If I may be helpful, one could take the particularly narrow view of what safety comprises, but what is this safety all about? At the end of the day, it is to ensure that the lives of people will not be jeopardized in one form or the other. It is to try to protect the public from untoward events. That is the primary focus of that particular commission.
With respect to the notion of benefit, it is the risk averted, if you wish, in the action taken. If that is not explicitly taken into account, then you have half the picture. You're not able to come to a full understanding of the risk and the benefit, both in terms of lives gained and lives lost, as it were, and make a determination along those lines.