Philippine Civil Aviation Update

UNCLAS SECTION 01 OF 02 MANILA 001390 SENSITIVE SIPDIS STATE FOR EAP/MTS AND EB/TRA SINGAPORRE AND TOKYO FOR FAA E.O. 12958: N/A TAGS: EAIR ECON EINV ETRD RP SUBJECT: Philippine Civil Aviation Update REFS: a. 08 MANILA 02115, b. 08 MANILA 01619 c. 08 MANILA 01496 d. 08 MANILA 00548 ¶1. (SBU) Summary: The progress of the Philippine civil aviation regulator towards regaining a U.S. Federal Aviation Administration 'Category 1' safety rating has been stymied by bureaucratic obstacles that block essential salary increases needed to attract and retain qualified personnel. There is little chance of the Philippines regaining a Category 1 safety rating unless these issues are resolved. Aside from the safety implications, this obstacle complicates pending U.S. aircraft deliveries and undermines hopes for new air routes between the U.S. and the Philippines. Embassy continues to work with stakeholders to advance needed safety reforms. End summary. Reform Stalled -------------- ¶2. (SBU) Although reform-oriented legislation that became law in April 2008 abolished the troubled Air Transportation Office (ATO) and replaced it with the Civil Aviation Authority of the Philippines (CAAP, ref D),further progress in implementing the reforms needed to regain a Federal Aviation Administration (FAA) Category 1 safety rating has proven difficult. The legislation that created the CAAP provided it with additional revenues and a degree of independent authority, but CAAP Director General Ruben Ciron has been unable to push forward needed personnel changes. Long-term ATO employees absorbed into the CAAP have raised numerous legal challenges to further reforms, particularly any moves to replace unqualified employees with qualified ones. Aviation industry sources believe these employees would lose opportunities for income (the fees they earn for certifying aircraft and pilots) and perhaps their jobs if the reforms were fully implemented, and so they resist the reforms as a matter of self-preservation. CAAP Personnel Still Unqualified for Duties -------------- ¶3. (SBU) One of the critical deficiencies in the Philippine regulatory agency identified by the FAA was the lack of qualified personnel to conduct certification inspections of aircraft and certification checks of pilots. According to International Civil Aviation Organization (ICAO) and FAA regulations, these certifications must be performed by inspectors or 'check pilots' who themselves have been certified as qualified to maintain or fly the type of aircraft inspected. The ATO and CAAP have been unable to offer competitive salaries to attract such experts, who can easily find much higher paying employment in the private sector, either in the Philippines or in other countries. ¶4. (SBU) The issue of adequate salaries was supposed to be addressed in the legislation that created the CAAP. However, the old ATO employees have challenged the new qualifications and salary standards and insisted on the right to be re-trained and receive preference for employment at CAAP. The authority of the CAAP to offer higher salaries had to be clarified by Congress earlier this year, and is now pending further review with the Civil Service Commission and the Department of Budget and Management. Assuming these reviews confirm a higher salary structure is allowed, it will still likely take several months to find, hire, and train qualified inspectors and check pilots. ¶5. (SBU) Our sources also believe that CAAP Director General Ciron's lack of commercial aviation experience limits his ability to oversee operations and realistically evaluate progress towards regaining a Category 1 rating. According to these sources, there is no one on the CAAP governing board who understands civil aviation safety, security, and airline operations fully enough to accurately measure the progress of safety reforms. Attempts to Reform Provoke Retaliation -------------- ¶6. (SBU) Attempts to change the status quo have provoked retaliation from long-term employees of the ATO/CAAP in the form of allegations of the Director General's misconduct, according to our sources. In March 2009, Director General Ciron suspended his CAAP second-in-command for alleged corruption. Shortly afterwards a letter accusing Ciron of hiring many of his military friends without MANILA 00001390 002 OF 002 regard for their qualifications was sent by CAAP officials and employees to Civil Service Commission. In recent weeks, several allegations of impropriety against Ciron have been reported in local media. Industry sources have told us that the CAAP second-in-command has powerful supporters in the top levels of the Philippine government which make him a formidable opponent. Pending U.S. Aircraft Deliveries and Routes Affected -------------- -------------- ¶7. (SBU) As long as the CAAP remains in FAA Category 2, Philippine Airlines (PAL) cannot implement its plans to add additional flights to the United States. PAL has a contract with Boeing for the purchase of two Boeing 777-300ER aircraft, with an option for two more aircraft. PAL also has a separate agreement to lease two additional Boeing 777-300ERs from General Electric Capital Aviation Services. Delivery of the first 777-300ER is scheduled for later in ¶2009. ¶8. (SBU) Although our sources report that PAL still wants the new Boeing planes because they are more fuel efficient than the planes it currently uses, PAL will not be able to utilize them on routes to the United States, as originally planned . Among other implications, this restriction particularly affects the city of San Diego, California, which has been pressing for a new Manila-San Diego route, and had already received encouragement from PAL regarding the new route. ICAO October Safety Review -------------- ¶9. (SBU) The next scheduled review of Philippine civil aviation regulation will occur in October 2009 when ICAO is scheduled to conduct its Universal Safety Oversight Audit Program (USOAP) examination. Industry sources tell us that there is little chance the Philippines will receive high marks on this review because of the well-known problems and the delays in implementing needed reforms. The implications of a poor score on this USOAP review include that other nations may follow the FAA in downgrading the safety rating of the Philippine regulator and that the FAA will likely decline to re-evaluate its rating of the Philippines until there is material evidence of a significant improvement in the regulatory situation. Comment -------------- ¶10. (SBU) Although, under strong Embassy urging the Arroyo administration acted promptly to pass reform-oriented legislation needed for improving its civil aviation administration, it has not done well in implementing the reforms envisioned in this legislation. Within the Philippine government, high-level interest in the issue of air safety seems to be fading as the administration shifts its focus to the 2010 presidential election. While we will continue to press for full implementation of the needed safety reforms, they seem effectively blocked for the time being by an entrenched bureaucracy that benefits from the status quo and which is backed by senior figures in the Arroyo administration. KENNEY