OCCUPATION HAZARDS IN AFRICA

 

Introduction

An   occupational   hazard   is defined   as   something   unpleasant   that occurs due to one's job or a risk associated with a particular occupation (job).

Air traffic control (ATC) is a profession whose main responsibility is to prevent collisions between aircraft. The task is discharged in accordance with international standards and recommended practices established by the International Civil Aviation Organisation (ICAO) and reinforced by national legislation of contracting States. Air traffic controllers (ATCOs) are required to have a special aptitude for the job, undergo specialized training and meet special medical fitness standards.

The international nature of the job would have led one to believe that the problems associated with the profession should be similar worldwide. The real situation, however, is quite different. Of course there are common hazards or risks found almost everywhere: stress, loss of licence due to medical or other reasons and legal liability. Nevertheless, these problems affect ATCOs in Africa in a unique way. Many others are prominent only in this part of the world. And in the continent itself there is a wide variation in the extent of the phenomenon. This presentation, therefore, represents the average situation.

 

Political Persecution

One of the most common risks facing air traffic controllers in Africa is political persecution. Sensitivity to alleged political bias is a real problem. Even where political pluralism is officially allowed, politicians in power would be suspicious of professionals who display the slightest inclination to the politics of the opposition parties.

 

Minor errors or professional mistakes can easily-lead to a controller's dismissal. Authorities attach so much emphasis on special handling of VIP flights that ATCOs often face a difficult choice between following ethical and professional guidelines and succumbing to politically motivated courses of action. Sometimes, ATCOs are made scapegoats for the failure of state security services or other state organs. In an incident which occurred in the mid 1970's, government soldiers killed an ATCO on duty, after a rescue commando raid (at an airport) which exposed the incompetence of the government's Intelligence Agency. The poor air traffic controller was alleged to have collaborated with the 'enemies'.

 

In yet another sad but true story, facts of an aircraft proximity incident were twisted in order to demonstrate an assassination attempt simply because one of the aircraft involved was a presidential flight! The ATCOs involved were jailed, suspended or dismissed. There are also accounts of ATCOs being subjected to extra-judicial corporal punishment due to alleged causes of ATC incidents, especially if they involved VIP flights.

 

ATC managers for their part contribute to the frustration of air traffic controllers. They are known for their intolerance to criticism of their management styles. In this regard their reaction, to victimise ATCOs, is not much different from that of politicians.

 

Consequences of Industrial Action

In many countries worldwide, the right of workers to strike as a result of Industrial disputes is taken for granted. In several African countries, however, air traffic control has ironically been categorized as an 'essential' service. The implication is that strike action is illegal under any circumstances. Even where the law does not explicitly prohibit industrial action, move to take such action can conventionally be classified as "treason", with terrible consequences. Therefore, there is no effective channel for ATCOs to air their grievances.

Disrespect for the Rule of Law

While courts are supposed to be the guardians of justice in any modern civilization, it is not uncommon in Africa for governments to totally disregard court judgments. In recent years the continent has witnessed a number of cases whereby authorities have simply disobeyed court rulings, reinstating dismissed air traffic controllers.

 

Legal Liability

It is a common legal concept that employers should be vicariously liable for actionable torts (civil wrongs) committed by their employees in the course of the duties. The concept, has I however, found little room for application in the continent. In the case of accidents or incident attributable to air traffic control, ATCOs have, more often than not, been severely punished. The employer never accepts and/or share of his responsibility.

 

The ICAO philosophy on accident/incident investigation is geared towards finding the cause so that similar occurrences are avoided in the future. However, in Africa the emphasis is to try to find a convenient culprit; punish him and close the case, with the relevant authorities coming out clean!

Pathetic Working Environment

 

In air traffic control rooms it is rare to find radios in good working condition. The rooms are noisy. Conversations between pilots and the controllers are very difficult. The required FIR, TMA and Instrument Approach Procedure maps and charts are either missing, in tatters or are horribly outdated.

It is not surprising to find control room infested with rats, cockroaches, mosquitoes and a host of other pests posing a serious health, hazard to the controllers. Un-insulated electric- wire, broken furniture, cracked glass windows and ceilings peeling off, are a common sight. Many control rooms do not have working air conditioners. Light bulbs are either missing or burnt out. Toilets are leaking, if they happen to have running water at all! Lifts to the control towers are unserviceable. There are no emergency exits. In the case of a fire, the tower controller is supposed to slide down a rope dangling from outside the tower cab; the rope itself made of combustible material.

 

Reliable and comfortable transport to/from work is essential for personnel who perform a highly responsible job such as air traffic control. However, it is common for ATCOs to depend on crowded public transport buses (or even lorries) to ferry them to work. They have to wait for long hours for the transport and when they get to work they are tired, frustrated and hardly disposed to take over watch. Before the end of their shift, they start worrying about the repeat rough journey back home. In short, efforts by ICAO to impart awareness to States on tin importance of human factor issues in air traffic control has not had a noticeable effect so far. All the above-enlisted shortcomings demonstrate the .uncomfortable working environment contributing to stress which may increase the risk of human error.

 

Inadequate Staffing levels

There are generally no specific guidelines followed in determining the required number of ATCOs to man control positions. To cut costs, authorities would normally put the minimum number of staff per shift. While duty periods for flight crew members have been regulated, working hours for ATCOs are not controlled. The main result of inadequate staffing levels has been fatigue - a dangerous phenomenon in air traffic control.

 

It is often argued that low-level traffic does not merit recruiting more ATCOs. The point missed here is that for a fatigued air traffic controller, it takes only TWO aircraft to cause a mid-air collision - not necessarily a crowded sky! A control position is usually assigned one ATCO at a time. If the controller has to attend to a call of nature, the obvious option is for him to abandon the position, albeit temporarily. Suppose an emergency or flight confliction occurs: is the prospect not frightening?

Air navigation legislation requires that there should always be a pilot at the controls whenever an aircraft is in flight, even if the aircraft is equipped with an autopilot system. In air traffic control, although a similar provision may exist in the local facility instructions, the requirement cannot be met in a situation where a single ATCO has been assigned the position, especially for long shifts such as those lasting for 12 hours or longer.

 

Lack of Health Care

Air traffic controllers are required by law to be medically fit as per standards set in ICAO Annex 1 (Personnel Licensing) to the Chicago Convention. It is indisputable that good health can only be achieved mainly through a balanced diet, regular exercises and living in a hygienic environment. Yet due to poor remuneration   and   working   conditions of ATCOs in Africa, proper diet and adequate housing are hard to come by. The required medical fitness is difficult to achieve or maintain. The economic situation, together with the fact that there are, in most countries, no loss of license insurance or medical care schemes (for ATCOs), make ATC an unattractive profession.

 

Lack of Training/Retraining

Perhaps it is safe to assume that a good number of air traffic controllers receive adequate basic training leading to initial licensing. However, after qualification there has been little effort for refresher training or retraining when new procedures or equipment are introduced. Aviation is an industry, which has undergone a rapid technological advancement in a relatively short period. Pilots, technicians and other operational personnel have been keeping pace with the changes through training organized by the air operators. Air traffic controllers lag very much behind. Many control rooms use the same old and outdated equipment of decades ago.

 

Familiarization flights on modern aircraft are not pursued. Administrators do not appreciate the relevance and importance of training and retraining. ATCOs find themselves less confident in discharging their duties. An inferiority complex sets in as they realize that pilots who are supposed to obey controllers' instructions are technologically more knowledgeable!

 

Lack of Recognition

The other problem affecting the ATCOs profession in Africa (and related to the issue of training) has to do with the fact that in most countries, recognition of professions is only accepted for those who have attained a formal university degree. Unfortunately, the majority of air traffic controllers do not hold that credential.

 

Of course this is a misconception. We who are familiar with the aviation industry know that a competent professional pilot or air traffic controller, apart from having reasonable academic qualification, need the necessary aptitude and skills - not degrees. A senior Concorde Captain, quotes a vivid example, would not need degree in aeronautical engineering, yet commands a great deal of public respect and admiration.

 

The problem of second care opportunities for air traffic controllers was discussed at the ILO-organised conference way back in 1979. ATC is such a specialised profession that controllers cannot easily adapt their knowledge and skills to perform other jobs. Also, ATC is rarely provided in the private sector, as there are very few private operated airports in Africa. Most ATC are therefore stuck with their lowly pay jobs in the civil service. There is little hope for alternative careers or employers.

Poor salaries and working conditions for traffic controllers are some of the direct consequences of their lack of university education. And to this, add the known poor state of the economies of African States. The lucky thing about pilots is that most of them are employed by profit generating airlines or other air operators who can pay them handsomely. Most air traffic controllers are typical low income civil servants.

 

Remedies

There are a number of possible course action that can be taken in order to remedy the risks or hazards facing, air travel controllers in Africa or to minimize the effects. The most competent experts in profession of air traffic control are the air traffic controllers themselves. Even some of the administrators who are responsible for the welfare of ATCOs do not have a thorough knowledge of the nature   and   complexity   of the   profession. ATCOs in Africa, therefore, have the duty to     enlighten   their   employers   about   the profession. Of course, the immediate obstacle to this approach may be that the relevant administrative officials will resist any attempt to 'educate' them. For them agreeing will mean admitting their ignorance.

 

To enable ATCOs to perform the educating task, they must be thoroughly conversant with materials in a wide range of documents, which may be utilized in support of the ATC profession. Such documents include the conclusions reached at the International Labour Organisation (ILO) Meeting of Experts on Problems Concerning Air Traffic Controllers (1979), IFATCA Manual and relevant ICAO annexes and manuals.

 

Publicity of the profession in the press, schools and to the public in general, is another good strategy. Public awareness will inevitably filter through to government officials, politicians, the military and other relevant organs. Well-publicized meetings of the local air traffic controller's associations and the hosting of regional or international ATC events can also do the trick.

 

Most African countries are categorized as underdeveloped. The low income of ATCOs is a reflection of the poor state of their economies. However, it is also a fact that the aviation industry contributes significantly to the national incomes of these States. Unfortunately, revenue generated through aeronautical charges is not reinvested into upgrading aviation infrastructure or welfare of aeronautical personnel, including ATCOs.

 

One tested solution has been the formation of semi-autonomous civil aviation authorities, with freedom to spend revenue for improving aeronautical facilities/services and income of their workers. Adequate salaries and good working conditions will go a long way in solving most of the problems listed in this presentation.

 

Air traffic controllers should also seek the support of influential Statesmen with an ATC background   or   interest.   The   exercise   has already started in Africa. Also to be lobbied are legal personnel and Parliamentarians who may influence the introduction of laws favourable to the air traffic control profession, such as those regarding legal liability, respect for the rule of law and duty time limitations.

 

A compromise to the dispute about academic qualifications and recognition of the profession could be for ATCOs to pursue university degree courses, preferably under the distance learning programmes. In addition to professional recognition, this will enable qualifying air traffic controllers to have access to alternative job opportunities in case of dismissal, loss of ATCOs licenses or disqualification due to medical or professional reasons.

 

Air traffic controllers in Africa, through IFATCA, should try to influence international organizations such as the ILO and Human Rights groups to take steps geared at stopping abuse of the ATC profession in Africa. While it may be difficult for the victimized ATC Os in individual countries to publicly air their complaints, civil societies should step in and call for remedial action on their behalf.

 

It is apparent that a good number of ATCOs and their administrations are either not aware of, or are indifferent to, the training guidelines provided in the ICAO Air Traffic Services Planning Manual (Doc. 9426). A thorough study of the provisions in the manual will enable ATCOs negotiate with their civil aviation authorities and air operators on the modalities of implementing a programme for familiarization flights. IFATCA's training policy, included in the Federation's Manual, also provides additional information on other forms of training required for ATCOs.

 

Conclusion

ATC occupational hazards, risks or problems in Africa include political persecution, jail sentences, summary dismissal, unfair legal liability, extrajudicial punishment, lack of recognition, inadequate pay, fatigue (due to unsatisfactory working environment) and a number of others. Nevertheless, however tough the going is, air traffic controllers have a good chance of tackling the problems, if they direct their efforts towards at least some of the remedies suggested in this humble presentation.