Evolutionary approaches to cognitive design in the air traffic management (ATM) system can be attributed with a history of delayed developments. This issue is well illustrated in the case of the flight progress strip where attempts to design a computer-based system to replace the paper strip have consistently been met with rejection. An alternative approach to cognitive design of air traffic management is needed and this paper proposes an approach centred on the formulation of cognitive design problems. The paper gives an account of how a cognitive design problem was formulated for a simulated ATM task performed by controller subjects in the laboratory. The problem is formulated in terms of two complimentary models. First, a model of the ATM domain describes the cognitive task environment of managing the simulated air traffic. Second, a model of the ATM worksystem describes the abstracted cognitive behaviours of the controllers and their tools in performing the traffic management task. Taken together, the models provide a statement of worksystem performance, and express the cognitive design problem for the simulated system. The use of the problem formulation in supporting cognitive design, including the design of computer-based flight strips, is discussed.