VZCZCXRO7730
PP RUEHBZ RUEHDU RUEHJO RUEHMR RUEHRN
DE RUEHLU #0287/01 1001620
ZNR UUUUU ZZH
P 091620Z APR 08
FM AMEMBASSY LUANDA
TO RUEHC/SECSTATE WASHDC PRIORITY 4716
INFO RUCNSAD/SOUTHERN AFRICAN DEVELOPMENT COMMUNITY
RUEAHLC/HOMELAND SECURITY CENTER WASHDC
RULSDMK/DEPT OF TRANSPORTATION WASHDC
RHMCSUU/FAA NATIONAL HQ WASHINGTON DC

UNCLAS SECTION 01 OF 02 LUANDA 000287 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
DEPARTMENT OF TRANSPORTATION FOR CONNIE HUNTER 
 
E.O. 12958: N/A 
TAGS: EAIR ECON AO
SUBJECT: CIVAIR - PROGRESS BEING MADE, BUT A LONG WAY YET 
TO GO 
 
REF: A. A) LUANDA 204 
     ¶B. B) 07 LUANDA 872 
 
¶1. (U) This is an action message.  Please see paragraph 9 
 
¶2. (SBU) Summary: During an April 7 call on Angola's National 
Institute for Civil Aviation (INAVIC), Ambassador Mozena and 
INAVIC Director Antonio Pombal agreed our countries share the 
same goal: safe and secure aviation in Angola, eventually 
including direct flights between Angola and the United 
States.  Pombal told the Ambassador INAVIC has fully embraced 
the approach of Boeing-sponsored contractors in the 
development of its air safety certification program, and is 
expanding cooperation with the same consulting firm to 
include assistance on security, airdrome, and air navigation 
systems.  INAVIC is struggling, however, with the expansion 
of its new regulatory powers and it appears Pombal's hands 
are still tied by many in the GRA (including TAAG) who are 
unaccustomed to and have little appreciation for INAVIC's 
interference with their operations.  Pombal requested U.S. 
assistance on airport security and airdrome issues.  U.S. 
support in the form of technical expertise or commercial 
contacts for advanced equipment would be timely and encourage 
continued forward progress.  End Summary. 
 
--------------------------------------------- 
CivAir Regulation is a New Concept for Angola 
--------------------------------------------- 
 
¶3. (SBU) INAVIC Director General Antonio Pombal told 
Ambassador Mozena that effective regulation of civil aviation 
is a new concept for Angola.  Before independence, Portugal 
administered the country's aviation operations, and during 
the long civil war, Pombal said, the GRA paid little 
attention to the regulation of civilian flights.  Attention 
from the international community (especially the EU ban on 
TAAG airlines) is now forcing the GRA to take INAVIC's 
regulatory responsibility seriously.  Pombal said President 
Dos Santos ordered INAVIC to bring Angola into compliance 
with International Civil Aviation Organization (ICAO) and 
International Aviation Transportation Association (IATA) 
standards. 
 
¶4. (SBU) Pombal praised the work of Boeing-sponsored U.S. 
consultants (Tim Neel and Associates) to help INAVIC develop 
an ICAO compliant regulatory system.  Pombal said INAVIC has 
picked up the contract from Boeing and expanded the scope of 
the consultants' work to include bringing INAVIC regulations 
concerning airport security, airdrome, and air navigation 
into compliance with international standards.  Pombal expects 
their work on codifying new regulations on security and air 
navigation will be completed by early 2009.  Pombal said he 
plans to invite the U.S. Federal Aviation Administration 
(FAA) to review Angola's compliance with U.S. standards soon 
after the consultants finish their work and new security 
regulations are published, most likely in the first half of 
¶2009. 
 
¶5. (SBU) Pombal said INAVIC also understands the significant 
cost of maintaining an effective regulatory regime and he is 
asking the GRA to fully fund the program.  He said INAVIC 
needs 54 new inspectors and that each inspector requires long 
periods of training and qualification.  Pombal said the 
Ministry of Transportation is currently reviewing INAVIC's 
long-term budget and proposed staffing pattern, which include 
a significant increase in the salary level of INAVIC staff. 
Pombal said competition for well trained staff require a firm 
commitment to wage parity with the senior 777 and 747 flight 
commanders the inspectors would oversee.  So far, Pombal 
said, the GRA has responded positively to his requests. 
 
------------------------------ 
But Regulations are Just Paper 
------------------------------ 
 
¶6. (SBU) The Ambassador asked Pombal what enforcement actions 
INAVIC had taken since the promulgation of Angola's new 
regulatory scheme in early January.  Acknowledging that 
Angolan carriers are not in compliance with the GRA's new 
regulations, Pombal said INAVIC revoked the operating 
certificates of all carriers and issued provisional 
certificates, valid until May 2009, which allow the airlines 
to continue normal operations as they work toward compliance. 
 Pombal firmly declared that any airline out of compliance by 
the end of the deadline would be grounded.  According to 
Pombal, INAVIC is required to notify the Ministry of 
 
LUANDA 00000287  002 OF 002 
 
 
Transportation before any enforcement action is taken against 
civilian carriers.  Pombal stressed that under the new 
regulatory scheme, such notification would not result in 
political pressure to overturn a decision, although he 
admitted that INAVIC had come under pressure in the past by 
airline executives and other members of the GRA. 
 
------------------------- 
INAVIC Not Afraid of TAAG 
------------------------- 
 
¶7. (SBU) When asked about INAVIC actions against TAAG after 
the airline was banned from flying to Europe, Pombal 
acknowledged serious problems with the airline.  He said 
during a September review of TAAG, European inspectors 
recorded 273 findings of non-compliance with IATA standards. 
Pombal said TAAG was given two years to make the necessary 
improvements (until May 2009 plus a possible 3 month 
extension).  Pombal said an April, 2008 follow-on inspection 
of TAAG was cut short because it was clear TAAG was not ready 
for review.  The next inspection will take place on April 27. 
 Pombal told the Ambassador he is not satisfied with the TAAG 
issue. and that "TAAG is not aware that it needs more 
professionalism."  When asked again why TAAG was still 
flying, Pombal answered that by revoking TAAG's operating 
certificate (and issuing provisional permission to fly) , 
INAVIC demonstrated to the public it is serious about 
regulation and "not afraid of the size or power of TAAG." 
 
 
-------------------------- 
Comment and Action Request 
-------------------------- 
 
¶8. (SBU) Comment: In spite of the progress made to bring 
Angola's civair regulations into compliance with ICAO 
standards, the GRA has decided not to enforce its own 
regulations until May 2009, at the earliest.  This decision 
appears to firmly place economic and political considerations 
ahead of safety concerns.  Pombal comes across as earnest in 
his desire to bring Angola's aviation sector into compliance 
with ICAO standards, but INVAIC's lack of enforcement action 
calls into question whether the GRA will give INAVIC the 
political space it needs to regulate effectively.  We find 
Pombal's call for a 2009 FAA review of Angola's regulatory 
improvements to be premature at this stage. 
 
9 . (U) Action Request: Washington agencies may wish to 
consider how best to support Pombal's request (and Minister 
of Transportation Brandao's request reported ref A) for U.S. 
assistance with security and airdrome improvements, 
especially related to equipment procurement.  Angola has 
decided, according to Pombal, to commit whatever resources 
are necessary for Angola to build a world-class aviation 
safety and security regulatory system.  Technical assistance, 
information on available U.S. equipment for purchase, and 
training opportunities would be a welcome compliment to 
Angola's ongoing work with private consultants on the 
regulatory side of these issues.  Pombal also requested 
additional assistance through the Safe Skies for Africa 
program.  Ref B describes our diplomatic efforts throughout 
2007 that culminated in a demarche to the GRA asking the 
Ministry of Transportation to put in writing their specific 
requests for assistance in improving civil aviation in 
Angola.  The Angolans have yet to respond formally, although 
they have given us verbal assurances up to the level of the 
Minister of Transportation that they seek such cooperation. 
 We will continue our efforts for a more formal response, but 
the recent requests represent an opportunity to work with the 
GRA to strengthen the safety and security of civil aviation 
in Angola. 
MOZENA