When it comes to safety, it is essential that we recognize the individual and collaborative teams that help us drive our mission of ensuring the safety of aviation worldwide. In this context, we want to shine a spotlight on Bongi Mtlokwa, whose professional journey has been defined by a steadfast commitment to advancing safety standards and practices on a global scale. Serving as a Safety Technical Officer with the South African Civil Aviation Authority (SACAA), Bongi’s responsibilities extend beyond national borders through her work as the Chairperson of ICAO’s Safety Management Panel (SMP).
The SMP is composed of a multi-disciplinary team of experts familiar with ICAO safety management provisions who are involved in State Safety Programmes (SSP), implementation and oversight of Safety Management Systems (SMS), and the collection, protection, analysis, and exchange of data and information. The Panel studies and develops ICAO provisions for safety management in support of the ongoing development of international standards, recommended practices, and guidance material related to Annex 19 to the Convention on International Civil Aviation (Chicago Convention).
In 2023 Bongi and the SMP were honored with the prestigious International Award from the International System Safety Society, where they recognized the SMP’s contributions in aviation safety. Bongi shares her perspective on the SMPs unwavering commitment to enhancing aviation safety worldwide, and shares her insights and experiences through the following initiatives as:
- Chairperson of the ICAO Safety Management Panel
- Member of the ICAO Global Aviation Safety Plan study group (ICAO GASP SG)
- Member of the ICAO Global Plans Task Force (ICAO GPFT)
- ICAO Regional safety technical expert (on the SSP implementation project)serving as the chair and coordinator of the team of experts
- ICAO Subject Matter Expert (National Aviation Safety Plan (NASP), NASP SPM, SSP)
- Qualified ICAO trainer on SSP and Safety Risk Management Fundamentals
- Secretariat of the South African SSP Implementation Committee
Bongi Mtlokwa is currently employed by the South African Civil Aviation Authority as an Aviation Safety Technical Officer. Her main responsibilities include developing, implementing, and maintaining the State Safety Programme, as well as assisting the aviation industry in implementing Safety Management Systems. This work includes the development of safety regulations, technical standards, and other technical guidance materials. Before this role she served in the Aircraft Accidents and Incidents Investigation Division as a Senior Researcher for five years. In this capacity she worked to ensure aviation safety and security, including the collection of safety data and analysis that identified areas of concern in aviation safety that recommend safety interventions to reduce aviation related accidents and incidents.
Q: Bongi, you have had an impressive journey in the field of aviation safety. Can you tell us about your role with the South African Civil Aviation Authority (SACAA) and some of the experiences that shaped your career path?
Bongi Mtlokwa (BM): I serve in the role of a Safety Technical Officer where my responsibilities include supporting the South African State with the establishment, implementation, and maintenance of the State Safety Programme (SSP). This process involves drafting of SSP governance documents, policies, and procedures that are to be considered by our aviation safety and security committees.
I further support our inspectorate with Safety Management Systems (SMS) oversight responsibilities. This also entails writing procedures and developing tools for SMS oversight. I support our industry with the implementation of SMS through the provision of guidance material and tools in the form of written documentation, workshops, safety promotions, and various other industry engagements.
BM: Yes, indeed, it is a privilege and an honour to be recognised by the International System Safety Society. The International Award is presented to a person, group, or organisation for outstanding achievement or special service in the advancement of the system safety discipline in another country other than the United States. This recognises the achievements of the Safety Management Panel under my leadership.
Our Panel has spearheaded the development of a stand-alone Annex to the Chicago Convention (Annex 19) on Safety Management. We developed guidance material and contibuted to ICAO tools to assist Member States in the implementation of Safety Management. We also assisted States in understanding the concept of SMS, thereby developing and implementing their State Safety Programmes. It is therefore a team award that is dedicated to the Safety Management Panel as a whole.
Q: Can you share experiences from your previous roles that were significant to your success as a safety professional, or can you share challenges that highlighted why safety management is crucial?
BM: I would say it was my previous role, where I had the honour of working for the Accidents and Incidents Investigation Division which is an independent aviation accidents investigation unit reporting to the South African Government but is currently being administered by the SACAA.
My role there exposed me to what would happen should safety management systems fail in a State, and also where I was exposed to accidents that could have been prevented through proper implementation of SMS fueled my passion for proactive safety management (including data collection and analysis). This naturally speaks to the SSP and SMS. My current role therefore helps me to ensure that proper systems are in place to prevent accidents and to ensure that aviation serves its core function of connecting the globe and being the safest and most efficient mode of transport in the world.
Q: How do you view the current state of global aviation safety, considering the evolving complexities of the air transportation system, and what inspired you to actively contribute to its improvement?
BM: ICAO’s global safety strategy, called the Global Aviation Safety Plan or GASP, has identified high-risk categories on the causes of aircraft accidents. These include runway safety, mid-air collisions, and controlled flight into terrain, to name a few. These categories contribute to the risk of fatal accidents and fatalities in the aviation system. Addressing global safety priorities requires innovative and advanced risk management capabilities. Our system is complex due to high traffic volumes, the introduction of modern aircraft systems such as UAVs, and addressing the impact of the environmental factors that require aircraft systems (engines) to use sustainable aviation fuels in order to preserve our skies. An integrated approach (safety, security, and environment) is crucial to addressing global aviation safety.
We, as Member States, contribute to the development and implementation of aviation safety plans, State Action Plans to address the environmental impact, and security plans. This gives us a holistic approach to addressing safety issues.
I contribute to the development of the GASP strategy, and I am also involved in the development of the Africa-Indian ocean Regional Safety Plan (AFI RASP). My role as a coordinator for the AFI SSP implementation project gives me a platform to develop strategies to address global, regional, and national aviation safety challenges.
Q: You currently serve as the Chairperson of the Safety Management Panel. What are the key objectives of this Panel, and how does this contribute to enhancing safety management globally?
BM: The SMP was established by ICAO’s Air Navigation Commission in 2011. It currently comprises over 100 experts from more than 40 States and international organisations. Since its inception, the panel has been involved in the initial publication and subsequent revision of Annex 19: Safety Management, as well as the development of guidance material published in the Safety Management Manual (Doc 9859).
As a result of the Panel’s work in support of the ICAO aviation safety agenda, the implementation of SMS is currently common practice in the aviation industry and States are gradually making progress implementing an SSP, contributing to the continuous improvement of aviation’s already outstanding safety performance.
The panel is currently engaged in contributing to the next edition of the ICAO Safety Management Manual (Doc 9859), and the new manual on the development of safety intelligence that will help the aviation community in having a structured approach to building safety intelligence (the advanced unedited version of Doc 10159 – Safety Intelligence Manual is expected the first quarter of 2025).
Key Contributions to System Safety:
- Promotion of the implementation of system safety and safety management concepts and processes in the aviation industry;
- Development of international standards, recommended practices, and guidance material related to safety management for the civil aviation industry;
- Development, publication, and review of Annex 19 to the Chicago Convention concerning safety management for states and service providers;
- Development of the Safety Management Manual (Doc 9859), and the new Safety Intelligence Manual (Doc 10159).
- A group of experts of the SMP contributed to the ICAO Doc 10144- ICAO Handbook for CAAs on the Management of Aviation Safety Risks related to COVID-19. (Published in May 2020);
- The Panel has continuously promoted the adoption of modern system safety approaches within ICAO standards, recommended practices, and guidance material.
Q: As the Chairperson of this Panel, how do you prioritise and guide their activities to align with the overarching goals of ICAO’s Safety Management Strategy?
BM: The main ICAO safety management strategy is contained in the GASP. The GASP has a goal for States and Regions to improve the implementation of safety management systems and SSPs. I am in charge of leading the panel’s work to develop SARPs and guidance materials, all of which support the ICAO’s safety management strategy and help to realise the GASP/RASP/NASP objectives.
Q: How do you stay updated on the latest developments in aviation safety?
BM: Not everything is published on public platforms; therefore, networking is my greatest tool. I connect with fellow professionals and keep myself abreast of developments. Naturally, I watch ICAO TV and read a lot to keep up with the latest news. I also monitor technological developments in other States that have a bearing on safety management strategies.
Q: The foundation of ICAO’s safety strategy is based on the implementation of a State Safety Programme (SSP) that systematically addresses safety risks. How does SSP implementation manage safety risks within the global air transportation system?
BM: The implementation of SSP ensures that States have the right policies and procedures to address safety risks. This ties in with the GASP goal of reducing operational safety risks. SSP ensures that each state is proactive in managing safety risks, not only in a reactive manner, but also in a proactive manner, through addressing latent conditions. The cumulative effect of effective SSP implementation contributes to the overall improvement of global aviation safety.
BM: Collaboration between ICAO and Member States ensures that States receives much-needed support in the implementation of SSP.
I personally appreciate the work of the Safety Management Team at the ICAO Headquarters, and especially the capacity-building workshops they have developed and delivered. Capacity building workshops provide States with much-needed skills on the implementation of various aspects of the SSP. Such engagements and platforms also provide an opportunity for States to learn from each other and share best practices.
The involvement of ICAO regional offices in providing regional-specific workshops according to each region’s needs is also much appreciated. I have had the honour of participating in and facilitating some of the capacity-building workshops and participating in State Assistance technical missions.
The AFI region has the SSP implementation project, whereby technical experts provide much-needed technical assistance on the implementation of SSP. I am in full support of the “No Country Left Behind” initiative; hence, any opportunity to collaborate with other stakeholders to uplift another state is welcome and supported.
ICAO is also benefiting from the contributions of experts from Member States. Most initiatives in the aviation safety arena are shared through this collaborative platform. Through this partnership, ICAO is also introduced to industry players such as aircraft manufacturers and designers, which benefits both ICAO and other States by providing early access and visibility to innovative ideas.
Q: How do you balance the theoretical aspects of safety management with the practical implementation in the aviation industry?
BM: Being involved with the industry means hearing what is happening on the ground through individual consultations that will take place with different inspectors and the industry.
Industry engagements, such as seminars and workshops, provide a great opportunity to learn what is happening on the ground. We get to understand the implementation challenges and find ways to address them. The workshops enable us to assist States in transforming the theoretical knowledge into practical implementation. This is also achieved through various capacity-building initiatives.
Q: How do you integrate the principles of system safety into your work with ICAO (or the SACAA) and the broader aviation safety community?
BM: As a Safety Technical Officer, the principles of system safety are an integral part of my job. The same applies to my responsibilities as the Chairperson of the SMP. The principles of system safety are, by default, integrated into my work. I guide the SMP in the review of safety tools and spearhead the workshops to assist Member States in safety management.
In South Africa, I am responsible for the development and review of Safety Management-related regulations working for the Civil Aviation Regulator, the SACAA. I have to ensure the timely incorporation of safety management Standards and Recommended Practices into our law. I also have to ensure that the industry is empowered to properly implement safety management regulations and technical standards.
Q: How do you foresee the future challenges and opportunities in advancing aviation safety or system safety, and do you have insight into how these challenges can be addressed?
BM: The lack of capacity in Member States will continue to be a challenge in the foreseeable future. This can be compounded by the limited resources at the disposal of member States. In some areas, a lack of political support will also add to the existing challenges.
The continuation of already existing initiatives like, capacity building, pooling of resources, regional approaches, and engagement with concerned States at the highest possible levels will go a long way in addressing these challenges. Communication and the sharing of best practices will also help.
Q: With your experience and leadership roles, how do you perceive the role of collaboration and partnerships in achieving a safer and more resilient global aviation ecosystem, particularly in the context of your involvement with ICAO?
BM: Aviation safety is an issue of global importance. Lack of effective implementation of ICAO SARPS affects the safety of the whole region. If one region is unsafe, that has consequential effects on global aviation.
Addressing safety concerns in one State is, therefore, an issue for all Member States. It is on this basis that ICAO is stressing global collaboration in tackling aviation safety challenges. There are partnerships and collaborations amongst the different States and regions aimed at collectively achieving a safer and more resilient global aviation ecosystem. It is on that basis that we see developed countries pledging resources to assist developing States in capacity building, infrastructure acquisition, and the establishment of sustainable systems.
Q: What advice do you have for individuals aspiring to pursue a career in aviation safety or related fields, and/or how do you ensure continuous learning and professional development in the ever-evolving field of aviation safety?
BM: First and foremost, aviation safety is the responsibility of everyone involved. For one to have a successful career in aviation safety or related fields, they have to integrate aviation safety into their lives. They should know that safety is not negotiable and cannot be bought. Honesty and integrity are always required in this career.
One has to always have the zeal to learn and be process-oriented. Keeping abreast of the developments in this ever-evolving field is a fundamental requirement. This field requires a person who has the patience to pay attention to finer details. Safety culture should be embedded in your daily professional life.