What we mean by “a balanced approach” is what's advocated by ICAO in its safety management manual. At tab 8, you'll see appendix 1 to chapter 10 of the safety management manual that is put out by ICAO as the international standard and recommended procedures for safety management systems. In that appendix, ICAO refers to the responsibilities of both the civil aviation authority and the operational organizations. They're talking about making sure that there's adequate “fulfilment of regulatory functions (such as licensing, surveillance and enforcement)” and adequate “resources and organization for the magnitude and complexity of regulatory requirements”. In fact, they indicate that if there is inadequate provision of those things by the civil aviation authority, it is in fact an indicator of poor safety health for that state.
