall remain invalid until the Controller’s ability to exercise the privileges of the Rating has been re-established. This may require an additional competency examination before the Licence is re-issued.
Competency may well have a deciding factor on the withdrawal of an ATC Licence. As in the case of an ATCO failing to meet the Competency Checking requirements set by the State. Additionally, following an Accident or Incident, the competency of the ATCO may well be questioned. It is hard to imagine that a Licence would be revoked immediately, but a Licence may well be suspended pending an Inquiry. Existing IFATCA policy recommends adequate measures to re-train ATCOs before a Licence is revoked for competency reasons.
Age is surely an important contributory factor to declining competency in the older Controller. As a Controller gets older, the ability to deal with the busier and complex traffic situations begins to diminish, and it may be difficult for older Controllers to maintain competency in a busy traffic environment. IFATCA already recommends that at the age of 50 the ATCO shall cease from active controlling duties. The Age for Retirement for ATCOs varies in MAs. In most MAs the Age limit is between 55 and 65. In the U.K. two standards apply. State employed ATCOs retire at 60 (or before), Non-State ATCOs can be employed until the are 65. Professional Aircrew usually retire between 55 and 60 dependant on the Airline and type of flying they do.
In the U.K., Commercial Pilot Licences are automatically revoked at the age of 60. Theoretically, if he/she can remain medically fit and appropriately competent, a Controller in the U.K. can hold a Licence beyond the age of 70!
Conclusions
The position of an ATCO is a challenging one. It requires many qualities of experience, competence, and medical fitness. The challenge of busier Air Traffic Environments will require the highest Professional Standards to be met within ATC.
It is considered that ATCOs should not only be correctly trained and medically fit to carry out their professional duties, but also to be licensed in accordance with Internationally recognised requirements and procedures.
By Licensing the Controller, the Professional Status of the ATCO can be upheld and respected, and the skills, qualities and experience that a Controller requires to undertake his/her duties can be Internationally recognised and acknowledged.
As an International body representing Controllers worldwide, IFATCA should insist on the highest professional standards being attained by ATCOs and that ATC Licensing, in accordance with Internationally agreed standards, is adopted in all MAs.
Recommendations
The following recommendations are made to Conference for acceptance as IFATCA Policy:
All Air Traffic Controllers should be trained at ATC Training Schools or Colleges, in accordance with ICAO requirements.
All Air Traffic Controllers must be licensed.
All Air Traffic Controllers must hold Air Traffic Control Ratings appropriate to the duties they are undertaking.
All Air Traffic Controllers are medically assessed in accordance with the ICAO Class 1 Medical Assessment.
(Note: This policy was not accepted by conference)
The minimum Age for any holder of an ATC Licence should be 20 years of age.
(Note: This policy was not accepted by conference)
Last Update: September 20, 2020