CHAPTER ONE
BACKGROUND
Introduction
1.1 At the August 1996 Board meeting of Airservices Australia, the
Board formally authorised expenditure of up to $1 million on the purchase of alternative
equipment for marine rescue, the Precision Aerial Delivery System (PADS) manufactured by
Search and Rescue Australia Pty Ltd (SAR Pty Ltd), if that system was found to be superior
to those systems currently being used.
1.2 The Board's decision, and the subsequent finding of an
independent Evaluation Panel that the PADS system was superior, while being superficially
straightforward, represented a significant financial and logistic commitment on the part
of Airservices Australia to the replacement of its existing marine rescue system.
1.3 However, the events which occurred in the lead-up to the Board's
decision, the actions taken by the Evaluation Panel in forming its view, and the
subsequent efforts by Airservices Australia to purchase and commission a number of PADS
units, are so complicated that the significance of that single decision has become lost in
a mire of controversy, accusation, counter-accusation and questionable professional
conduct. The two major parties, Airservices Australia and SAR Pty Ltd have been, and still
are, embroiled in a deleterious and seemingly intractable conflict.
1.4 The conflict between Airservices Australia and SAR Pty Ltd has involved
quite a number of other individuals and organisations. Those central to
the dispute include the Minister for Transport and Regional Development,
the Hon John Sharp MP (and his officers), the RAAF's Aircraft Research
and Development Unit, the Civil Aviation Safety Authority and in particular
its Chairman, Justice Fisher, and professionals from a number of aviation
service companies (in particular, Aerospace Technical Services and Navair).
A list of key participants is given in Appendix 3.
Regulation of Air Services and Safety
1.5 In 1988, the functions of the Department of Aviation were placed
with a new statutory authority, the Civil Aviation Authority (CAA). At the same time,
responsibility for major airports was invested in the Federal Airports Corporation (FAC).
International and domestic aviation policy was retained by the Department of Aviation
(subsequently subsumed and now within the Department of Transport and Regional
Development), as was responsibility for accident investigation. In 1993, in order to give
prominence to safety regulation, a Directorate of Aviation Safety Regulation was
established under the Civil Aviation Authority (CAA).
1.6 However, in 1994, following a number of significant aviation accidents,
a separate Civil Aviation Safety Authority was established to independently
carry out the functions of the Directorate. Following that, on 6 July
1995, the responsibilities of the Civil Aviation Authority were subsumed
by a new statutory authority, Airservices Australia. [1]
1.7 In short, regulation of air services and safety in Australia is
currently governed by a tripartite structure with civil aviation services provided by
Airservices Australia (ASA), air safety regulation provided by the Civil Aviation Safety
Authority (CASA), and air safety investigation undertaken by the Bureau of Air Safety
Investigation (BASI). The Department of Transport and Regional Development, as directed by
the Minister, maintains a policy role.
Airservices Australia
1.8 The three major functions of Airservices Australia are air
traffic control, firefighting and rescue associated with air services (airports), and
search and rescue (SAR). The major strategic objectives of Airservices Australia are:
- to ensure an uncompromising approach to safety in decision-making and
operation of the authority;
- to continuously rebuild, operate and maintain a world-class air
services system;
- to ensure the efficiency of Airservices Australia's operations and
minimise charges consistent with safe and viable operations;
- to provide a cost-effective fire fighting service to standards which
satisfy customer needs and international obligations;
- to play a prominent role in the globalisation of air traffic
management systems and to offer assistance and cooperation to other civil aviation
authorities in the Asia Pacific region; and
- to develop an integrated management approach and focus on quality
of service. [2]
1.9 In the 1995-96 financial year, Airservices Australia had a total
operating expenditure of $530.7 million, a total operating revenue of
$579.6 million, and a retained profit of $6.8 million. [3]
In that year the authority employed a total staff of 4545 people. [4]
1.10 Airservices Australia is governed by a Board which was
appointed by the Minister on 5 July 1995. The inaugural Chairman of the Board, Mr John
Pascoe, resigned on 30 June 1996 and was replaced on 1 July 1996 by Mr John Forsyth. The
Board has two specialist committees: Safety and Environment, and Audit and Finance.
Search and Rescue in Australia
1.11 Search and rescue activities in Australia are currently divided
between Airservices Australia and the Australian Maritime Safety Authority (AMSA). In
addition, state emergency services and the armed services (particularly the RAN and RAAF)
may be involved. Of all search and rescue activities in Australia, by far the largest
effort goes into maritime incidents.
1.12 A Maritime Rescue Coordination Centre is located in Canberra and
an Aviation Rescue Coordination Centre is located in Melbourne. [5] At a local level, search and rescue is carried
out by voluntary groups - Civil SAR Units (CSUs) which are trained, equipped
and certified through Airservices Australia. For the most part, private
aviation companies provide the aircraft used in search and rescue and
are recompensed for expenses incurred when training or in action. There
are about 40 such units throughout Australia.
1.13 In the financial year 1995-96, with the assistance of state and
territory emergency services, Airservices Australia facilitated the rescue
of 314 people and coordinated the provision of 2990 flying hours of search
aircraft. The service, which employs 13 rescue and support staff at two
rescue coordination centres, carried out 423 searches of which more than
100 were aerial searches conducted on behalf of AMSA and other SAR authorities.
[6]
Search and Rescue Pty Ltd
1.14 The private company Search and Rescue Pty Ltd (SAR Pty Ltd) specialises
in the manufacture of equipment related to marine search and rescue. Mr
Laurence Gruzman, who has been involved in search and rescue for over
30 years, is Chief Executive Officer and chief pilot. Mr Gruzman's son,
Anton, is Managing Director. [7] The company is based at Merimbula on the far
south coast of NSW.
1.15 Following the death of a pilot in Bass Strait in 1983, Mr Laurie
Gruzman was prompted to investigate an alternative rescue delivery system
to that being used by the search and rescue service. After investigating
equipment used by the United Stated Coast Guard in 1985, he devised an
aerial delivery system for marine assistance and rescue, which he called
PADS (Precision Aerial Delivery System). After several year's development,
the system was certificated by CASA in 1988. Since that time PADS has
undergone considerable modification. [8]
1.16 In 1994, the system received both an Australian design award and
the Powerhouse Museum award for design. [9]
In addition, Mr Gruzman has been awarded the Prince Philip Australian
Medal for developing PADS. [10]
Marine Search and Rescue Delivery Systems
1.17 A variety of systems have been devised around the world for
aerial delivery of rescue equipment. While over-land drops require a parachute delivery
system, marine drops do not normally use a deceleration parachute, but instead are aimed
up-wind from the target and deploy a buoyant line to assist in recovery.
1.18 The RFD Aviation rescue kit, for example, uses a small drogue
chute to deploy a buoyant line. The kit is dropped into the wind and past the target such
that the line is blown back over the target. The Irvin Industries Survival Kit Air
Droppable system delivers two linked life rafts in a manner such that they drift towards
the target. A deceleration parachute is also employed which makes it suitable for use with
high speed aircraft, although the aircraft must be fitted with a corresponding suspension
and release system (and thus becomes a dedicated aircraft).
1.19 There are three delivery systems which involve the straddling of
targets with heavy objects: the USCG Parachute Aerial Delivery System,
the Airservices Australia SRS multiple unit; and SAR Pty Ltd's PADS system.
The USCG system uses both a cargo parachute and a buoyant rope. [11]
The main difficulty encountered with conventional systems is that the
target, which is also moving down-wind, may drift off-course or at a faster
rate than the rescue raft. [12]
Systems Used by Airservices Australia
1.20 There are two main types of marine search and rescue systems
currently used by Airservices Australia: a single unit drop and a multiple unit drop
(either two or four linked units).
1.21 The single unit contains a standard liferaft and 220 metres of rope.
The unit is dropped at a speed of 90 to 120 knots and from at least 200
feet. [13] Two orange smoke markers are used as reference
points and the raft is dropped up-wind such that the target is first straddled
by the buoyant line, enabling the survivor to recover the raft via the
rope. A crew of at least one pilot and one dropmaster is required for
the operation.
1.22 Twin-unit dropping is carried out with two standard rafts
linked by 440 metres of buoyant line. These are dropped upwind and to either side of the
survivors so that the rope is driven around the survivors by the effect of the wind on the
inflated rafts. Preferably two pilots and two dropmasters, or one dropmaster and one
dispatch officer, are required for this system, and it is dropped from a height of 200
feet at 120 knots.
1.23 The most common system used for four-unit dropping is the Sea
Rescue Kit (SRK). This system begins and ends with liferafts, and has two marine supply
containers linked by buoyant rope between the rafts. The total spread of the SRK after the
drop is 690 metres. Being more buoyant than the supply containers, the rafts drift around
to form a 'U' shape, and so the units must be dropped cross-wind to the survivors.
1.24 In the systems used by Airservices Australia, the buoyant line
is payed out first. The liferaft which follows is attached to the plane by a static line
the purpose of which is to activate inflation of the raft as the line reaches its limit.
The static line is a length of rope, attached to the floor of the aircraft near the rear
door. Its length is determined by the type of aircraft being used and, after detachment
from the raft, is pulled back into the aircraft.
The PADS System
1.25 The Gruzman Precision Aerial delivery System (PADS) consists of
a plastic canister fitted with a release mechanism and shock absorbent flotation material.
Wound around the exterior is 330 metres of 8mm polypropylene trail line. A static line,
usually 6 metres long, is attached to the canister release mechanism and secured to a hard
point inside the aircraft via a cutting point.
1.26 According to the manufacturer, the PADS unit can be dispatched
from almost any aircraft through a horizontal hatch, a vertical door, a hole in the bottom
of the aircraft, or from a platform at the rear of the aircraft, or by a helicopter. After
dispatch the whole unit falls almost vertically to the end of the static line where it is
clear of the aircraft. The fall of the canister is arrested by the static line and the
contents are ejected, withdrawing the trail line until it reaches the end of its 330
metres. The trail line then automatically withdraws the steel release pin, releasing the
canister from the aircraft.
1.27 From the moment of dispatch all deployment of the trail line and
supplies are automatic and occur below and behind the aircraft. In a normal
delivery, the operation is complete six seconds after dispatch and the
static line can be immediately recovered by the dropmaster. The manufacturers
recommends that PADS be dispatched at 100 feet from a plane travelling
down-wind at 120 knots. The PADS system is multi-purpose in that it can
also be used to drop 'storpedos' (a supply dropping cylinder), or fuel
driven pumps with hoses and fuel. [14]
1.28 While other marine aerial rescue systems drop the trail line
first, the PADS system differs in that it drops the raft canister first and the trail line
then pays out from around the canister. For about 6 seconds, both raft and line remain
temporarily connected to the delivery aircraft and are 'towed' by the static line. While
this reduces the risk of the raft being blown or washed away from the rescue site, and
thus increases the probability that the rescue will be successful, problems may be
encountered with recovery of the static line by the dropmaster.
1.29 The company SAR Pty Ltd has, over a number of years, developed
and refined PADS, and the prototype has evolved through 'A' to 'E' versions. During the
early stages of the SAREDS evaluation (see later), prototype 'D' was used. After problems
were encountered with that version, a 'E' prototype was produced - the version purchased
by Airservices Australia.
Footnotes
[1] Formed by the Airservices Australia
Act 1995.
[2] Airservices Australia Annual Report
1995-1996, pp. 12-33.
[3] Ibid, p. 45.
[4] Ibid, pp. 38-39.
[5] Airservices Australia supports the
co-location of civil and maritime search and rescue within a single coordination centre
and to this end, in April 1996, closed the Brisbane SAR centre in favour of centralisation
in Melbourne. A previous rationalisation had seen the number of centres drop from 6 to 2.
[6] Airservices Australia Annual Report
1995-1996, p. 20.
[7] All citations in the text to Mr Laurie
Gruzman or, more simply, to Mr Gruzman, refer to Mr Laurence Gruzman.
[8] Evidence, pp. RRA&T 87-88.
[9] However, the CAA notes: 'Neither of
those two organisations consulted the CAA, the only Australian user outside Mr Gruzman's
own company, regarding the performance of PADS in service'. House of Representative
Standing Committee on Transport Communications and Infrastructure, CAA Response to
Submission 124 from SAR Pty Ltd " Search and Rescue in Australia", p. 10.
[10] Evidence, p. RRA&T 89.
[11] Adapted from notes provided in
answers to questions taken on notice by Airservices Australia at a hearing of the
Committee on 9 December 1996. Letter from Mr Ian Rischbieth, dated 28 January 1997, Part 7
(Folder 1).
[12] Evidence, p. RRA&T 131.
[13] A height of at least 200 feet is
required to avoid equipment damage due to the slower inflation time of the Switlik
liferaft.
[14] Adapted from manufacturer
specification sheet, SAR Pty Ltd A.C.N. 000-822-613, by John McCammon for SAR Pty Ltd, PO
Box 423 Merimbula NSW 2548.