TWINNING LIGHT PROJECT FICHE
BASIC INFORMATION
1.1. CRIS and Twinning Number:
1.2. Title: Improvement of the administrative capacity of the Directorate-General Civil Aviation Administration (DGCAA)
1.3. Location: Sofia, Bulgaria
BACKGROUND
A Peer Review was conducted by the representatives of the European Commission and EU Member States in September 2004.
The most important recommendation among those made was that “DGCAA should develop and implement requirements for mandatory training that must be completed by each kind of aviation safety inspectors as required by the International Civil Aviation Organization (ICAO) or at least courses required by the Joint Aviation Authorities (JAA), which consist of a basic knowledge course including a quality system course and recurrent trainings to refresh inspectors’ knowledge and to standardize assessments skills”
In May 2005 a JAA/EASA (European Aviation Safety Agency) team conducted MAST (airworthiness maintenance standardization) visit aiming at defining the level of compliance of DGCAA with the standard requirements in the field of aircraft airworthiness. In a case of full compliance, EASA prepares a recommendation report to all EU Member States for mutual recognition of licenses, certificates and approvals, issued by DGCAA in respect of continuing airworthiness of aircraft used in commercial air operations.
The most substantial recommendations contained in JAA/EASA report were concentrated on the necessity of improving/strengthening the administrative capacity, establishing of a system to monitor deficiencies and preparation of conversion credit reports (with respect to technical staff).
In January 2006 a JAA team conducted OPST (operations standardization) visit aiming at defining the level of compliance of DGCAA with the standard requirements in the field of air operations and air operators certification. The recommendations were again concentrated on strengthening the DGCAA capacity (number of inspectors, training, etc).
The general finding of the above inspections underlined the necessity of strengthening the DGCAA capacity in order to efficiently conduct safety oversight of air operators, aircraft maintenance organizations and aviation training centers and strictly apply EU aviation safety standards.
In the 2005 Commission Regular Report on Bulgaria progress towards EU membership, the following recommendation was made: “To be ready for membership, Bulgaria should pay special attention to implementing the legislation, strengthening the administrative capacity in the aviation sector “.
In the Commission Monitoring Report (May 2006) it was recommended that Bulgaria fully implement the respective EU safety requirements by the date of accession.
The final Commission Monitoring Report delivered in September 2006 contained the following statement: “In the area of air transport, joint inspections by the European Aviation Safety Agency (EASA) and the Joint Aviation Authorities (JAA) have revealed significant and persistent shortcomings in the administrative capacity of the Bulgarian Civil Aviation Authority to ensure the necessary safety oversight, to implement the Community requirements on certification, of airworthiness and maintenance of aircraft and to ensure that the large fleet designed in the Commonwealth of Independent States can meet these requirements. In order to comply with the relevant EU aviation safety rules, Bulgaria urgently needs to submit a corrective action plan and implement it within a strict timetable, in close cooperation with, and under guidance from EASA to redress all safety shortcomings. EASA will then have to verify the implementation of this plan by means of another inspection before Bulgaria's accession.”
In the Final Report of the EASA Standardization Visit of Bulgaria (27 November – 1 December 2006) is emphasized once again the necessity of strengthening the administrative capacity of the Bulgarian DGCAA. Improvement of the existing systems is specified in some of the findings included in the Final Report as follows:
· Improvement of the existing training system
- Even though the inspector’s handbook says suitable training will be provided for inspectors, 2042/2003 training has not currently been provided to all of the inspectors. Further, the qualification and training records for the inspectors were inconsistent, training criterion for inspectors is not started and continuation training is not provided in a consistent manner to a programme”;
- The inspectors seem to receive code training on each code. The training is used for certain regulation training with no formal training only working meeting
- BG CAA is invited to reconsider the timeframe for training because all training completed. Training criteria is not specified.”;
· Improvement of the existing organizational system
The BG CAA has not ensured organizations quality system are adequate to ensure compliance with the current regulations.”;
· Improvement of the existing record system
The Operator’s files were inconsistent, with differing filing systems being used on similar approvals. The records for operators were not centralized.”;
· Improvement of the traceability system
Repeat finding. With reference to audit findings tracking. Even though a procedure was introduced to the previous finding on audit tracking, it was not being followed:
- some findings have been closed with no evidence of the closure actions held on file
- some findings are closed without details of NAA acceptance being held on file
- some findings remain open well past their due date (9 months), indicating that findings are not tracked
- the database used for tracking database, the database is not used to track open audit items.”;
· Improvement of the monitoring system
- An adequate finding monitoring system is not in place. The actual system is based on the information recorded on the audit form (paper system). Due to the fact that dedicated inspector has not been assigned for each organization, it is hard for the BG-CAA to monitor open findings without a centralized system.
- A computer system for recording, monitoring and tracing of all processes performed by airworthiness department, including man hours spend has been developed and test operation is in progress.
- BG CAA is invited to report in due time to EASA upon implementation of the new monitoring system
· Improvement of the existing surveillance
Poor surveillance. Findings discovered by the authority were not sufficient detailed in the reports. The number of findings discovered by the MAST teams in a very short time indicates that many items were overlooked by the authority or considered acceptable.
· Institute of Air transport
Application by “Institute of Air transport”, for approval of maintenance training programme is shown. It could not be demonstrated that this has formally been approved. (Is there a procedure; is there evidence of investigation and conclusion?)
The implementation and application of the air transport acquis represents the most important part in the overall process of compliance of Bulgaria as an EU MS.
In particular the DG CAA should ensure full compliance with the following European acts:
1. Regulations of the European Commission, related to Airworthiness
- EC Reg. 1592/2002;
- EC Reg. 1702/2003;
- EC Reg. 2042/2003.
2. Regulations of the European Commission, related to Aviation safety
- EC Reg. 3922/1991;
- EC Reg. 2111/2005;
- EC Reg. 474/2006.
The main priorities laid down in the policy of the Ministry of Transport and DG CAA are:
· Development and strengthening the administrative capacity of DGCAA;
· Improving the efficiency of aviation safety oversight;
· Full compliance with the EU safety standards.
Priority objectives in the development and strengthening the administrative capacity of DGCAA are:
· Strengthening the structures and human capacity of DGCAA;
· Building up an efficient system of monitoring and surveillance;
· Enlargement of the cooperation with EU Member States.
DESCRIPTION OF THE ASSIGNMENT
3.1 Beneficiary(ies)
3.1.1 A detailed description of the beneficiary institution
Beneficiary institution under the Project will be the Directorate General Civil Aviation Administration (DGCAA). DGCAA will be responsible for the Project implementation.
According to Article 8 of the Civil Aviation Act the Minister of Transport discharges his functions of administration and supervision of civil air navigation, civil aircraft and aeronautical facilities within the Republic of Bulgaria through the Civil Aviation Administration, which is a legal person budgeted by the Ministry of Transport.
The Civil Aviation Administration performs state regulatory and control functions for the insurance of safety and security of aviation by:
1. Performing functions of a civil aviation administration in compliance with the international contracts in the field of civil aviation to which Bulgaria is a party;
2. Controlling civil aviation, civil airports, civil aircraft, air navigation and other devices connected with civil aviation regardless of their ownership;
3. Controlling the observance of this law and the sub-law normative acts;
4. Controlling the actions of physical and legal persons in connection with the security and safety of civil aviation;
5. Controlling the performance by legal entities of the functions assumed as an obligation by Bulgaria under international contracts and in compliance with the existing standards and rules in the aviation field.
In the course of the project’s implementation, DGCAA will be assisted by the European Integration Directorate, which is responsible for the policy of the Ministry of Transport in the field of European integration, and Programs and Projects Co-ordination Directorate, Programming and Monitoring Department, which is responsible for the co-ordination of programs and projects, including the implementation of projects under PHARE program.
3.1.2 The context in the beneficiary country
· Grant Agreement between DGCAA and USTDA (US Trade and Development Agency) signed on 19 September 2003 at the amount of 296530 USD. Under the 2003 Grant Agreement an Aviation Security Master Plan for Burgas, Varna, Gorna Oriahovitza and Plovdiv Airports was elaborated. The project was implemented by the contractor - Airspace Services International, US based Company.
· Grant Agreement between DGCAA and USTDA signed on 23 July 2004 at the amount of 200060 USD. Under the 2004 Grant Agreement the following activities were performed: review of the legal framework in aviation; elaboration of Inspectors Manuals; training of aviation inspectors. The Air Safety Project for the Civil Aviation Administration was implemented by the contractor – Robinson Aviation RVA, US based Company.
3.1.3 The proposed methodology for implementing the project
The specific steps and measures for achieving the project outputs are described in details in point 3.3 under the proposed components. They correspond to the general instruments envisaged for attaining the desired development, such as workshops, seminars, working groups, training sessions, study visits and expert advice.
3.1.4 Project Steering Committee
A Project Steering Committee (PSC) will be established for the strategic management of the project. The PSC will include representatives: Bulgarian Project Leader - Mr. Zahari ALEKSIEV; Bulgarian Project Coordinators- Mr. Lilcho LILOV and Mr. Viktor Naniov; Member State Project Leader and at least one MS STE expert. Other MS STE or Bulgarian experts may be requested to attend the meetings of the Group on an ad hoc basis.
3.1.5 BC Project Leader
Project Leader:
Mr. Zahari ALEKSIEV
Director General of DGCAA
Ministry of Transport
9, Dyacon Ignatii Street
1000 Sofia
Tel.: +359 2/988 02 93
E-mail:
Project Coordinators:
Mr. Lilcho LILOV
Head of Aviation Safety Directorate, DGCAA
Ministry of Transport
9, Dyacon Ignatii Street
1000 Sofia
Tel.: (+ 3592) 988 18 21
E-mail:
Mr. Viktor Naniov
Head of Airworthiness Department, DG CAA
Ministry of Transport
9, Dyacon Ignatii Street
1000 Sofia
Tel.: (+ 3592) 937 10 48
E-mail:
3.2 Global and specific objectives
Global objective
Improving aviation safety oversight
Specific objectives
· Improving the system for monitoring the corrective actions undertaken by air operators, aircraft maintenance organizations and aviation training centers as a follow-up to DGCAA inspections and deficiencies found in their activities; .
· Improving the traceability system of GDCAA actions and documents elaborated during certification, licensing, approval and inspection of air operators, aircraft maintenance organizations and aviation training centres.
· Improving the administrative capacity of GDCAA through specialised training.
3.3 Requested services / nature of activities
A1.1 Analysis of the existing system in DG CAA for monitoring corrective actions;
A1.2 Analysis of the existing traceability system regarding the documentations prepared by DGCAA during the procedures of
· certification,
· licensing,
· approval and
· inspection;
A1.3 Defining the level of compliance of systems mentioned in (a) and (b) with EC/EASA requirements and identification of deficiencies;
A1.4 Identifying the necessary improvements in organizational and technical aspect identified as a deficiencies above (and depending on the measure – setting a plan with a time-table for their implementation);
A1.5 Preparation and holding of four seminars for Aviation Safety Directorate inspectors on the legal framework and existing procedures in EC/EASA concerning the process of inspection and surveillance, approval of aviation training centers and conversion of credits from the various training institutions.
A1.6 Study visits of DGCAA inspectors in a MS.
Expected MS input:
Activity 1.1 – Two MS experts, for 5 man-days to perform an audit of the current monitoring system;
Activity 1.2 – Two MS experts, for 5 man-days to perform an audit of the current traceability system;
Activity 1.3 – Two MS experts, for 10 man-days to perform a comparative analysis of the monitoring and traceability systems on the basis of EC/EASA requirements and MS best practices.
Activity 1.4 – Two MS experts, for 10 man-days to perform a consultation on the necessary improvement measures in organizational and technical aspect and on acceptable means of compliance, as well as to personally participate in the introduction of the measure(s), where appropriate.
Activity 1.5 – Four MS experts for 8 man-days to prepare and hold four seminars for Aviation Safety Directorate inspectors:
Seminar 1: EASA requirements related to inspection and surveillance of air operators, aircraft maintenance organizations and aviation training centres – 2 STEs, category 1; participants – 15 experts from GDCAA; duration - 2 man-days;
Seminar 2: EASA requirements related to the improving of the traceability system of GDCAA actions and documents, elaborated during certification, licensing, approval and inspection of air operators, aircraft maintenance organizations and aviation training centres – 2 STEs, category 1; participants – 10 experts from GDCAA; duration - 2 man-days ;
Seminar 3: EASA requirements related to conversion credit reports - 1 STE, category 1; participants – 10 experts from GDCAA; duration - 2 man-days.
Seminar 4: Practical training of Aviation Safety Directorate inspectors on EASA requirements related to approval of aviation training centres - 1 STE, category 1; participants – 15 experts from GDCAA; duration -2 man-days.