Future air traffic management systems and rational actors

If there were just one person in charge of World or European air traffic control (ATC), who had all the money, made all the decisions, project managed all the implementation of new technology and procedures, etc, then life would be easy and the future would be simple. But there is not such a person. There are several different kinds of ‘rational actor’ in this drama; actually groups of people each having very similar interests. They are termed rational because they make decisions in what appears – to them – to be a rational manner. So how does this affect the development of ATC?