CIVAIR - PROGRESS BEING MADE, BUT A LONG WAY YET

UNCLAS SECTION 01 OF 02 LUANDA 000287 SIPDIS SENSITIVE SIPDIS DEPARTMENT OF TRANSPORTATION FOR CONNIE HUNTER E.O. 12958: N/A TAGS: EAIR ECON AO SUBJECT: CIVAIR - PROGRESS BEING MADE, BUT A LONG WAY YET TO GO REF: A. A) LUANDA 204 ¶B. B) 07 LUANDA 872 ¶1. (U) This is an action message. Please see paragraph 9 ¶2. (SBU) Summary: During an April 7 call on Angola's National Institute for Civil Aviation (INAVIC),Ambassador Mozena and INAVIC Director Antonio Pombal agreed our countries share the same goal: safe and secure aviation in Angola, eventually including direct flights between Angola and the United States. Pombal told the Ambassador INAVIC has fully embraced the approach of Boeing-sponsored contractors in the development of its air safety certification program, and is expanding cooperation with the same consulting firm to include assistance on security, airdrome, and air navigation systems. INAVIC is struggling, however, with the expansion of its new regulatory powers and it appears Pombal's hands are still tied by many in the GRA (including TAAG) who are unaccustomed to and have little appreciation for INAVIC's interference with their operations. Pombal requested U.S. assistance on airport security and airdrome issues. U.S. support in the form of technical expertise or commercial contacts for advanced equipment would be timely and encourage continued forward progress. End Summary. -------------- CivAir Regulation is a New Concept for Angola -------------- ¶3. (SBU) INAVIC Director General Antonio Pombal told Ambassador Mozena that effective regulation of civil aviation is a new concept for Angola. Before independence, Portugal administered the country's aviation operations, and during the long civil war, Pombal said, the GRA paid little attention to the regulation of civilian flights. Attention from the international community (especially the EU ban on TAAG airlines) is now forcing the GRA to take INAVIC's regulatory responsibility seriously. Pombal said President Dos Santos ordered INAVIC to bring Angola into compliance with International Civil Aviation Organization (ICAO) and International Aviation Transportation Association (IATA) standards. ¶4. (SBU) Pombal praised the work of Boeing-sponsored U.S. consultants (Tim Neel and Associates) to help INAVIC develop an ICAO compliant regulatory system. Pombal said INAVIC has picked up the contract from Boeing and expanded the scope of the consultants' work to include bringing INAVIC regulations concerning airport security, airdrome, and air navigation into compliance with international standards. Pombal expects their work on codifying new regulations on security and air navigation will be completed by early 2009. Pombal said he plans to invite the U.S. Federal Aviation Administration (FAA) to review Angola's compliance with U.S. standards soon after the consultants finish their work and new security regulations are published, most likely in the first half of ¶2009. ¶5. (SBU) Pombal said INAVIC also understands the significant cost of maintaining an effective regulatory regime and he is asking the GRA to fully fund the program. He said INAVIC needs 54 new inspectors and that each inspector requires long periods of training and qualification. Pombal said the Ministry of Transportation is currently reviewing INAVIC's long-term budget and proposed staffing pattern, which include a significant increase in the salary level of INAVIC staff. Pombal said competition for well trained staff require a firm commitment to wage parity with the senior 777 and 747 flight commanders the inspectors would oversee. So far, Pombal said, the GRA has responded positively to his requests. -------------- But Regulations are Just Paper -------------- ¶6. (SBU) The Ambassador asked Pombal what enforcement actions INAVIC had taken since the promulgation of Angola's new regulatory scheme in early January. Acknowledging that Angolan carriers are not in compliance with the GRA's new regulations, Pombal said INAVIC revoked the operating certificates of all carriers and issued provisional certificates, valid until May 2009, which allow the airlines to continue normal operations as they work toward compliance. Pombal firmly declared that any airline out of compliance by the end of the deadline would be grounded. According to Pombal, INAVIC is required to notify the Ministry of LUANDA 00000287 002 OF 002 Transportation before any enforcement action is taken against civilian carriers. Pombal stressed that under the new regulatory scheme, such notification would not result in political pressure to overturn a decision, although he admitted that INAVIC had come under pressure in the past by airline executives and other members of the GRA. -------------- INAVIC Not Afraid of TAAG -------------- ¶7. (SBU) When asked about INAVIC actions against TAAG after the airline was banned from flying to Europe, Pombal acknowledged serious problems with the airline. He said during a September review of TAAG, European inspectors recorded 273 findings of non-compliance with IATA standards. Pombal said TAAG was given two years to make the necessary improvements (until May 2009 plus a possible 3 month extension). Pombal said an April, 2008 follow-on inspection of TAAG was cut short because it was clear TAAG was not ready for review. The next inspection will take place on April 27. Pombal told the Ambassador he is not satisfied with the TAAG issue. and that "TAAG is not aware that it needs more professionalism." When asked again why TAAG was still flying, Pombal answered that by revoking TAAG's operating certificate (and issuing provisional permission to fly) , INAVIC demonstrated to the public it is serious about regulation and "not afraid of the size or power of TAAG." -------------- Comment and Action Request -------------- ¶8. (SBU) Comment: In spite of the progress made to bring Angola's civair regulations into compliance with ICAO standards, the GRA has decided not to enforce its own regulations until May 2009, at the earliest. This decision appears to firmly place economic and political considerations ahead of safety concerns. Pombal comes across as earnest in his desire to bring Angola's aviation sector into compliance with ICAO standards, but INVAIC's lack of enforcement action calls into question whether the GRA will give INAVIC the political space it needs to regulate effectively. We find Pombal's call for a 2009 FAA review of Angola's regulatory improvements to be premature at this stage. 9 . (U) Action Request: Washington agencies may wish to consider how best to support Pombal's request (and Minister of Transportation Brandao's request reported ref A) for U.S. assistance with security and airdrome improvements, especially related to equipment procurement. Angola has decided, according to Pombal, to commit whatever resources are necessary for Angola to build a world-class aviation safety and security regulatory system. Technical assistance, information on available U.S. equipment for purchase, and training opportunities would be a welcome compliment to Angola's ongoing work with private consultants on the regulatory side of these issues. Pombal also requested additional assistance through the Safe Skies for Africa program. Ref B describes our diplomatic efforts throughout 2007 that culminated in a demarche to the GRA asking the Ministry of Transportation to put in writing their specific requests for assistance in improving civil aviation in Angola. The Angolans have yet to respond formally, although they have given us verbal assurances up to the level of the Minister of Transportation that they seek such cooperation. We will continue our efforts for a more formal response, but the recent requests represent an opportunity to work with the GRA to strengthen the safety and security of civil aviation in Angola. MOZENA