English Language in ATC A Status Report Drazen Gardilcic, FAA PRICE Member 2/28/2019

Background Role of communications in a large number of accident investigations. Of 28,000 Aviation Safety Reporting System reports, 70% cite problems related to information transfer The role of communication in aviation safety has been highlighted in a number of accident investigations. Increasing concern has been expressed in many industry quarters, not only about an insufficiency of language skills in radiotelephony and, buy inference, the insufficiency of ICAO provisions, but the degree of non-compliance with the existing provisions. Some safety experts contend that the most vulnerable link in the airspace system is information transfer between air traffic controllers and pilots. A review of 28,000 reports in the Aviation Safety Reporting System reveals that over 70% of the problems cited were in information transfer. 2/28/2019

Background The ICAO 32nd. Assembly Resolution A32-16, called “for steps to ensure that air traffic controllers and flight crews involved in flight operations in airspace where the use of English is required, are proficient in conducting and comprehending radiotelephony communications in the English language” The Assembly urged that the matter be considered with a high level of priority; to progress the task, the ICAO Air Navigation Commission established an ICAO Study Group comprised of representatives from ICAO Member States and International Organizations. 2/28/2019

Background In order to implement that resolution, ICAO Annexes and its SARPS would have to be amended either through meetings of the Assembly, Council, Air Navigation Commission or through a Panel or Study Group. For this project a Study Group was created Proposals for amendments to the ICAO Annexes containing the SARPS originate with a Member State either through meetings of the Assembly, Council, Air Navigation Commission (ANC), or through a Panel or Study Group. The Secretariat develops the proposals and presents them to the ANC at a preliminary hearing where they are debated and, as necessary, refined. They are then notified to all Contracting States and relevant international organizations for their consideration. The States’ comments are summarized, and the amended proposals presented to the ANC for final review, at which point the ANC may decide to present the proposals to the ICAO Council or not. If the recommendation is made to present the proposals to the ICAO Council, the Secretariat drafts a third Working Paper for the Council session. The Council may adopt the proposals, and if not disapproved by a majority of States, the amendments incorporating the SARPS will become applicable on a designated date 2/28/2019

PRICE Study Group PRICE SG was convened in November of 2000. PRICE is comprised of representatives from Argentina, Canada, China, France, Russia, Ukraine, the United Kingdom, the United States, EUROCONTROL, IATA, IFALPA, IFATCA and ICAO PRICE met three times in 2000 and 2001. The Proficiency Requirements in Common English Study Group, or PRICESG, is comprised of aviation and linguistic experts from Argentina, Canada, China, France, Russia, Ukraine, the United Kingdom, the United States, the European Organization for the Safety of Air Navigation (EUROCONTROL), the International Air Transport Association (IATA), the International Federation of Air Traffic Controllers Associations (IFATCA), the International Federation of Airline Pilots Associations (IFALPA), and the International Civil Aviation Organization (ICAO.) 2/28/2019

PRICE Study Group Based on recommendations from PRICE, the Secretariat submitted proposals to amend Annexes 1, 6, 10, 11 and Doc 4444 PANS-ATM to the Air Navigation Commission in November of last year. The proposals are outlined in a State Letter which was sent to States last May PRICESG presented the Secretariat with a set of recommendations developed to satisfy the requirements of the task set by the ANC, to the extend that current State resources, national considerations, and political, social, and economic circumstances will allow. In essence, the group recommended that the provision for the use of the language of the station on the ground, and English, be elevated from a Recommended Practice to a Standard. Further, the group established a required minimum level of proficiency and certain testing requirements. The group also recommended that responsibility be vested in operators and ATS providers for ensuring that their operational staff meet the required level of language proficiency. 2/28/2019

PRICE Study Group The case for English as the language of international civil aviation is much less political than it is pragmatic Because language is so closely tied to our sense of national and cultural identity, humans are very naturally sensitive to issues of language use and policy 2/28/2019

PRICE Study Group In the case of international aviation, however, perhaps more than in any other arena, English sheds all connection to political agendas, real or perceived, and becomes simply another tool for increased safety and efficiency of aviation operations In no other arena, does the English language “belong” less to traditional English-speaking countries than it does to the many users of the language who have adopted it for their use. That English is a widely used international language does not, however, mitigate the complex nature of the implementation of ICAO language proficiency standards, nor the requirement for sensitive articulation of the need for such standards. The optimum strategy is not to prescribe, coerce or threaten, (although the proposed new provisions would provide a robust platform for improvement); it is to appeal to the innate responsibility of every controller and pilot using domestic and international airspace. 2/28/2019

Annex 10 Change Proposal The air ground radiotelephony communications shall be conducted in the language normally used by the station on the ground or in the English language The English language shall be available on request from any aircraft, at all stations on the ground serving designated airports and routes served by international air services 2/28/2019

Annex 1 Change Proposal Recommendation: Flight crews, air traffic controllers and aeronautical station operators should demonstrate the ability to speak and understand the language used for radiotelephony communications to the level specified in the language proficiency requirements in the Appendix 2/28/2019

Annex 1 Change Proposal (Cont.) As of 1 January 2008, the language proficiency of flight crews, air traffic controllers and aeronautical station operators required to communicate in a language other than a mother tongue or native language, shall be formally evaluated at intervals in accordance with an individuals demonstrated proficiency level (in accordance with the rating scale) 2/28/2019

Annex 6 Change Proposal Operators shall ensure that flight crew members demonstrate the ability to speak and understand the language used for aeronautical radiotelephony communications as specified in Annex 1 2/28/2019

Annex 11 Change Proposals An air traffic services provider shall ensure that air traffic controllers speak and understand the language used for radiotelephony communications as specified in Annex 1 Except when communications between air traffic control units are conducted in a mutually agreed language the English language shall be used for such communications 2/28/2019

Doc 4444 Change Proposal “…ATS personnel and 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 – Personnel Licensing” 2/28/2019

Status Comments to the State letter proposing the changes have been received by the Secretariat. Results will be discussed by the ICAO Commission in November 2/28/2019

Conclusion States and Organizations are urged to support ICAO activities aimed at implementing the proposals Independently, that States may wish to consider internal preparations aimed at national compliance with the newly proposed minimum English language standard 2/28/2019