AUDIT SUMMARY REPORT OF THE DEPARTMENT OF CIVIL AVIATION AND METEOROLOGY OF QATAR

ICAO Universal Safety Oversight Audit Programme AUDIT SUMMARY REPORT OF THE DEPARTMENT OF CIVIL AVIATION AND METEOROLOGY OF QATAR (Doha, 7 to 12 April 2001) INTERNATIONAL CIVIL AVIATION ORGANIZATION

ICAO UNIVERSAL SAFETY OVERSIGHT AUDIT PROGRAMME Audit Summary Report on the Safety Oversight Audit Mission to Qatar (Doha, 7 to 12 April 2001) 1. BACKGROUND 1.1 The Department of Civil Aviation and Meteorology (DCAM) of Qatar was initially assessed under the voluntary ICAO Safety Oversight Assessment Programme from 7 to 11 December 1996 by an ICAO assessment team. This audit was carried out from 7 to 12 April 2001 pursuant to Assembly Resolution A32-11 and in accordance with the updated Memorandum of Understanding (MOU) agreed on 21 July 2000 between Qatar and ICAO. The objectives of this 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 DCAM of Qatar. The audit also aimed to ensure that Qatar 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), associated guidance material and good aeronautical practices. 1.2 On 21 July 2001, Qatar submitted an action plan addressing all the findings and recommendations contained in the audit interim report and also containing comments and clarifications of 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 generally found to be satisfactory, as was an update to the action plan submitted on 9 February 2002. The comments and clarifications provided were, as appropriate, also taken into consideration in the preparation of this report. 2. CIVIL AVIATION ACTIVITIES IN QATAR At the time of the audit, civil aviation activities in Qatar included: a) number of technical staff employed by the organization at Headquarters 3 b) number of active pilot licences 216 c) number of active flight crew licences other than pilot licences 428 d) number of active licences other than flight crew licences 122 e) number of commercial air transport operators 2 f) number of air operator certificates (AOCs) issued 2 g) number of aircraft operations inspectors 1

- 2 - h) number of aircraft registered in Qatar 43 i) number of Certificates of Airworthiness (C of A) issued 43 j) number of Approved Maintenance Organizations (AMOs) 3 k) number of aircraft maintenance workshops 2 l) number of aircraft airworthiness inspectors 2 3. SUMMARY OF FINDINGS 3.1 General statement 3.1.1 The primary aviation legislation of Qatar is Civil Aviation Law No. 15 of 1991. The Law outlines the responsibilities of the DCAM and its administration; however, it does not empower the DCAM or the Minister responsible for civil aviation to promulgate specific air navigation regulations. The Director of the DCAM has been authorized by a Ministerial Decree to adopt the Joint Aviation Requirements (JARs) as national regulations and they are used alongside other regulations adopted from the U.S. Federal Aviation Regulations (FARs) and the UK British Civil Airworthiness Requirements (BCARs) along with some locally developed procedures. Qatar has not developed a system to review adopted regulations for compatibility or for ensuring conformance with relevant ICAO Annex provisions. Qatar has ratified Article 83bis of the Chicago Convention and has also entered into several agreements based on Article 83 bis but has not yet amended its legislation to provide for its implementation. 3.1.2 The DCAM, a department of the Ministry of Transportation and Communications, is responsible for civil aviation activities in Qatar. The Safety Regulations Section of the DCAM, which is responsible for safety oversight, is currently experiencing a shortage of technical staff to accomplish its responsibilities in a more effective manner. This is due to the inability of the DCAM to attract, recruit and retain qualified and experienced personnel. The DCAM has developed some inspector guidance material but has not developed a formal training policy and training programme for its staff. Although the DCAM staff are also responsible for accident/incident investigations, none have been provided with sufficient training in this field. 3.1.3 The Safety Regulations Section does not have a unit specifically dedicated to personnel licensing activities. All activities related to the issuance and renewal of licences and ratings are divided and conducted by different units within the Safety Regulations Section of the DCAM. JAR-FCL 1, 2, 3 and 4 are adopted in Qatar as regulations for flight crew licensing. Several differences exist between the adopted regulations and the corresponding provisions of Annex 1. Furthermore, other personnel licensing provisions of Annex 1 are not incorporated in Qatar s personnel licensing regulations. There are currently no specialists working full-time for the DCAM who are assigned to deal specifically with licensing matters. Procedures for the conduct of all licensing examinations and for approving written and practical test examiners are still under development. 3.1.4 The Flight Operations Unit is charged with the certification and supervision of air operators and with the development of flight operations policies, procedures and regulations. This unit has been staffed

- 3 - with only one person for the last four years and the current flight operations inspector is newly assigned. The total flight operations staffing level is insufficient for assigned responsibilities and for the level of aviation activities. In addition to increased personnel, the Flight Operations Unit also needs a comprehensive inspector training and flight currency programme, additional regulatory procedures, information equipment and additional technical documentation. 3.1.5 The Airworthiness Inspection Unit is responsible for airworthiness supervision and control activities in Qatar. Some airworthiness regulations and procedures and assorted checklists exist but are not adequate for Qatar s level of aviation activities. The current airworthiness regulations do not fully conform to ICAO SARPs and associated guidance material. The Airworthiness Inspection Unit is minimally staffed for the present level of aviation activities and has not established a formal surveillance programme for regular or random inspections. It does not have essential office tools and equipment like computers, long-distance telephone access and government transportation for inspectors. The DCAM has not provided appropriate training to prepare its inspectors for the proper discharge of their responsibilities. There is no appropriate central technical library within the DCAM. 3.2 Primary aviation legislation and civil aviation regulations in Qatar 3.2.1 Abstract of findings 3.2.1.1 The primary aviation legislation of Qatar is the Civil Aviation Law No. 15 of 1991. Law No. 15 does not specify in reasonable detail the duties and responsibilities of the Minister and does not empower him to promulgate air navigation regulations. The law also does not provide for the delegation of the necessary authority to develop, issue and revise operating rules and regulations based on the provisions of the Annexes to the Chicago Convention. 3.2.1.2 Article 11 of Law No. 15 provides for the certification of airports, licensing procedures, air traffic services and operation of aerodromes. However, these provisions are very limited in scope and rely heavily on regulations which are not yet formally promulgated. The Director of the DCAM relies on a system of Ministerial Decrees to introduce changes when required. 3.2.1.3 The Director of the DCAM has been authorized by Ministerial Decree of 13 March 1999 to adopt the Joint Aviation Requirements (JARs) as the basis for Qatari regulations and to govern aviation activities in Qatar. These regulations, along with some locally developed procedures and specific adaptations from both the Federal Aviation Regulations (FARs) of the United States and the British Civil Airworthiness Requirements (BCARs), form the basis of the QCARs. However, these regulations do not fully conform to ICAO SARPs and amendment procedures have not been developed to ensure that the QCARs keep pace with changes to ICAO SARPs. There is no mechanism established to review amendments made to ICAO SARPs and to implement changes in the QCARs, or to notify ICAO of any differences. 3.2.1.4 A Qatar Civil Airworthiness Requirements and Procedures (QCARP) document has been issued under the authority of the Director of the DCAM. This document serves both as subsidiary regulations and as a DCAM procedures manual for inspectors. The QCARP is an approved document that constitutes the mandatory civil airworthiness requirements and procedures and expands upon the airworthiness regulations published in Part 8 of the QCARs.

- 4-3.2.1.5 Law No. 15 does not make provision for the enforcement of either the Qatar Civil Aviation Regulations (QCARs) or the operating regulations and directives issued by the DCAM. Under Article 11 of Law No. 15, the DCAM has the responsibility to determine who should have unrestricted access to aviation facilities and to conduct inspections of aviation installations and facilities. However, the DCAM has not issued credentials to ensure the proper authorization of inspectors who are granted rights of access to conduct inspections of aviation activities. 3.2.1.6 Qatar ratified Article 83 bis to the Chicago Convention in 1998 and the DCAM has entered into several Article 83 bis agreements. However, no records of surveillance or ongoing supervision on the part of the DCAM were available on these leasing operations. Qatar has not amended its regulations to provide for the implementation of Article 83 bis. 3.2.2 Corrective action proposed/implemented by Qatar 3.2.2.1 The DCAM advised in its action plan that a new State of Qatar Civil Aviation Act of 2001 will be promulgated into law by 30 September 2001. This new Civil Aviation Act, which will supersede the Civil Aviation Law No. 15 of 1991, specifies in greater detail the duties and responsibilities of the Minister responsible for civil aviation and also allows for the delegation of the necessary authority and the assignment of corresponding responsibility to develop, issue and revise operating regulations at the level of the DCAM. 3.2.2.2 According to the DCAM, a system and procedures for implementing amendments to the SARPs of ICAO Annexes 1, 6 and 8, as well as for listing and notifying ICAO of differences that may exist between the QCARs and the SARPs will be established and published in the DCAM Manual of Policies and Procedures, Safety Regulations Section, Document Reference No. DCAM/MPP.SRS/01, which is presently being developed. The manual is expected to be completed by 30 September 2001. 3.2.2.3 The DCAM advised that the new Civil Aviation Act of 2001 will include provisions related to the enforcement of the civil aviation regulations, including prescribing penalties for contravention of the regulations. At the same time, an Inspection Manual for Aviation Safety Inspectors will be completed by 30 September 2001 and will formally establish and document the implementation of enforcement procedures within the DCAM in order to ensure a standardized and objective approach. 3.2.2.4 With respect to the need to specifically empower DCAM inspectors with unrestricted access to aircraft and facilities in order to conduct inspections, the DCAM noted that this issue will be addressed in the new Civil Aviation Act of 2001, to be promulgated by 30 September 2001. The DCAM will also develop inspectors credentials by 30 September 2001 to ensure the proper authorization of inspectors who are granted rights of access when carrying out inspections of Qatar s aviation activities. 3.2.2.5 The DCAM noted that the new Civil Aviation Act of 2001 will provide for the implementation of Article 83 bis, including the recognition of Certificates of Airworthiness (C of As) and/or personnel licences, and for the proper transfer of State of Registry responsibilities under Article 83 bis. At the same time, a programme for the periodic review of these agreements will be included in the Inspection Manual for Aviation Safety Inspectors which will be completed by 30 September 2001. 3.2.2.6 According to the DCAM, a system and procedures for the timely amendment and incorporation of current Annex SARPs into the Civil Aviation Law and the QCARs will be established and

- 5 - published by 30 September 2001 in the DCAM Manual of Policies and Procedures, Safety Regulations Section, Document Reference No. DCAM/MPP.SRS/01. 3.2.2.7 In the update to the action plan submitted on 9 February 2002, the new Civil Aviation Authority (CAA) (which has replaced the DCAM) advised that the promulgation of the new Civil Aviation Act is in progress and expected to be in force by 9 May 2002. 3.3 Civil aviation organization system in Qatar 3.3.1 Abstract of findings 3.3.1.1 The DCAM has been established under the Ministry of Transportation and Communications and is headed by a Director. Law No. 15 only mentions the supervision of civil aviation but does not formally establish an agency responsible for civil aviation. Specific duties and responsibilities of the Minister and the Director are not fully described in any document. 3.3.1.2 The DCAM headquarters is located in the capital city of Doha, approximately six miles from the international airport. There are no regional offices and all activities are conducted from headquarters. The DCAM consists of the following sections: the Air Transport Section, the Technical Services Section, the Safety Regulations Section, the Secretariat Section and the Meteorology Section. The Safety Regulations Section is the principal regulatory arm for aviation activities in Qatar. 3.3.1.3 The Safety Regulations Section is divided into three units: Flight Crew Licensing, Airworthiness, and Flight Operations. The number of personnel of the Safety Regulations Section is six, including one section chief, one flight operations inspector, two airworthiness inspectors and one consultant who is employed for a seven-week period every year and assists in the flight operations area. One of the two established operations inspector positions is presently vacant and the DCAM is facing great difficulty in filling this position due to budget problems, poor remuneration and lack of inspector training funds. The level of staffing at the DCAM in all three specialties is not considered adequate for the current level of activities and for the accomplishment of the DCAM s safety oversight responsibilities. 3.3.1.4 Financial resources for the DCAM are provided by the Central Federal Budget. The current DCAM budget allotment is not considered adequate for normal operations and some responsibilities of the DCAM such as inspection and surveillance activities remain unimplemented due to a shortage of funds and the lack of an adequate inspectorate staff. 3.3.1.5 There is presently no licensing officer in the DCAM and there is at least one vacancy open in both the Flight Operations and Airworthiness Units. Hiring of inspectors is accomplished by the Qatari Civil Service Administration and Finance Directorate. No terms of reference for DCAM positions have been developed. The Safety Regulations Section is assisted by a single administrative support clerk whose position is not on a full-time basis. 3.3.1.6 A major problem encountered by the Qatari Civil Service Administration concerns the limitation of salaries and the difficulty of recruiting qualified Qatari technical personnel. The DCAM is not seen as a competitive employer since its personnel do not receive remuneration equal to that of similarly qualified personnel in the aviation industry.

- 6-3.3.1.7 The Safety Regulations Section is supported by a system of inspector guidance and standard office equipment, but the inspectors have not been provided with all the necessary tools to do their jobs. Some inspectors do not have access to personal computers, micro-fiche readers and Internet access. They have limited access to long distance telephone lines and this seriously handicaps their ability to communicate and coordinate with aviation safety resources outside of Qatar. Additionally, there are no government vehicles available to the inspectorate. 3.3.1.8 The DCAM has not developed a comprehensive written policy or formal training programme for the operations, airworthiness or personnel licensing inspectors. There is no standardized initial or recurrent training for inspectors. Courses are provided on an ad hoc basis. Newly recruited inspectors are given an individually tailored career development plan which may span several years but does not include an on-the-job training programme to ensure inspector competence on individual job functions. 3.3.1.9 The Safety Regulations Section is in charge of aircraft accident investigation and prevention as outlined in Article 11 of Law No. 15. However, no one in the Safety Regulations Section has been provided with recent training in this field nor does the Section have the skill or tools to perform this important investigatory function. Other parties may be invited to any investigation but the determination of probable cause is accomplished by the Safety Regulations Section. 3.3.2 Corrective action proposed/implemented by Qatar 3.3.2.1 The DCAM advised in its action plan that it will request government funds and financial allocation, to be approved before 30 September 2001, to permit the following activities and undertakings: a) reclassification of remuneration for DCAM inspectors equivalent to the level offered to counterparts in industry before 30 October 2001; b) hiring of additional qualified and experienced DCAM flight operations and airworthiness inspectors, personnel licensing examiners and technical staff before 30 December 2001; c) conduct of safety oversight related inspections, monitoring, surveillance and other aviation activities in accordance with preplanned programmes and milestones, starting 30 September 2001; d) participation and completion of initial and recurrent local and overseas training of all inspectors, starting 30 October 2001; e) purchase of two vehicles for use by inspectors for inspection and surveillance duties, before 30 October 2001; f) purchase of additional materials, tools and equipment for use by inspectors during inspection and surveillance duties and aircraft accident and incident investigation, before 30 November 2001;

- 7 - g) completion of aircraft accident investigation and management training for all persons to be appointed to conduct or participate in aircraft accident investigations, before 30 December 2001; h) establishment of a Personnel Licensing Office dedicated to the issue, extension and renewal of personnel licences in accordance with Annex 1, before 30 December 2001; i) establishment of a technical library dedicated to safety oversight and inspection functions, before 30 December 2001; and j) hiring of a qualified and experienced technical librarian, before 30 December 2001. In addition, the DCAM noted that, as of 5 July 2001, it purchased additional office equipment, installed IDD telephones, office computers, the LAN system and Internet access, and has started subscriptions for various aviation publications and continuing airworthiness information. 3.3.2.2 The DCAM Manual on Policies and Procedures, to be completed by 30 September 2001, will provide the written terms of reference for all technical staff as well as outline the formal rules and standard policy for recruiting technical staff with appropriate qualifications and experience based on ICAO Docs 9389, 8335 and 9379. 3.3.2.3 According to the DCAM, a formal training policy for technical staff will be provided in the DCAM Manual of Policies and Procedures by 30 September 2001. At the same time, a formal training programme will be established and published in the annex of the manual and will include, but not be limited to, an indoctrination and OJT period which will be required before the technical staff are deemed qualified to undertake their job responsibilities and functions. Records of all technical personnel will be established and maintained in a databank with files controlled by the Safety Regulations Section starting 30 August 2001. 3.3.2.4 With respect to accident investigation, the DCAM noted that its Senior Airworthiness Inspector has completed a course in aircraft accident investigation management and has been involved in various aircraft incident and accident investigations prior to and during his tenor in the DCAM. It was also noted that the technical staff of the Safety Regulations Section have sufficient technical knowledge to participate in aircraft accident investigation, being either qualified airline transport pilots or professional aeronautical engineers with considerable experience. However, provisions enabling the establishment of an accident investigation board/committee are provided for in the new Civil Aviation Act of 2001, and a training policy and standard for persons appointed to conduct investigations will be published in the DCAM Manual of Policies and Procedures by 30 September 2001. These persons will be required to complete training overseas on aircraft accident investigation and management starting from 30 November 2001. 3.3.2.5 In the update to the action plan submitted on 9 February 2002, the new CAA advised that Decree Law No. 16 of 2001 was enacted on 1 August 2001 by the Deputy Emir of the State of Qatar, replacing the DCAM by the newly established autonomous CAA, and likewise dissolving the Ministry of Communication and Transport. This Law now supersedes Law No. 15 of 1991. The CAA is empowered to establish and publish civil aviation policies, rules and regulations required to implement ICAO SARPs and to oversee their enforcement and implementation. 3.4 Personnel licensing and training Qatar

- 8-3.4.1 Abstract of findings 3.4.1.1 The issuance of personnel licences in Qatar is governed principally by Article 11, paragraph 5 of the Civil Aviation Law No. 15 of 1991, which allows for the issuance and administration of aviation licences in Qatar. This Article is further complemented by Ministerial Decree of 4 March 1999, which enables Qatar to adopt JARs. JAR-FCL 1, 2, 3 and 4 are used as regulations for flight crew licensing. There are several differences which exist between these adopted regulations and the corresponding provisions of Annex 1. 3.4.1.2 Personnel licensing activities within the DCAM are divided among several units within the Safety Regulations Section. There is no specific and comprehensive Personnel Licensing Unit or an officer assigned primarily to accomplish this function. The Flight Crew Licensing Unit is responsible for the day-to-day administration and issuance of flight crew licences. The Airworthiness Unit assesses and makes recommendations to the Director on either non-validation or validation of aircraft maintenance engineer (AME) licences. Training organizations for maintenance are approved by the DCAM on the basis of satisfactory compliance with JAR-147 standards. The authority to validate personnel licences is held by the Director of Civil Aviation and Meteorology. All licences and documents issued by the DCAM are signed by the Director. 3.4.1.3 The administration of written examinations for the issuance of private pilot and commercial pilot licences is done by Qatar Aeronautical College. Air traffic controller licences are issued by the Air Traffic Controllers Unit. 3.4.1.4 One flight operations inspector assisted by one clerical staff member is assigned to undertake licensing activities of the Flight Crew Licensing Unit. The officer has not been provided with formal training to enable a more effective undertaking of responsibilities. 3.4.1.5 Licences issued in Qatar include: private pilot licence (PPL) aeroplane and helicopter, commercial pilot licence (CPL) aeroplane and helicopter, air transport pilot licence (ATPL) aeroplane and helicopter, flight engineer and air traffic controller licences. 3.4.1.6 Pilot licences are issued to applicants who have followed a PPL and CPL training course at Qatar Aeronautical College and some who have received training abroad. Validation is issued to foreign licence holders for short periods with a maximum validity period of six months, and only in cases when there is reasonable operational necessity. With regard to flight crew licensing, the requirements for the issuance of a licence on the basis of a foreign licence are specified in the Flight Crew Licensing Handbook, published by the DCAM on 25 March 2001. 3.4.1.7 Application forms are available for the various licences and ratings issued by Qatar. However, there is no personnel licensing handbook or guidance manual containing procedures covering personnel licensing activities to assist the licensing officers in their functions. 3.4.1.8 The DCAM has not established a specific Aeromedical Section as required by JAR-FCL 3. However, five doctors have been designated to evaluate personnel licensing fitness and to evaluate medical certificates. The basis for this designation is not clearly defined and no procedures have been developed for the designation of medical examiners and for the evaluation of medical examination reports.

- 9-3.4.1.9 Paragraph 3.120(b) of JAR-FCL 3 adopted by Qatar specifies actions in the case of a false medical declaration by an applicant. The circumstances under which a medical examination may be deferred are not defined and there are no provisions in the adopted regulations corresponding to the Annex 1, Class 3 Medical Assessment. 3.4.1.10 Paragraph 9.5 of the Flight Crew Licensing Handbook specifies that the holder of a flight crew licence may appeal a DCAM decision by submitting a formal letter detailing the basis for the appeal within thirty days. However, all appeals are addressed to the DCAM, the agency which has originally made the enforcement decision. 3.4.1.11 The licences issued by Qatar are both of the continuing and expiring type. The validity of the licences is largely determined by the validity of the type ratings associated with the accompanying certificate of testing or based on the validity of the medical certificate. 3.4.1.12 The DCAM maintains a personal file for each licence applicant and licence holder. These files contain all licensing-related correspondence, applications, assessments and examination results. Access to these records is limited to the Flight Crew Licensing Unit staff and files are secured in a locked safe. Copies are maintained in a secure computer database. 3.4.1.13 The DCAM s flight operations inspectors are responsible for the development of written examinations for the issuance of the private pilot and commercial pilot licences. However, these written examinations are conducted and corrected by instructors and designated examiners from the Qatar Aeronautical College. The DCAM has not established procedures to effectively control and supervise the entire process of examination administration. 3.4.1.14 Qatar Aeronautical College offers training to private pilot and commercial pilot students. However, no system or procedure has been established for the certification and inspection of aviation training centres in Qatar. The DCAM has not established procedures for the approval and supervision of specific training courses and no surveillance is made to ensure the quality of training provided to Qatari nationals at foreign training centres. 3.4.2 Corrective action proposed/implemented by Qatar 3.4.2.1 With respect to Annex 1 SARPs, the DCAM will file with ICAO, by 30 August 2001, differences between the QCARs and the ICAO SARPs regarding the non-issuance of the glider pilot, free balloon pilot and flight operations officer licences. Meanwhile, by 30 September 2001, the DCAM will incorporate provisions for the issuance of AME licences and ratings in the QCARs, Part I, Volume 6; provisions for the issuance of an air traffic controller licence and ratings in the QCARs, Part I, Volume 5; and requirements for Class 3 Medical Assessments in the QCARs, Part I, Volume 3. 3.4.2.2 The DCAM reported that a Personnel Licensing Unit will be established by 31 December 2001 to take charge of all licensing responsibilities and activities within the DCAM. In addition, the recruitment of a licensing controller, an FCL examiner, and an aircraft maintenance engineer licensing examiner is already well underway. 3.4.2.3 The DCAM advised that the Flight Crew Licensing Handbook will be updated and renamed the Personnel Licensing Manual by 30 October 2001. The manual will include the procedures related to all

- 10 - personnel licensing activities such as licence application processing, designation of examiners, and the duties and responsibilities of personnel involved in licensing and training activities. Provisions on flight crew licensing will be incorporated in Section 1 of the manual, while provisions on matters other than flight crew licensing will come under Section 2. 3.4.2.4 The DCAM advised that the new Civil Aviation Act of 2001, to be in effect by 30 September 2001, will include a proper process for appealing DCAM decisions on licensing activities. 3.4.2.5 The DCAM advised that by 31 December 2001, the Personnel Licensing Manual will include the procedures for designation and supervision of medical examiners, including the criteria for selection, training and duties of medical examiners. A medical examiner will also be appointed to carry out the duties of a DCAM medical inspector. The need for procedures to deal with false medical declarations made by applicants will be addressed by 30 September 2001 by an amendment to the QCARs, Part I, Volume 3, paragraph 3.120 (b) and in the Personnel Licensing Manual. Furthermore, the DCAM will amend and update the QCARs, Part I, Volume 3 to include provisions dealing with the issuance of a medical assessment in cases where the medical assessment provisions for licensing are not fully met and also specifying the period and circumstances under which a medical examination may be deferred. 3.4.2.6 By 30 September 2001, the Personnel Licensing Manual will include procedures for the effective administration, control and supervision of licensing-related examinations. An examiner will also be recruited to prepare, conduct and correct all examinations. 3.4.2.7 The DCAM indicated that an Approved Training Organization Inspection Manual will be produced by 30 August 2001 which will provide the procedures and guidelines for inspection and supervision of all approved flight training organizations and type rating training organizations. The Personnel Licensing Unit will also be given the responsibility of inspecting and approving the flight training organizations used by Qatari licence holders by the end of December 2001. 3.5 Aircraft operations certification and supervision in Qatar 3.5.1 Abstract of findings 3.5.1.1 The Civil Aviation Law No. 15 of 1991 establishes the general provisions related to aircraft operations in Qatar. This legislation also provides for regulatory supervision of civil aviation and administration of its affairs according to national law and ICAO requirements. The Council of Minister s Decree of 26 June 1996 approves the use of UK CAA regulations and allows for their implementation in Qatar. The Council of Minister s Decree of 6 March 1999 provides for the incorporation of JARs into Qatari law. However, there is currently no mechanism or provision to identify differences between the adopted regulations and Annex provisions. 3.5.1.2 The Flight Operations Unit is responsible for aircraft operations, dangerous goods, cabin safety certification and other related activities in Qatar. The staff of the Flight Operations Unit consists of one flight inspector who is also in charge of the Flight Crew Licensing Unit and takes on several additional duties concerning personnel licensing. A second flight operations inspector is recruited as a consultant, when needed, but shares his time with the national airline who pays his salary. The consultant is in Qatar for seven weeks a year, a time which is shared between the DCAM and the national airline.

- 11-3.5.1.3 The Flight Operations Unit does not have adequate information equipment and access to necessary technical documentation is based on its reliance on the national operator for support. This is due to the lack of a central technical library and no staff to manage a library. No initial or recurrent training has been provided to the flight operations inspectors and no training plan exists due to a shortage of budgetary funds to support staff training. 3.5.1.4 The DCAM has adopted the certification procedures contained in the UK CAA Flight Operations Inspection Manual and the JARs. The air operator certificate (AOC) is issued on a continuing basis and is only surrendered when it is no longer in use. The contents of the AOCs conform to Annex 6 requirements and special provisions are covered in the airworthiness section of the specific operating provisions. The established certification procedures do not require a pre-application process and review or exchange between the DCAM and the prospective operator. There is no process for reviewing the financial viability of an applicant. There is currently one international air operator, the national carrier (Qatar Airways), which was certified in 1999. 3.5.1.5 The Flight Operations Inspection Manual approved by the Director in August 2000 provides for control and supervision of air operators and conforms to ICAO Doc 8335. Some flight operations notices and technical directives are used to augment the QCARs and are listed in the Qatar Civil Airworthiness Requirements and Procedures Document (QCARPs) which is used as a guidance manual and also contains requirements of a regulatory nature. 3.5.1.6 The DCAM has delegated several inspection functions such as competency, route, instrument ratings, conversion and upgrading checks to certified operators employing qualified flight check personnel. However, there is no system established for the control and supervision of designated examiners or check airmen. Dangerous goods inspection is the responsibility of the Flight Operations Unit but the inspector has not received appropriate dangerous goods training and there was no record of any dangerous goods reviews having been made. 3.5.1.7 Procedures for control and supervision of air operators are established in the Flight Operations Inspection Manual, including the requirement for an annual in-depth inspection to ensure the continuing validity of the AOC. Some of the requirements include periodical ground and flight inspections. Checklists used were reviewed and found to be comprehensive and to meet ICAO requirements. A review of surveillance records revealed that inspections had only started approximately two months prior to the audit. At the time of the audit, nine inspections had been completed and a viable inspection plan had been formulated to cover all aspects of flight operations in Qatar for 2001. 3.5.2 Corrective action proposed/implemented by Qatar 3.5.2.1 The DCAM advised in its action plan that an additional flight operations inspector will be recruited by 31 December 2001. 3.5.2.2 According to the DCAM, all AOC holders will be required to establish in their operations manual the duties, responsibilities and professional standards of their flight operations officers by 30 September 2001. Differences with Annex provisions relating to flight operations officers and/or flight dispatchers will be filed with ICAO by 30 August 2001.

- 12-3.5.2.3 With respect to the recommendation to include requirements for the operator not to assign a pilot-in-command unless that pilot has made at least three take-offs and landings within the preceding ninety days, the DCAM advised that the QCARs, Part 1, paragraph 1.026 (JAR-FLC 1.026) and the QCARs, Part 6, paragraph 1.970 (JAR-FCL 1.970) address this requirement, with the exception that they both allow for take-offs and landings to be carried out in flight simulators. The difference regarding the use of an approved simulator for recency requirements will be notified to ICAO by 31 August 2001. 3.5.2.4 The DCAM advised that limitations to the flight time and duty periods of both flight and cabin crew are stipulated in the Flight Time Limitation for Flight and Cabin Crew Scheme which was published in ICAO Circular 52-AN/47/6 Sixth Edition, 1984. This Scheme, along with the requirements for its implementation, will be incorporated into the QCARs, Part 6, Volumes 1, 2 and 3 by 30 September 2001. 3.5.2.5 The DCAM noted that the subject of the transport of dangerous goods is covered in the QCARs, Part 6, Volume 1 (JAR-OPS 1, Subpart R). Training courses on dangerous goods will be provided to flight operations inspectors by 31 December 2001. 3.5.2.6 The DCAM Flight Operations Inspection Manual will establish, by 30 October 2001, a mechanism for the control and supervision of designated examiners who carry out supervision and inspection duties on behalf of the DCAM. 3.5.2.7 The DCAM advised that the air transport licensing regulations which will be developed as part of the QCARs, Part 6, will require, by 30 December 2001, an evaluation of the financial viability of air operators as part of the certification process. In addition, the Flight Operations Inspection Manual will also require an evaluation of financial viability as part of the initial certification process for air operators as well as the continuing surveillance and monitoring of the financial conditions of AOC holders. At the same time, periodic inspection and financial assessments will become part of the annual inspection programme of AOC holders. Other specialized DCAM departments will take part in the evaluation process, as required. 3.6 Airworthiness of aircraft in Qatar 3.6.1 Abstract of findings 3.6.1.1 The DCAM has developed three documents specifically concerning airworthiness: QCARs, Part 8 Airworthiness, QCAR-145 Approved Maintenance Organizations, and the Airworthiness Inspection Manual for the use of airworthiness inspectors. Three different sets of regulations, namely the JARs, BCARs and QCARs, are used, as applicable, along with the QCARP which constitutes the mandatory civil airworthiness requirements and procedures. 3.6.1.2 Qatar has not developed detailed and comprehensive guidelines for specialized services and a formal document that clearly defines the responsibilities and duties of the Airworthiness Unit is not available. Among the areas of concern are the maintenance-related aspects for the issuance of an AOC, approval of the minimum equipment list (MEL), aircraft noise certification, and granting special operating provisions such as ETOPS, required navigation performance (RNP), minimum navigation performance specifications (MNPS), and CAT II and CAT III. The DCAM has not developed procedures to ensure that operators are provided with information concerning a least-risk bomb location to be included in the Aircraft Flight Manual.

- 13-3.6.1.3 The Airworthiness Unit is staffed by two inspectors: a senior airworthiness inspector and an aircraft safety inspector. This staffing level is inadequate considering the level of aviation activity in Qatar as many surveillance tasks are not being conducted due to a shortage of inspectors. Clerical support staff are not available to assist in any administrative tasks such as the maintenance of a technical library. Another problem regarding airworthiness oversight is the lack of selection criteria for airworthiness inspectors, a lack of a formal training policy and a lack of recurrent and systems training programme for inspectors. 3.6.1.4 Some office equipment is available and offices are provided with personal computers but access to the Internet is not provided. The Airworthiness Unit also requires inspectors to use their own vehicles to conduct airworthiness surveillance missions, which further exacerbates the lack of surveillance and inspection. 3.6.1.5 The airworthiness oversight activities include C of A issuance/renewal, repair station/maintenance facility approval, surveillance, and ramp checks on all aircraft operating into the country. The Airworthiness Unit also makes recommendations on the validation of foreign AME licences. Flight simulator inspection and certification activities are performed by the Flight Operations Unit. 3.6.1.6 The Airworthiness Unit has not established a formal surveillance programme, either for regular or random inspections. There is a procedure and a checklist for conducting inspections adopted from JAR-145. Airworthiness surveillance is conducted once a year during C of A renewal (technical inspection) and when an organization approval certificate has to be renewed. The yearly surveillance which applies to AOC holders and approved maintenance organizations (AMOs) is supposed to entail inspections of both domestic and overseas maintenance subcontractors. However, due to the shortage of staff and the insufficient budget, no surveillance is undertaken by the unit. The visit to industry underlined the importance of continuing surveillance as many of the discrepancies noted should have been identified during a normal surveillance exercise. 3.6.1.7 Airworthiness approval requirements for AMOs are usually done once every two years as the approval certificate is valid for two years. There are no guidelines or procedures for specialized maintenance activities, such as aircraft welding and non-destructive testing (NDT). There are no guidelines or procedures for assuring that AMOs employ qualified personnel and there are no procedures for controlling subcontracted maintenance work. Initial and recurrent training requirements for AMO personnel have not been developed or enforced. 3.6.1.8 Aircraft maintenance reliability programme compliance is not a requirement for AOC holders and the Airworthiness Unit does not participate in the development or the ongoing analysis of reliability programmes. Lease agreements do not contain all of the provisions outlined in ICAO guidance material and these agreements are not audited or supervised by the DCAM as per national and ICAO requirements. 3.6.1.9 Aircraft files/records are well organized. Records are easy to retrieve but aircraft manuals sampled were outdated. The DCAM does not have an airworthiness technical library and most information and references are sought from the operator/amo, as necessary. Records for items such as time-since-overhaul or certification, airworthiness directive (AD) compliance, life controlled component status, and time for programmed inspections are available in the individual aircraft airworthiness files/records controlled by the Airworthiness Unit.

- 14-3.6.1.10 There is no effective system established to receive, adopt and disseminate mandatory continuing airworthiness information such as ADs and service bulletins for the type of aircraft registered in Qatar. 3.6.1.11 The DCAM has not issued requirements for all aircraft to comply with noise certification standards and does not have a requirement to carry noise certificates on board aircraft. However, some aircraft were issued noise certificates with reference to Qatari regulations. 3.6.1.12 There are no engineering/manufacturing certification activities in Qatar. 3.6.2 Corrective action proposed/implemented by Qatar 3.6.2.1 The DCAM advised that once the Civil Aviation Act of 2001 is ratified, the Director of Civil Aviation will be authorized to recruit and retain an adequate number of qualified and experienced airworthiness inspectors, including avionics inspectors, by 30 December 2001. The specific duties and responsibilities of the airworthiness inspectors will be defined in the Inspection Manual of Aviation Safety Inspectors by 30 September 2001. 3.6.2.2 By 30 September 2001, the DCAM will establish and publish the QCARs, Part 16, Volume 1 Aircraft Noise which will incorporate the relevant ICAO SARPs, thereby requiring all aircraft to comply with noise certification Standards as well as to carry noise certificates on board. Qatar noise certificates will also be amended to reflect the new QCARs. 3.6.2.3 According to the DCAM, a system for receiving and transmitting mandatory continuing airworthiness information, such as ADs and service bulletins, will be established by 1 October 2001, along with a computerized databank to be controlled by the Airworthiness Unit and made available to all airworthiness inspectors. All mandatory continuing airworthiness information disseminated to operators will be assigned a dissemination control number for inspectors to easily verify compliance action and the date it is undertaken by operators. Furthermore, the DCAM will carry out verification, inspection and examination of compliance with mandatory continuing airworthiness information during the Certificate of Maintenance Review Audit of the operator s maintenance programme, conducted every four months or upon completion of the compliance period. In addition, an AV-DATA AD Tracker will be installed by 30 August 2001 to support verification of applicable ADs made mandatory by the DCAM. The formal procedures for receiving, transmitting and tracking mandatory continuing airworthiness information will be established and published in the Inspection Manual of Aviation Safety Inspectors (Airworthiness) by 30 September 2001. 3.6.2.4 With respect to establishing requirements for specific operating provisions such as ETOPS, RNP, MNPS, as well as CAT II and CAT III maintenance requirements, the DCAM advised that this issue will be addressed in the QCARs, Part 6, Volume 1 Commercial Operations (Aeroplanes), Volume 2 General Aviation (Aeroplanes), and Volume 3 Commercial Operations (Helicopters), and QCAR AWO by 30 September 2001. At the same time, approvals related to the specific operating provisions for ETOPS, RNP, MNPS, CAT II and CAT III will be issued by the DCAM in the AOC in accordance with the QCARs. Meanwhile, mandatory DCAM airworthiness notices will be established and published by 30 September 2001, to formally adopt the following for compliance by operators prior to carrying out any operations that require specific operating approvals: AC 120.424/JAA Information Leaflet No. 20 for ETOPS; ICAO Doc 9613 for RNP; ICAO Doc 7030/4 for MNPS; JAA Temporary Guidance Leaflet Nos. 12 and 23 for AWOPS (CAT II and CAT III).

- 15-3.6.2.5 According to the DCAM, the Inspection Manual of Aviation Safety Inspectors (Airworthiness) will establish and outline, by 30 September 2001, a programme to approve and maintain ongoing oversight of maintenance reliability programmes of Qatari operators, including guidelines and procedures for changing the maintenance programme and for programme escalation. 3.6.2.6 The DCAM will, by 30 December 2001, hire additional airworthiness inspectors and will also request additional government funds for the Airworthiness Unit to conduct continuing supervision of maintenance and engineering activities of AOC holders and their maintenance subcontractors. Meanwhile, a formal schedule of audits by the Airworthiness Unit will be established and published in the Inspection Manual of Aviation Safety Inspectors (Airworthiness) by 30 October 2001 and records of the audits will be properly documented, filed and maintained in the Airworthiness Unit. 3.6.2.7 With respect to guidelines and procedures for certification standards for technicians performing specialized maintenance such as welding of aeronautical products and NDT, the DCAM advised that these will be published in the form of DCAM airworthiness notices by 30 September 2001. It added that the following standards will be adopted for specialized services: MIL-STD-SPECS-410E, as revised, for NDT; MIL-STD-453C, as revised, for Radiographic Inspection; MIL-I-6866, as revised, for Fluorescent Penetrant Inspection; ASTM 1444-D, as revised, for Magnetic Particle Inspection; MIL-18950B, as revised, for Ultrasonic Inspection; and MIL-STD-1537, as revised, for Eddy Current Inspection. 3.6.2.8 The DCAM will request government funds to establish and maintain an up-to-date airworthiness technical library and will hire a qualified and experienced technical librarian by 30 December 2001. 3.6.2.9 The DCAM advised that the Annex 8 Standard regarding least-risk bomb location is not implemented in Qatar and that a difference will be filed with ICAO by 30 August 2001. 3.6.2.10 With respect to lease agreements between commercial air transport operators, the DCAM indicated that Airworthiness Notices Nos. 18 and 21 will be revised by 30 August 2001 to ensure that consideration is given to the airworthiness of the aircraft, the performance of maintenance and the signing of the maintenance release. Regarding the audit and supervision of lease agreements entered into by Qatar operators, the DCAM will, by 30 September 2001, carry out these functions during the initial application for acceptance by the operators and not later than every four months during the period of the lease. Specifically, the audit and oversight programme of maintenance responsibility, which will include verification of compliance with mandatory continuing airworthiness information, will be conducted in accordance with the procedures outlined in the Inspection Manual of Aviation Safety Inspectors (Airworthiness). 4. COMMENTS As indicated above, Qatar submitted an action plan on 21 July 2001 and an update to the action plan on 9 February 2002, addressing all the findings and recommendations that were forwarded, including comments and feedback on the interim report sent on 18 June 2001. Qatar is encouraged to keep