SUMMARY REPORT ON THE SAFETY OVERSIGHT AUDIT FOLLOW-UP OF THE CIVIL AVIATION DEPARTMENT OF MALDIVES

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1 ICAO Universal Safety Oversight Audit Programme SUMMARY REPORT ON THE SAFETY OVERSIGHT AUDIT FOLLOW-UP OF THE CIVIL AVIATION DEPARTMENT OF MALDIVES (Malé, 26 to 28 August 2001) INTERNATIONAL CIVIL AVIATION ORGANIZATION

2 ICAO UNIVERSAL SAFETY OVERSIGHT AUDIT PROGRAMME Summary Report on the Safety Oversight Audit Follow-up of the Civil Aviation Department of Maldives (Malé, 26 to 28 August 2001) 1. INTRODUCTION 1.1 Background The Civil Aviation Department (CAD) of Maldives was initially assessed under the voluntary ICAO Safety Oversight Assessment Programme from 10 to 13 June 1996 by an ICAO assessment team. Subsequently, an audit was carried out from 14 to 18 June 1999 pursuant to Assembly Resolution A32-11 and in accordance with the updated Memorandum of Understanding (MOU) agreed to on 21 March 1999 between Maldives and ICAO. The objectives of the audit were twofold. Primarily, its objective was to fulfill the mandate given to ICAO pursuant to the above-mentioned Assembly Resolution. Secondly, the audit was conducted with the objective of ascertaining the progress made in the implementation of the recommendations forwarded during the voluntary assessment conducted in 1996 and to re-ascertain the safety oversight capability of the CAD of Maldives. The audit also aimed at ensuring that Maldives is in conformity with ICAO Standards and Recommended Practices (SARPs), as contained in Annexes 1, 6 and 8 to the Convention on International Civil Aviation (Chicago Convention) and related provisions in other Annexes, guidance material and relevant safety-related practices in general use in the aviation industry On 13 July 1999, Maldives provided ICAO with a corrective action plan addressing the findings and recommendations contained in the audit interim report. As the action plan submitted did not provide information on how or when the State planned to rectify deficiencies and shortcomings identified by the ICAO audit team, the CAD, at the request of ICAO, submitted a revised action plan on 5 September The revised action plan provided most of the additional information requested. The action plan and comments provided were taken into consideration in the preparation of the final and summary reports. The summary report was distributed to all Contracting States by State letter AN 19/1-99/116 in December Objectives and activities of the audit follow-up mission This mission was conducted in accordance with Article 18 of the MOU. The objective of an audit follow-up mission is to validate the implementation of the corrective action plan and to ascertain the status of the progress made, which will enable ICAO to update the information contained in the audit findings and differences database (AFDD) and also to inform other Contracting States on the status of the safety oversight system of Maldives through a non-confidential summary report. 2. CIVIL AVIATION ACTIVITIES IN MALDIVES At the time of the audit follow-up mission, civil aviation activities in Maldives included: a) number of technical staff employed by the organization at Headquarters 11 b) number of regional offices N/A

3 - 3 - c) number of technical staff employed at regional offices N/A d) number of active pilot licences 266 e) number of active flight crew licences other than pilot licences (flight engineer and flight navigator) N/A f) number of aviation training establishments N/A g) number of active licences other than flight crew licences 76 h) number of commercial air transport operators 4 i) number of air operator certificates (AOCs) issued 4 j) number of aircraft operations inspectors 4 k) number of aircraft registered in Maldives 32 l) number of currently valid Certificates of Airworthiness (C of A) issued 32 m) number of approved maintenance organizations (AMOs) 2 n) number of non-approved aircraft maintenance organizations 1 o) number of design organizations N/A p) number of aircraft manufacturing organizations N/A q) number of aircraft parts or equipment manufacturing organizations N/A r) number of aircraft type certificates issued N/A s) number of type certificates other than aircraft issued N/A t) number of aircraft airworthiness inspectors 4 3. EXECUTIVE SUMMARY 3.1 The CAD has complied with the recommendation made during the audit relating to primary aviation legislation and civil aviation regulations. The State has promulgated the Civil Aviation Act of February 2001, which empowers the Ministry of Transport and Communications concerning matters relating to civil aviation activities. This Act addresses the recommendation made by the audit of The CAD has complied with only one of the recommendations made during the audit relating to civil aviation organization. The ongoing problem with inadequate remuneration and lack of funding for training of technical staff in the CAD has not been addressed. The ability to recruit, train and retain qualified personnel remains a major concern. The long-term outlook for the ability of the CAD to perform its responsibility for safety oversight is not assured. 3.3 Significant progress has been made in the area of personnel licensing. The licensing activities have been assigned to the Airworthiness Unit, the Flight Operations Unit and the Air Traffic Control Unit,

4 - 4 - all within the Air Safety Section of the CAD. The CAD issues Maldivian licences on the basis of valid foreign licences. The recommendations that remain outstanding are currently in the process of being corrected and include validation procedures for licences other than flight crew, a filing system for personnel licensing records, regulations for appealing a licensing decision and a training programme for personnel licensing officers. 3.4 The CAD has complied with most of the recommendations made during the audit relating to aircraft operations certification and supervision. There are three recommendations still in progress which are planned to be completed by the end of The accident prevention and flight safety programme does not include specific operational procedures to be included in the operations manual and in training programmes. In addition, a requirement for a bomb search checklist has not been promulgated, and specific procedures have not been developed for when a discrepancy is discovered during an inspection. 3.5 The CAD has complied with most of the recommendations made during the audit relating to airworthiness. Of the two recommendations still in progress, the completion of the Airworthiness Inspectors Manual is an essential project that is expected to be completed in June The other recommendation concerns the ongoing surveillance of AMOs located outside of the State; however, no surveillance programme has been created yet, and deficiency rectification times have not been specified. The one recommendation that has not been started concerns adequate funding for airworthiness inspector training in accident investigation. 4. RESULTS OF THE AUDIT FOLLOW-UP MISSION 4.1 Primary aviation legislation and civil aviation regulations a) Action proposed by State. In its action plan, the CAD indicated that it is in the process of initiating a civil aviation law. It is expected to be promulgated by the end of the year In the meantime, the CAD will keep the Civil Aviation Regulations (CARs) up to date. b) Validation of action proposed. Maldives has now promulgated its primary aviation legislation, known as the Civil Aviation Act of February The ICAO recommendation has been complied with. 4.2 Organization of civil aviation a) Action proposed by State. The action plan provided by the CAD indicated that human resource development was given priority within the constraints of available personnel. At that time, two airworthiness inspectors, two full-time and one part-time operations inspectors were employed by the CAD, and one airworthiness professional was undergoing training. One additional operations expert was to be available from year 2000 for a period of two years and one airworthiness expert was to be recruited in the year 2000 for a period of one year. b) Validation of action proposed. The ability to recruit, train and retain qualified personnel remains a major concern as the Government of Maldives has not adequately recognized the importance of a permanent technically qualified staff

5 - 5 - within the CAD. The ICAO recommendation remains open a) Action proposed by State. Training was scheduled in 2000 for a trainee operations officer and a technical secretary was to be hired in b) Validation of action proposed. Concerning the need to establish a training programme for the CAD inspectorate staff, to date only ad hoc training is being received. The ICAO recommendation remains open a) Action proposed by State. The CAD indicated in its action plan that it would propose that the year 2000 and subsequent State budgets include sufficient provisions as to ensure that its staff be provided with adequate training and appropriate office tools. It was also indicated in the action plan that the Government of Maldives initiated a revision of civil servants salary scales. b) Validation of action proposed. The CAD has procured the proper data collection equipment to assist its technical staff in performing their duties. Furthermore, training has been identified for all inspectors to be carried out in The ICAO recommendation has been complied with. Note. Subsequent to the audit follow-up mission, the CAD indicated that it has sufficient flight operations and airworthiness inspectors for the current level of aviation activity in the State. 4.3 Personnel licensing and training a) Action proposed by State. Concerning the establishment of written procedures for the issuance of licences and ratings, effective 1 November 1999, the State indicated that it has promulgated Air Safety Circular OPS 04, Issue 1 to encompass all provisions of Annex 1. b) Validation of action proposed. The CAD has established flight crew licensing requirements; however, requirements for licences other than flight crew have not been completed. The CAD indicated that the ICAO recommendation would be completed by February a) Action proposed by State. Concerning the organizational structure of the personnel licensing sector, effective 1 November 1999, the State indicated that it has promulgated Air Safety Circular OPS 04, Issue 1 to encompass all provisions of Annex 1. b) Validation of action proposed. The establishment of a personnel licensing system has been completed. Rather than establishing a separate department, personnel licensing is assigned to the Air Safety Section of the CAD. The ICAO recommendation has been complied with a) Action proposed by State. With respect to a training programme for personnel licensing officers, the CAD indicated that training of personnel licensing officers

6 - 6 - will be imparted in the year 2000, and an additional technical secretary will be employed in January b) Validation of action proposed. Concerning the need to establish a training programme for the personnel licensing officers, to date, only ad hoc training is being received through the Co-operative Development of Operational Safety and Continuing Airworthiness Programme (COSCAP). The ICAO recommendation remains open a) Action proposed by State. Concerning the designation of flight examiners, the CAD indicated that, although formal procedures have not been developed, a circular will be issued concerning the appointment and renewal of designated flight examiners. b) Validation of action proposed. As Maldives issues only validation certificates based upon valid foreign licences and requires the foreign licence to be referenced on the validation certificate issued by Maldives, the ICAO recommendation has now been complied with a) Action proposed by State. Concerning medical standards for personnel licensing, effective 1 November 1999, the State has promulgated Air Safety Circular OPS 04, Issue 1 to encompass all provisions of Annex 1. b) Validation of action proposed. The CAD has established adequate medical fitness requirements entitled Air Safety Circular OPS 04, Issue 1, dated 20 November In addition, the CAD has established a programme for designated medical examiners. The ICAO recommendation has been complied with a) Action proposed by State. Concerning the establishment of a procedure for appealing CAD decisions on licensing, effective 1 November 1999, the State has promulgated Air Safety Circular OPS 04, Issue 1 to encompass all provisions of Annex 1. b) Validation of action proposed. Although the CAD has promulgated Air Safety Circular OPS 04, Issue 1, procedures for appealing civil aviation administration decisions on licensing have yet to be developed. The CAD indicated that the ICAO recommendation would be completed by June a) Action proposed by State. Concerning closing and archiving personal files, effective 1 November 1999, the State has promulgated Air Safety Circular OPS 04, Issue 1 to encompass all provisions of Annex 1. b) Validation of action proposed. The CAD has yet to establish a procedure for closing and archiving personal files to ensure their security. The CAD has indicated that it will be moving to new offices, and procedures will be developed and implemented at the new facility by December The ICAO recommendation remains open.

7 a) Action proposed by State. Concerning the national personnel licensing regulations, effective 1 November 1999, the State has promulgated Air Safety Circular OPS 04, Issue 1 to encompass all provisions of Annex 1. b) Validation of action proposed. The CAD has established most of Annex 1 provisions in its national personnel licensing regulations. Flight Crew Licensing Requirements and Air Safety Circular OPS 04 have been promulgated; however, they do not address aircraft maintenance engineer (AME) and air traffic controller (ATC) licensing. The CAD indicated that the ICAO recommendation would be completed by February Note. Subsequent to the audit follow-up mission, the CAD indicated that a procedures manual was developed for personnel licensing staff which identifies the training programme for personnel and describes the procedures for closing and archiving files. 4.4 Aircraft operations certification and supervision a) Action proposed by State. It was indicated in the CAD s action plan, that an Air Safety Circular would be issued by August 2000 to introduce procedures specifying the minimum qualification required to be a check airman and setting up the mechanism necessary to put them under its supervision. b) Validation of action proposed. The CAD has introduced the Designated Check Pilot Manual (Air Carrier), approved by the Director General on 31 January 2000, which specifies the minimum qualifications required to be a check airman, including the mechanism to perform the necessary supervision of the check airman. The ICAO recommendation has been complied with a) Action proposed by State. The CAD indicated that guidance material would be requested from other States in order to amend the relevant CARs of Maldives to introduce operational specifications in the AOC documents. b) Validation of action proposed. The CAD has developed Air Safety Circular OPS 17, Issue 1, approved on 26 December 1999, which describes the requirements of an AOC including the operations specifications. The ICAO recommendation has been complied with a) Action proposed by State. Concerning the requirement for operators to maintain records of fuel and oil, the CAD indicated that a number of CARs would be amended to include requirements on fuel by November b) Validation of action proposed. CAR and Maldivian Airworthiness Requirements (MAR), Series C, No. 01 have now been amended to include the requirements for operators to maintain a record of fuel and oil. The ICAO recommendation has been complied with a) Action proposed by State. Concerning the need for operators to establish an

8 - 8 - accident prevention and flight safety programme, the CAD indicated that a number of CARs would be amended to include requirements on accident prevention and safety programme by November b) Validation of action proposed. Although the CAD has established Air Safety Circular OPS 20, Issue 2, approved on 7 June 2001, requiring operators to establish an accident prevention and flight safety programme, the CAD has yet to develop a requirement that an accident prevention and flight safety programme include training in all subjects as described in Annex 6, Part I. The ICAO recommendation remains open a) Action proposed by State. The CAD indicated that a Circular would be issued on oil records, procedures for refuelling with passengers on board and safety-related procedures prior to 1 February b) Validation of action proposed. The CAD has now established Air Safety Circular No. 19, dated 1 May 2000, requiring air operators to establish operational procedures for refuelling when passengers are embarking, on board or disembarking. The ICAO recommendation has been complied with a) Action proposed by State. Concerning a least-risk bomb location, an Air Safety Circular, effective 11 August 1999, included the requirements to identify a least-risk bomb location and to incorporate it in the emergency procedures. b) Validation of action proposed. Air Safety Circular OPS 10, dated 18 August 1993, gives instruction for cabin crew concerning unlawful interference, and Air Safety Circular OPS 05, dated 12 June 2000, gives further instructions for all crew members. However, a requirement for a bomb search checklist has not been addressed. The ICAO recommendation remains open a) Action proposed by State. Concerning the reporting of deficiencies, the CAD indicated that a new format has been established which will make follow-up on deficiencies and their rectification easier to follow. b) Validation of action proposed. Although regular and random follow-up inspections of an air operator are conducted, procedures to be followed by an inspector when deficiencies are found are general in nature and do not contain sufficient guidance for the operations inspectors. By December 2001, an amendment will be made to give clear guidance to operations inspectors when discrepancies are found. The ICAO recommendation remains open a) Action proposed by State. A request would be forwarded to COSCAP for the development of an inspectors training and inspection handbook. b) Validation of action proposed. The CAD has developed an inspectors handbook which has been approved by the Director General. This handbook provides appropriate guidance for operations inspectors. The ICAO recommendation has been complied with.

9 a) Action proposed by State. Concerning the need to verify what services are being provided by Air Eurosafe and to develop a system to follow up on any deficiencies identified, the CAD indicated that they will look into this matter. 4.5 Airworthiness b) Validation of action proposed. Services are no longer being provided by outside sources. The ICAO recommendation has been complied with. Note. Subsequent to the audit follow-up mission, the CAD indicated that it has promulgated an amendment to Air Safety Circular No. 5 which prescribes the requirements for the holders of an AOC to establish a flight safety programme and develop a bomb search checklist. The CAD also indicated that the inspectors manual has been revised to provide inspectors with detailed procedures on the action to be taken after finding deficiencies a) Action proposed by State. It was indicated in the CAD s action plan that the necessary amendments would be made in the relevant CARs to ensure that airworthiness matters are reported to the State of Design. b) Validation of action proposed. The CAD has now established a system whereby information on faults, malfunctions and defects is transmitted to the organization responsible for the design of the aircraft. The ICAO recommendation has been complied with a) Action proposed by State. Concerning the need to develop an inspectors handbook, the CAD indicated it would liaise with COSCAP and other countries airworthiness authorities in order to develop and implement an airworthiness inspectors handbook. b) Validation of action proposed. The CAD airworthiness sector is still in the process of developing its procedures handbook, which is expected to be completed by January The ICAO recommendation remains open a) Action proposed by State. In addition, it would implement a programme for the inspection of all maintenance organizations, including foreign maintenance centres, and would periodically review all engineering expositions and company maintenance manuals. The CAD estimated that those actions would be completed before the end of the first quarter of the year b) Validation of action proposed. The CAD has now established a system to ensure inspections are carried out on all AOC holders of Maldives including inspections of foreign maintenance organizations. The ICAO recommendation has been complied with a) Action proposed by State. The CAD indicated that it would implement a programme for the inspection of all maintenance organizations, including foreign maintenance centres, and would periodically review all engineering expositions and

10 company maintenance manuals. The CAD estimated that those actions would be completed before the end of the first quarter of the year b) Validation of action proposed. MAR Series E-01, dated 23 May 1999, set forth the requirements for an air operator to submit a maintenance control manual. The CAD has now established a system to ensure that all manuals are kept up to date. The ICAO recommendation has been complied with a) Action proposed by State. The CAD indicated that it would implement a programme for the inspection of all maintenance organizations, including foreign maintenance centres, and would periodically review all engineering expositions and company maintenance manuals. The CAD estimated that those actions would be completed before the end of the first quarter of the year b) Validation of action proposed. The CAD Airworthiness Group (AG) has established a system to carry out regular inspections and follow-ups of all its AMOs. The ICAO recommendation has been complied with a) Action proposed by State. With respect to a finding related to a situation where an aircraft which is no longer airworthy must be flown for repair or overhaul, the CAD indicated that document MAR Series 12 would be amended to address the recommendation by 1 November b) Validation of action proposed. MAR Series C, No. 12, paragraph 1.1 and CAR, Part 5.6, dated 23 May 1999, address the requirements for a situation where an aircraft is no longer airworthy but must be flown for repair or overhaul as outlined in Annex 8. The ICAO recommendation has been complied with a) Action proposed by State. Concerning training for airworthiness inspection personnel, the CAD also indicated that the year 2000 budget included additional training for extended range operations by twin-engined aeroplanes (ETOPS) and accident investigation for the airworthiness inspection personnel. b) Validation of action proposed. No progress has been made on the ICAO recommendation. To date, additional training has not been given to airworthiness inspectors. The ICAO recommendation remains open a) Action proposed by State. Concerning the need to establish a system to follow up deficiencies identified during inspections, the CAD indicated that it has developed a comprehensive inspection schedule and that follow-up action will be increased when staffing increases. b) Validation of action proposed. The airworthiness inspection sector is still in the process of developing a system of follow-up to deficiencies noted during inspections and should be completed by January The ICAO recommendation remains open a) Action proposed by State. The CAD indicated that it will implement a programme

11 for the inspection of all maintenance organizations, including foreign maintenance centres, and would periodically review all engineering expositions and company maintenance manuals. The CAD estimated that those actions would be completed before the end of the first quarter of the year b) Validation of action proposed. Requirements and procedures for the approval of maintenance organizations have yet to be completed. The ICAO recommendation remains open a) Action proposed by State. The CAD indicated in its action plan that it will include subscriptions through the aircraft manufacturers for manuals such as MMELs in the year 2000 budget. b) Validation of action proposed. The CAD has now yearly subscriptions to all MMELs for the aircraft types operating in Maldives. The MMELs are received by registered post. The ICAO recommendation has been complied with a) Action proposed by State. The CAD indicated that an Amendment to the Air Safety Circular GEN 03 would also be introduced to include the requirement to identify a least-risk bomb location and provide adequate training to cockpit and cabin crew. b) Validation of action proposed. An Air Safety Circular has been issued. The ICAO recommendation has been complied with. Note. Subsequent to the audit follow-up mission, the CAD indicated that inspections have been carried out on all four overseas AMOs and that a surveillance schedule has been established for future inspections. Furthermore, the CAD indicated that training to staff has been identified in accident investigation for the year 2002; however, no training will be given in the area of ETOPS at this time since there are no ETOPS operations being conducted by Maldives. 5. UPDATE ON DEPARTURES FROM ICAO SARPs During the audit follow-up mission, an updated list on the status of implementation and differences existing between the national regulations and Annexes 1, 6 and 8 SARPs and/or SARPs not implemented was provided to the audit follow-up team. The differences provided will be included in the relevant Annex Supplement in line with Article 17 of the MOU signed between Maldives and ICAO and in accordance with Article 38 of the Chicago Convention. 6. AUDIT FINDINGS AND DIFFERENCES DATABASE (AFDD) The general objective of the AFDD is to assist States in identifying the elements that need attention in the implementation of the proposed corrective action plan. The information is also intended to assist States in establishing a priority of actions to be taken to resolve safety concerns identified by the audits. The Appendix to this report contains a graphic representation of the lack of effective implementation of the

12 critical elements of safety oversight (Doc 9734 refers) in Maldives and at a global level. The graphic representation of the State level depicts the situation during the initial audit and the situation at the time of the audit follow-up mission. The graphic representation enables Maldives to prioritize the necessary corrective actions and to identify assistance requirements based on its personnel, technical and financial capabilities in consideration of its safety oversight obligations.

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