The Rail Regulator (the statutory officer at the head of the Office of the Rail Regulator (ORR)) was established to regulate the monopoly and dominant elements of the railway industry, and to police certain consumer protection conditions of operators' licences. He did this through his powers to supervise and control the consumption of capacity of railway facilities (his approval was needed before an access contract for the use of track, stations or certain maintenance facilities could be valid), to enforce domestic competition law, to issue, modify and enforce operating licences and to supervise the development of certain industry-wide codes, the most important of which is the network code. ORR's role only covered economic regulation; crucially reviewing every five years the access charges Railtrack could charge train operators for the operation, maintenance, renewal and enhancement of the national railway network. Safety regulation remained the responsibility of the Health & Safety Executive. The first Rail Regulator was John Swift.