FINLAND: ENCOURAGING EXPERIENCES IN MANPOWER PLANNING

(Published in The Controller 3/2001)

There´s no denying the fact that manpower planning is one of the most challenging issues, no matter whether it´s discussed by the employer or the employees. However, recent experiences in Finland have produced concrete evidence that there is a chance of success.

 Following industrial action and recommendations made by outside consultants in spring 1999 a working group was established to assess the optimum number of ATCOs required per ATS unit. The group consisted of three members nominated by the employer, CAA, and another three representing FATCA (Finnish Air Traffic Controllers Association). After 12 months of joint effort the final report of the working group was published in January 2001.

Outlining the task

In February-March 1999 inflamed industrial relations culminated in a 5-week controller strike. In the agreement to close the strike it was included that ”a working group be established in order to assess the optimum number of ATCOs required per ATS unit taking into account the need of ATS and the recent and future development of ATM systems and operational procedures”.

 This task was urged by a parallel working group which had been established to assist Finnish CAA and FATCA in improving their relations and to study specific professional problems which had been highlighted during the strike. In their report a team of occupational, labour market and ATC specialists recommended that ”the outcome of the assessment and consequent actions be put into practise without delay”.

 When closing the strike, both parties had committed themselves in a serious effort to improve the prevailing atmosphere. Thus finding a mutual opinion on the breakdown of the task was of crucial importance for future proceedings. After lengthy discussions (seasoned with a pinch of cultivated arm wrestling) it became clear that concentrating solely on the amount of operational controllers i.e. the frontline of everyday service provision, would not produce a satisfactory result, but the secret to success would lie in recognizing the needs for manpower outside operational quarters, too. Thus, it was agreed that the assessment be based on three different aspects which finally would provide the ideal amount of manpower per unit. They were called the Tactical Manpower, the OPS Core and The Strategic Manpower .

The Tactical Manpower, the OPS Core and the Strategic Manpower

The Tactical manpower was defined to be the amount of ATC staff required for the performance of operational duties each day. It mainly depends on variables such as services provided, number of sectors and/or positions and work-rest pattern within shifts. While the Tactical Manpower represents the absolute minimum of ATCOs, the OPS Core includes an agreed amount of staff (working days) reserved for vital activities such as continuation and refresher training, OJT, periodical proficiency and medical checks and absences (sick leaves, maternal/paternal leaves etc.).

In order to guarantee further and future needs of the air traffic services such as management, special tasks, projects in systems and procedures development and training, a broader approach is required. This is called the Strategic Manpower which can be provided by evaluating the amount of staff needed for these activities within a certain period of time. It calls for a closer study of individual units and their resources, not only quantity- but also qualitywise. There is no denying the fact that although the Strategic Manpower includes elements which within certain quarters may be regarded as surplus, it forms the soundest basis for manpower planning. While ensuring the resources for ongoing, uninterrupted provision of air traffic services, it also offers the only alternative for keeping pace with the rapid development of the field.

Modeling the manpower planning process

While some basic features and parameters of manpower planning may remain the same from country to country, the majority of the process is likely to be subject to national or organisational variations. In order to identify the key elements and the factors affecting the process a model chart was created.

The model chart is self-explanatory and may vary according to local factors. In this case the following key elements played a major role:

q       Flight scheduling and commercial agreements regulating the service hours and services provided *)

q       Service hours and staffing of individual positions based on daily shift rotation and work-rest pattern within shifts

q       Models of coping with ad hoc situations (occasional sick leaves etc.)

q       Operational infrastructure: airspace planning, procedures and advances in ATM technology

q       Recognizing the concept of the Strategic Manpower

*) Note: in Finland the national carrier and two regional airlines operate according to three different types of seasonal schedule: the wintertime (”normal”), the summertime and and the downgraded summertime schedule (summertime low season of domestic traffic in July)

When creating the model, the working group performed a study on manpower planning guidelines provided by Eurocontrol, ICAO  and a series of domestic WG reports which were mutually recognized by both the employer and the employees.

The Manpower Calculations

In order to be able to assess the actual optimum number of ATCOs per each unit an easy-to-use calculation tool was devised. The tool is based on standard Excel format and offers an opportunity to study the manpower needs through using a number of variables. Calculation is based on days and shifts with an option for seasonal corrections.

 The basic data for calculation include an estimate on e.g. the following: number of operational shifts per day, number of working days to be used for continuation or refresher training (per person/unit), an average amount of holidays, sickleave or days off due to personal affairs, an agreed amount of surplus working days in order to cope with ad hoc situations etc. These parameters are applied to the whole unit. For calculation purposes the staff is then divided into two categories, i.e. ATCOs whose input is based on operational work only (ATCO 1) and  ATCOs who have supplementary tasks outside the operational duties, such as management, OJT, special tasks and projects etc. (ATCO 2). While the input of ATCO 1 controllers is easily available the input of ATCO 2 controllers remains to be estimated in terms of working days individually . The formula then provides the total amount of ATCOs required for the particular unit.

 The formula is not a key to success but offers an efficient planning device once the parties involved have managed to agree on the actual manpower policy. It´s also helpful when studying the effects of different options and can be used to support e.g. annual budgeting.   

Conclusions

When starting the work it was agreed that the time span of the WG´s assessment would cover a time period of five years. This was to be supported by  traffic analysis and forecast based on extensive statistics. Later it was learned that such a long-term assesment would be possible only within a stable situation or under highly predictable circimstances. When it comes to major changes in ATM technology or procedures this may be the case. The effects on manpower resources are likely to be an essential part of the cost-benefit analysis of each project. The same, however, does not apply to commercial airline schedule planning and traffic policy, especially in a country with marginal market and relatively high operating costs. Thus the working group could produce a realistic assessment, based on the prevailing conditions only.

 In terms of concrete staffing figures the result of the WG´s assessment for Finnish ATC units, management, planning and training indicated a lack of only a few percent in the prevailing situation. However, there are clear signs of high pressure being placed on the organization and especially on the national ATC training institute, Avia College, in the very near future; the number of retiring ATCOs is about to reach its alltime record this year.

To sum up 

Unexpected changes in airlines´ scheduling and marketing strategies are likely to guide the airport authorities and service providers in their decisions on the service hours and services provided (e.g. radar or procedural APP). The employer continuously consults with the stakeholders, but it´s a forum where the employees have very little or no say; the law of demand and supply rules - come what may. 

 Besides normal duty rostering each and every unit should have clear, concise instructions for coping with ad hoc situations. Whether to rely on stand-by shifts, to downgrade services or to turn to staff performing special duties outside the operations room depends on the prevailing circumstances, but a number of "rules of thumb” are required.

 It was mutually agreed that manpower planning be an ongoing process and a vital part of annual budgeting. Successfull planning is in the interest of both parties therefore it requires their total commitment to the principles and procedures. In order to guarantee this the actions recommended by the WG and taken by the Finnish CAA and FATCA are closely monitored in a joint seminar every six months.

 Finally, there is no doubt about the fact that no such thing as an absolute, universal model for manpower planning exists but the process is flexible. Once the key elements have been identified and  mutual understanding of broad guidelines exists, the actual staff amount calculation appears to be an easy task. This is where the working group´s  calculation formula proves its efficiency as a versatile supporting device.