AUDIT SUMMARY REPORT OF THE NATIONAL CIVIL AVIATION ADMINISTRATION OF TURKMENISTAN

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1 ICAO Universal Safety Oversight Audit Programme AUDIT SUMMARY REPORT OF THE NATIONAL CIVIL AVIATION ADMINISTRATION OF TURKMENISTAN (Ashgabat, 27 March to 5 April 2000) INTERNATIONAL CIVIL AVIATION ORGANIZATION

2 ICAO UNIVERSAL SAFETY OVERSIGHT AUDIT PROGRAMME Audit Summary Report on the Safety Oversight Audit Mission to Turkmenistan (Ashgabat, 27 March to 5 April 2000) 1. BACKGROUND 1.1 The National Civil Aviation Administration Turkmenhovayollary (hereafter referred to as the National Civil Aviation Authority (NCAA) of Turkmenistan) was audited from 27 March to 5 April 2000 by an ICAO safety oversight audit team in accordance with the Memorandum of Understanding (MOU) agreed on 12 November 1999 between Turkmenistan and ICAO which was included in Attachment A to the audit interim report forwarded to Turkmenistan on 5 May The audit was carried out pursuant to Assembly Resolution A32-11, with the objective of ascertaining the safety oversight capability of the NCAA of Turkmenistan and to ensure that it is in conformity with ICAO Standards and Recommended Practices (SARPs), as contained in Annexes 1, 6 and 8 to the Chicago Convention and related provisions in other Annexes, guidance material and relevant safety-related practices in general use in the aviation industry as referred to in such material. 1.2 On 12 June 2000, Turkmenistan submitted an action plan addressing all the findings and recommendations contained in the audit interim report and also containing comments and clarifications on some of the items contained in the audit interim report. The action plan submitted was reviewed by the Safety Oversight Audit (SOA) Section and was found to be satisfactory. The comments and clarifications provided were, as appropriate, taken into consideration in the preparation of this audit summary report. 2. CIVIL AVIATION ACTIVITIES IN TURKMENISTAN At the time of the audit the civil aviation activities in Turkmenistan included: a) number of technical staff employed by the organization at Headquarters 75 b) number of regional offices 5 c) number of technical staff employed at regional offices 35 d) number of active pilot licences 296 e) number of active flight crew licences other than pilot licences 117 f) number of active licences other than flight crew licences 719 g) number of commercial air transport operators 3

3 - 2 - h) number of air operator certificates (AOCs) issued 3 i) number of aircraft operations inspectors 24 j) number of aircraft registered in Turkmenistan 142 k) number of Certificates of Airworthiness (C of A) issued 142 l) number of approved maintenance organizations (AMOs) 1 m) number of aircraft maintenance workshops 4 n) number of aircraft airworthiness inspectors SUMMARY OF FINDINGS 3.1 General statement The Aviation Law of Turkmenistan and the other related laws and Presidential Decrees constitute comprehensive legislation that provides for the establishment of the NCAA with the responsibility for regulating, controlling and supervising all the civil aviation activities of the State. The appointment of both the NCAA s Chief Executive and his First Deputy was established by Presidential Decree. The legislation, however, does not provide for the clear separation of functions and responsibilities which should exist between a State regulatory body and the State-owned operators. Turkmenistan has recently published an extensive set of regulations covering aircraft operations, the airworthiness of aircraft, the licensing of aviation personnel and the certification of training schools. Although the Council of Ministers normally has the authority to promulgate regulations, this has been delegated to the Chief Executive of the NCAA pending the translation of the regulations into the Turkmen language The Chief Executive of the NCAA is responsible for all aviation matters, encompassing, on the one hand, the regulatory and inspection activities normally associated with a regulatory body and, on the other hand, the commercial and operational activities of the State-owned operator. Airports, aviation security and air traffic control also fall within the responsibility of the Chief Executive. The current structure of the NCAA contains an inherent conflict of interest which, in spite of the efforts of a professional and dedicated staff and adequate equipment and funding, detracts from the State s ability to fulfil its safety oversight responsibilities All matters relating to the licensing of aviation personnel, the conduct of examinations and the approval of both written and practical test examiners is governed by the High Qualification Commission and five Regional Qualification Commissions. The Regional Commissions are responsible for only the renewal of licences and are supervised in their activities by the High Qualification Commission. The Higher Qualification Commission is composed of senior NCAA officials and is also responsible for the initial issuance of licences and ratings and for the renewal of the licences of senior aviation personnel, such as chief pilots. The Medical Commission is responsible for the conduct of all medical assessment examinations.

4 - 3 - Although the Qualification Commissions have had some success at maintaining licensing standards under the prevailing system, their role needs to be re-examined in the context of re-structuring of the NCAA as a whole The certification and surveillance of air operators is the responsibility of the Certification and Licensing Department of the Main Flight Safety Inspection Bureau and the operations component of the Maintenance Service Centre. To date, three AOCs have been issued, effectively to three different divisions of the one State-owned operator. Although inspections are being conducted, and the inspectors are proficient in their technical areas, there is a need for both initial and recurrent training in respect to their specific duties as inspectors The airworthiness responsibilities and duties of the NCAA are discharged by the Certification and Licensing and Supervision Departments of the Main Flight Inspection Bureau and the Technical Operations Unit of the Flight Maintenance Service Centre. The NCAA has not made a clear distinction between the responsibilities of the different departments dealing with airworthiness matters. There is also a need to ensure that airworthiness matters, such as the approval of AMOs, maintenance reliability programmes and MELs, are taken in hand by the NCAA. Although a wide range of regulations, directives and manuals have been developed, they remain to be fully implemented. 3.2 Primary aviation legislation and civil aviation regulations in Turkmenistan Abstract of findings The primary aviation legislation of Turkmenistan is the Aviation Law which stipulates, in part, the functions of the civil aviation authority, which in their entirety provide for the management and control of civil aviation activity in Turkmenistan Since ratifying Article 83 bis of the Convention on International Civil Aviation on 14 April 1993, Turkmenistan has made all necessary changes to its legislation to enable it to divest itself of its State of Registry responsibilities under an Article 83 bis transfer agreement and to recognize licences and certificates issued or validated by the State of the Operator The Aviation Law of Turkmenistan and the other related laws and Presidential Decrees constitute comprehensive set legislation that provides for the establishment of a civil aviation authority with the responsibility for regulating, controlling and supervising all civil aviation activities in the State. However, the Aviation Law and supporting Presidential Decrees do not provide for the clear separation of functions and responsibilities which should exist between a State regulatory body and the State-owned operators Executive provisions on flight operations, aircraft airworthiness and the licensing of aviation personnel, adopted in accordance with the Aviation Law, are contained in several regulatory documents. The Council of Ministers has the authority, under various articles of the Aviation Law, to promulgate national air navigation regulations. However, pending the translation of the existing Russian texts into the Turkmen language, the authority to adopt regulations has temporarily been given to the Chief Executive of the NCAA. By the Statute of National Civil Aviation Administration, the Chief Executive also has responsibility for developing, issuing and amending operating regulations in the form of orders and technical instructions.

5 A number of differences between the national regulations of Turkmenistan and international SARPs, in relation to airworthiness, air operations and personnel licensing, were noted by the audit team and have been reported in the appropriate sections of this report The action plan submitted by Turkmenistan, addressing all the recommendations contained in the audit interim report and related to the primary aviation legislation and civil aviation regulations, is summarized in paragraph Corrective action plan proposed/implemented by Turkmenistan With respect to the recommendation on the need for the Air Code to be amended to provide clear separation of functions and responsibilities between the NCAA and the industry (State-owned operators, maintenance organizations, etc.) be established, the NCAA indicated that it would, by 31 August 2000, submit to the Mejlis of Turkmenistan a proposal to amend the Air Code of Turkmenistan to separate the safety oversight functions and responsibilities between Turkmenhovayollary and the State owned operators With respect to the need to review Turkmenistan s State Aviation Regulations for conformity with relevant Annex provisions, the NCAA indicated that a review of the State regulations would be completed by 30 September 2000 and that ICAO would be notified of any differences that may exist between the State regulations and Annex SARPs by 31 October The NCAA indicated that it would establish, also by this date, a system for integrating new Annex provisions and for the notification of differences. 3.3 Civil aviation organization system in Turkmenistan Abstract of findings The Chief Executive of the NCAA is responsible for all aviation matters, encompassing, on the one hand, the regulatory and inspection activities normally associated with a regulatory body, and, on the other hand, the overall commercial and operational management of the State-owned airline. Other aviation activities related to airports, aviation security and air traffic control also fall under the Chief Executive s authority. The Chief Executive is responsible to the Deputy Prime Minister for Transport and Communications The NCAA has sufficient technical staff (of which sixty-seven are at the headquarters establishment and a further thirty-five are in the regions) and clerical staff, both of which are adequately qualified and experienced. Recruitment into the NCAA is via an initial interview by a three-person commission headed by the Chief of Personnel and a further interview with the Chief Executive. All matters relating to staff recruitment are governed by a national labour code. There are written terms of reference for each technical staff member. As both the operator and the regulatory body are integral components of the NCAA, there exists no disparity between the remuneration received by their respective staff. Salaries are, however, very low, and the allowances earned by flight crews on international services do provide them with a substantial competitive advantage The NCAA has not sufficiently implemented its policy on training, as contained in the Instructions for Improving the Proficiency of Management Technical Staff, which calls for the provision of recurrent training every two years.

6 The NCAA is adequately equipped in terms of computers and has sufficient funds at its disposal. Funding is almost entirely provided by the income generated by the State-owned operator, with the budget being approved by Government every year The organizational structure of the NCAA does not depict a clear separation of functions and responsibilities between the regulator and operator components of the NCAA. Within the current structure, there is a conflict of interest, which, in spite of the best efforts of a dedicated and professional staff, detracts from the State s ability to fulfil its responsibility for safety oversight. This inherent weakness in the existing structure of the NCAA and in its ability to carry out effective oversight, will become even more pronounced should, in the future, the Turkmenistan aviation industry diversify to include the participation of privatelyowned enterprises In addition, there is a need to re-group the various regulatory and supervisory functions shared by the different departments within the NCAA (in particular, those shared by both the Flight Maintenance Service Centre and the Certification and Licensing Department) and between the headquarters establishment and the airport authorities, in order to establish clearer lines of responsibility accountability and a more rationalized and effective organization The action plan submitted by Turkmenistan, addressing all the recommendations contained in the audit interim report and related to the civil aviation organization, is summarized in paragraph Corrective action plan proposed/implemented by Turkmenistan With respect to the recommendation that there should be clear separation between the regulator and the industry, to avoid conflict of interest and emphasize the NCAA s responsibility as a regulator and protector of the public s safety, the NCAA indicated that it would present a proposal of amendment for the restructuring of the Turkmenhovayollary by 31 August The proposal would also include provisions which would ensure both the sharing and division of responsibilities for supervising airworthiness and aircraft operations within the structure of the NCAA. On a related subject, the NCAA further indicated that the role of the Higher Qualification Commission and its place within the structure of the NCAA will be addressed at the same time With respect to the recommendation requiring the NCAA to effectively implement its policy and programme of training for its airworthiness and aircraft operations inspectors, the NCAA indicated that by 31 July 2000, it would have reviewed the existing training policy and programmes for the lead technical personnel. Initial and recurrent training for airworthiness inspectors, technical personnel involved in certification and licensing, and personnel involved in the licensing of aviation personnel, would be developed by 30 November The NCAA also indicated that it would by 31 August 2000 have opened personal files for technical personnel involved in civil aviation oversight activities. 3.4 Personnel licensing and training system in Turkmenistan Abstract of findings The main regulations pertaining to personnel licensing, enforced by Order of the Chief Executive of the NCAA, are the Rules of Aviation Personnel Certification. These regulations are supported by another licensing document entitled Manual of Issuance of Licences and Classification of Aeronautical

7 - 6 - Personnel of Civil Aviation of Turkmenistan and by the medical examination standards contained in the Manual on Medical Examination of Flight Personnel, Dispatchers, Flight Attendants and Entrants in Educational Institution of Civil Aviation, as well as the Rules of Training Centre Certification, Educational Institutions of Civil Aviation of Turkmenistan The NCAA does not have a department dedicated to personnel licensing activities. Instead, all activities leading to the issuance and/or renewal of licences and ratings are conducted by the Higher Qualification Commission at the NCAA s headquarters and five Regional Qualification Commissions, based at each of the airports In accordance with the Rules of Aviation Personnel Certification, the Higher Qualification Commission is responsible for the initial issuance of all licences and ratings and for the renewal of licences/ratings for senior aviation personnel, such as chief pilots. The Commission is also responsible for the approval and conduct of all licensing examinations and for approving written and practical test examiners The Regional Qualification Commissions are organized in a similar manner except that they are responsible for only the renewal of licences and ratings for aviation personnel within their respective regions. The Higher Qualification Commission exercises control over the activities of the Regional Qualification Commissions through a programme of audits which are conducted twice a year on each Regional Commission. In addition, if required, ad-hoc inspections are conducted by the Higher Qualification Commission The existing system whereby licence/rating applicants are assessed on the basis of the collective decision of a Commission is designed to ensure that rigorous standards are maintained with respect to the examination and qualification of candidates. It is, however, questionable whether all aspects of licensing need necessarily be subject to the decision of a full Commission, as in the case of licence/rating renewals which are subject to the collective decision of the Regional Qualification Commissions. Therefore, one option for making the existing system less cumbersome and more effective would be for the NCAA to retain the Higher Qualification Commission for the purpose of the initial issuance of licences/ratings, but to replace the Regional Qualification Commissions with a more conventional licensing section or department within the NCAA. The licensing section would also provide strengthened administrative support and keep the files of all licence holders which, at present, are retained by each Regional Qualification Commission The NCAA issues expiring type licences which, in the case of flight crew licences, are valid for one year. At the time of the audit, the NCAA was preparing to issue the new licences which it had developed and which, it claimed, conformed with the colour coding specified in Annex 1, Chapter 5. The only pilot licences to be issued included a commercial pilot licence and an airline transport pilot licence, both of which are entitled Civil Aviation Pilot Licence. Although both licences conform to the Annex 1 colour coding for the commercial pilot licence (CPL) aeroplane and the airline transport pilot licence (ATPL) aeroplane, provision is made in each licence for the endorsement of different aircraft categories. If the NCAA wishes to retain the colour coding for licences as contained in Annex 1, it should issue separate pilot licences with the type of licence (i.e. private pilot licence (PPL), CPL or ATPL) properly reflected in the title. In addition, the NCAA may either continue its existing practice of endorsing the licence with an aircraft category rating or, alternatively, include the aircraft category in the title of the licence. However, in the event of continuing to endorse the licence with a category rating, it is important that, in accordance with Annex 1, the category ratings indicate the level of licensing privileges at which the rating is granted.

8 The NCAA has not issued any licences/ratings on the basis of a licence/rating issued by another Contracting State, although regulations and procedures have been developed for this purpose. There are no regulations or procedures pertaining to the validation of foreign licences. However, an increasing need to issue validations, particularly to foreign pilots assisting in the training of Turkmenistan pilots, is envisaged in the near future. Adequate requirements for the issuance of licences on the basis of military experience and qualifications are contained in the licensing regulations To ensure maintenance of competency of flight crew personnel, applicants are required to complete a ground examination, a flight test and a medical examination for the renewal of their licences. In practice, each applicant s flight records are checked for the relevant recency minima which are, as stipulated in the regulations governing flight operations, for a co-pilot six take-offs and landings (three by day and three by night) in the last three months and for pilot-in-command three take-offs and landings in the last three months. However, there are no recency requirements in the licensing regulations as a pre-requisite for maintaining the validity of a licence. In addition, provision should be made on the licence renewal form for information pertaining to recency of experience A flight simulator at the training centre in Ashgabat and a simulator at the Dashoguz Airport for the Tupolev 154 and Antonov AN-2 aeroplanes were visited, and it was noted that both were in need of improvement in order to enable pilots to demonstrate a satisfactory level of proficiency. In addition, the conduct of initial flight training on the AN-2 aeroplane, which is effectively certificated for two pilots, does not allow for the completion of initial flight training according to the Standards specified in Annex The NCAA has not developed requirements and procedures for the approval of foreign training establishments used by Turkmenistan licence holders and for the certification of flight simulators. In respect to the latter, the NCAA may wish to refer to the guidance material contained in the Manual of Criteria for the Qualification of Flight Simulators (Doc 9625) The action plan submitted by Turkmenistan, addressing all the recommendations contained in the audit interim report and related to the personnel licensing, is summarized in paragraph Corrective action plan proposed/implemented by Turkmenistan With respect to the need to develop requirements and procedures for the validation of licences issued by other Contracting states, the NCAA indicated that, by 31 August 2000, it would have amended the State Aviation Regulations to include requirements and detailed procedures for the validation (recognition) of foreign licences and ratings With respect to the format and specification of licences issued, the NCAA indicated that it would have, by 30 July 2000, developed a form for the entry of an additional title for PPL and CPL. It also indicated that it will prepare a list of differences and forward them to ICAO by 31 October On the subject of training equipment and the qualification of flight simulators, the NCAA indicated that, by 31 August 2000, it would have developed a Manual of Criteria for the Qualification of Equipment and Flight Simulators, conduct a repeat assessment of civil aviation training institutes in Turkmenistan by 30 November 2000, and check and confirm the qualification of the equipment and simulators at foreign training centres contracted to train Turkmenistan aviation personnel by 25 December 2000.

9 On the issue of the knowledge requirement in human performance and limitation, the NCAA indicated that by 20 August 2000, it would have included sections on human performance and limitations in aviation specialist training and refresher training programmes. It would also have developed requirements and examination forms on human performance and limitations for flight crew, aircraft maintenance engineer or air traffic controller licences With respect to the need to amend the licensing regulations to include recency requirements for the renewal of flight crew licences, the NCAA indicated that by 31 July 2000, it would have included in the State Aviation Regulations detailed recency requirements for the issuance and renewal of aviation specialist licences. The NCAA also indicated that by the same time it would have amended the State Aviation Regulations to include requirements and procedures for the approval of foreign training centres and documents issued by foreign civil aviation administrations. Documents on the approval of foreign training centres based on the amended State Aviation Regulations would be ready by 25 December 2000 and checks would begin thereafter. 3.5 Aircraft operations certification and supervision in Turkmenistan Abstract of findings Turkmenistan has recently promulgated a number of regulations for aircraft operations which generally comply with relevant ICAO SARPs The certification of aircraft operations in Turkmenistan is undertaken by the Certification and Licensing Department of the Main Flight Safety Inspection Bureau. In addition to its Chief, the department has three operations inspectors. Another three flight operations specialists, located in the Maintenance Service Centre and overseen by the Deputy Chief of Flight Operations, are also involved in the certification of air operators. All necessary documentation and handbooks are available to the technical staff as well as computers and other office equipment. Although the technical staff are proficient as engineers and pilots, insufficient initial and recurrent training is being provided in respect to their specific duties as inspectors Procedures established for the supervision of aircraft operations are described in the Manual on Operational Inspection, Certification and Regular Supervision Procedures. A review of actual surveillance files and records indicated that ad hoc surveillance of certified operators has been carried out The action plan submitted by Turkmenistan, addressing all the recommendations contained in the audit interim report and related to aircraft operations, is summarized in paragraph Corrective action plan proposed/implemented by Turkmenistan With respect to the recommendations requiring the State to amend its regulations to include requirements for a GPWS with predictive terrain hazard warning functions to be included as equipment for all turbine-engine aeroplanes of a maximum certificated take-off mass in excess of kg or authorized to carry more 30 passengers, for which the individual certificate of airworthiness is first issued on or after 1 January 2001; all turbine-engine aeroplanes of a maximum certificated take-off mass in excess of kg or authorized to carry more than 30 passengers from 1 January 2003; and all turbine-engine aeroplanes of a maximum certificated take-off mass in excess of kg or authorized to carry more than nine passengers; for air operators to develop a flight safety and accident prevention programme in conformance with ICAO

10 - 9 - Annex 6, Part I, paragraph 3.6; and for operators to ensure that, below the transition level/altitude, all flight crew members required to be on flight deck duty communicate through boom or throat microphones; the NCAA indicated that, by 31 October 2000, it would have amended the State Aviation Regulations to include the requirement that air operators establish a flight safety and accident prevention programme and by 31 July 2000, it would have amended the State Aviation Regulations and Flight Manual to include the requirements as specified in the recommendation With respect to the need to nominate a department or an official to be responsible for issues related with the safe transport of dangerous goods by air, the NCAA indicated that, by 31 July 2000, it would have organized special training for the technical personnel of Turkmenhovayollary on the transport of dangerous goods by air and would also have nominated an official within the Flight Safety Inspection Bureau to be responsible for issues related with the safe transport of dangerous goods by air. 3.6 Continuing airworthiness inspection and surveillance in Turkmenistan Abstract of findings The NCAA has numerous regulations regarding aircraft airworthiness in Turkmenistan, which deal with the certification of aeroplanes, engines, propellers and auxiliary units. Certification for compliance is made by the Interstate Aviation Committee (IAC) of the Commonwealth of Independent States (CIS). In addition, there are a number of directives and notices. The enforcement provisions are covered in the basic aviation legislation of Turkmenistan. As these regulations were enacted in 1999or early in 2000, they need to be further developed and have yet to be implemented The NCAA does not have a clear separation of responsibilities among the different departments dealing with airworthiness matters, neither has a manual on the procedures for delegation of responsibility been published by the NCAA. The recommendation contained in the interim report on the need for the NCAA to restructure, in order to achieve a clear distinction between regulator and operator, and to regroup its activities in a more effective manner, applies, in great measure, to those departments concerned with airworthiness matters. In particular, the lines of communication and the chain of command between the Flight Safety Inspection Bureau and the other departments is not clear None of the departments dealing directly with airworthiness activities in the NCAA have all the essential continuing airworthiness information, such as airworthiness directives, service bulletins, approved flight manuals or the manufacturers maintenance, repair, overhaul manuals and structural programme. The policy of the NCAA is for these documents to be kept by the operator. Daily reference to these documents is the basis for the inspection and continued surveillance of operators and for subsequent decisions and recommendations to the Flight Safety Inspection Bureau The NCAA does not have a comprehensive requirement for the approval of maintenance facilities, maintenance/reliability programmes and minimum equipment lists (MELs). None of the operators are approved as a maintenance facility, nor have an approved aircraft maintenance/reliability programme and MEL. The maintenance capability of the operators is limited to line maintenance only, and all aircraft registered in Turkmenistan are either maintained according to a CIS arrangement or sent to foreign facilities which claim to have been approved by their respective oversight authorities. The NCAA neither evaluates nor conducts any surveillance of any of these facilities.

11 Although for aircraft manufactured in the CIS States the IAC functions as a system, both for approving maintenance programmes and for timely distribution of continuous and mandatory airworthiness information, no system has been established for aircraft which are not manufactured in the CIS States. The aircraft register of Turkmenistan shows a significant increase in the procurement of aircraft which are not manufactured in CIS States in the last two years, and there is the potential for more such aircraft in the immediate future. It is therefore incumbent upon the NCAA to develop a sustainable capability for airworthiness oversight of aircraft not-manufactured in CIS States The action plan submitted by Turkmenistan, addressing all the recommendations contained in the audit interim report and related to airworthiness, is summarized in paragraph Corrective action plan proposed/implemented by Turkmenistan With respect to the recommendation that all airworthiness, aircraft-related documents, including documents issued by ICAO, be retained by the Technical Operations Division or in a central library accessible to all concerned staff members, the NCAA indicated that by 30 September 2000, it would have established, within the Operations Division, a library of technical documentation with all the necessary documents. Addressing the need to develop and publish an inspectors handbook, the NCAA also indicated that, by 31 October, it would develop and implement a manual on airworthiness oversight procedures and by 30 November 2000 it would provide the airworthiness inspectors with a sufficient amount of reference material With respect to the need to expedite the completion of the development and promulgation of its regulations and procedures, the NCAA indicated that it expects to complete the development of the regulations and procedures by 15 October 2000 and begin implementing the new requirements by 28 February 2001, including the conducting of repeat checks on aviation organizations and equipment, and issue the appropriate licences On the subject of exchange of information, the NCAA indicated that, by 30 September 2000, it would have developed a system for the exchange of information between States of Design and Turkmenhovayollary concerning the airworthiness of aircraft and by 31 October 2000, it would have performed a check and again inform the State of Design that aircraft have been entered in the State registry of Turkmenistan With respect to the need for Turkmenistan to ensure that its ETOPS requirements conform with ICAO requirements, the NCAA indicated that by 20 August 2000, it would have developed and implemented ETOPS regulations, taking into account ICAO Standards, and would also have developed an ETOPS training programme for flight and maintenance engineering personnel. By 31 October 2000, the NCAA would have improved the reliability system taking into account ETOPS operations by its operators With respect to the need for operators to develop and submit minimum equipment lists (MELs) for approval by the NCAA and the need to develop the necessary procedures for the approval of MELs, the NCAA indicated that, by 30 September 2000, it would have finalized the procedures for approving MELs and included the relevant requirements in the State aviation regulations and by 30 November 2000, it would oblige air operators to revise MELs prepared earlier and submit them for approval on the basis of the established procedures.

12 With respect to the need for the NCAA to establish procedures for the evaluation and approval of operators maintenance programmes, the NCAA indicated that, by 20 October 2000, it would have developed additional requirements and procedures for evaluating and approving aircraft maintenance programmes, taking account of the flights made, equipment available and experience. It also indicated that by 31 October 2000, it would have supplemented the State aviation regulations with provisions enabling airworthiness inspectors to oversee the development of reliability programmes On the issue of the need to specify the minimum qualification and experience requirements for inspectors, the NCAA indicated that by 20 July 2000, it would have included in the State aviation regulations experience requirements for airworthiness inspectors in line with ICAO recommendations With respect to the need for Turkmenistan to either adopt or accept an airworthiness code commensurate with the aircraft registered and operated in the State, the NCAA indicated that by 31 July 2000, it would have amended the State aviation regulations to include the requirement that the appropriate airworthiness code be included in the Certificate of Airworthiness and, by 31 August 2000, would have also included the appropriate codes in previously issued Certificates of Airworthiness. 4. COMMENTS Turkmenistan, as earlier indicated, had provided ICAO with a detailed action plan addressing all the findings and recommendations raised by the audit. In almost all cases, Turkmenistan had indicated that action would have been completed by 31 October The comments and clarifications provided were, as appropriate, taken into consideration in the preparation of this audit summary report. 5. STATUS OF IMPLEMENTATION AND DIFFERENCES FROM THE ICAO SARPs Differences identified during the audit are found in the appendix to this summary report and differences vis-à-vis Standards will be included in the relevant Annex Supplement in line with Article 17 of the MOU signed between Turkmenistan and ICAO. Although Turkmenistan was provided with a pre-audit questionnaire to assist it in identifying differences between its national regulations and ICAO SARPs and/or SARPs not implemented, a list of such differences was not submitted to the audit team. As such, the list of differences in the appendix may not be exhaustive and Turkmenistan is urged to conduct a thorough review of its national legislation and regulations and to notify ICAO of any further differences as required under Article 38 of the Chicago Convention.

13 APPENDIX STATUS OF IMPLEMENTATION AND LIST OF DIFFERENCES FROM THE ICAO STANDARDS (ANNEX 1 PERSONNEL LICENSING) ICAO Standard reference NCAA reference Differences between the national regulations of Turkmenistan and ICAO Standards The medical examination may only be deferred in extreme cases, i.e. flood, earthquake, etc. and will only be approved for a maximum of one month by the Chief Executive of the Turkmenistan NCAA The Turkmenistan NCAA does not issue a free balloon pilot licence There are no regulations regarding evidence of recency for licence renewal The Turkmenistan NCAA does not issue separate helicopter licences.

14 A-2 STATUS OF IMPLEMENTATION AND LIST OF DIFFERENCES FROM THE ICAO STANDARDS (ANNEX 6 OPERATION OF AIRCRAFT) (PART I International Commercial Air Transport Aeroplanes) ICAO Standard reference NCAA reference Differences between the national regulations of Turkmenistan and ICAO Standards RATOC There is no regulation established specifying a threshold time for extended range operations by aeroplanes with two turbine power-units (ETOPS) 6.20 FR There is no regulation requiring the operator to ensure that, below the transition level/altitude, all flight crew members required to be on flight deck duty communicate through boom or throat microphones. 10.1, 10.2 and , and FR AP25 There is no regulation relating to flight operation officer/flight dispatcher licensing, training and duties. The existing national regulations are not amended in order to conform to ICAO Annex 6, Part I, , and RATOC The national regulation for air operator certification does not require the operator to establish safety programme. 3.7 Note 1 RAAL The national regulations for the safe transport of dangerous goods by air are not in full compliance with ICAO Annex N/A NCCA regulation does not conform to the ICAO Standard. The following Annex 6, Part I provisions are not implemented in Turkmenistan: 6.1.2, 8.1.2, 8.3.1, 8.7, 11.3 and 11.4.

15 A-3 STATUS OF IMPLEMENTATION AND LIST OF DIFFERENCES FROM THE ICAO STANDARDS (ANNEX 8 AIRWORTHINESS OF AIRCRAFT) ICAO Standard reference NCAA reference Differences between the national regulations of Turkmenistan and ICAO Standards The following Annex 8 provisions are not implemented in Turkmenistan: Part II, 4.2, and Chapter 7. END

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