AFRICAN DEVELOPMENT FUND
LANGUAGE : ENGLISH ORIGINAL : FRENCH
MULTINATIONAL ECOWAS/CEMAC/WAEMU
CAPACITY BUILDING PROGRAMME FOR THE SUPERVISION OF AVIATION SAFETY (COSCAP) IN WEST AND CENTRAL AFRICA
APPRAISAL REPORT
NB: This document contains errata or corrigenda (see Annexes)
DEPARTMENT OF INFRASTRUCTURE OCIN CENTRE AND WEST REGIONS DECEMBER 2004
TABLE OF CONTENTS
Pages PROGRAMME INFORMATION SHEET, CURRENCY EQUIVALENTS,
ACRONYMS AND ABBREVIATIONS, LIST OF ANNEXES AND TABLES, BASIC DATA, LOGICAL PROGRAMME FRAMEWORK, EXECUTIVE SUMMARY i-xi
1. INTRODUCTION 1
1.1 Programme Origin and History 1
2. THE TRANSPORT SECTOR 3
2.1 Background 3 2.2 Sector Overview 3 2.3 Transport Policy, Planning and Coordination 5
3. THE AIR SUB-SECTOR 5
3.1 Airport and Air Navigation Infrastructure 5 3.2 Air Fleet and Traffic 6 3.3 Air Transport Industry 8 3.4 Construction Industry 9 3.5 Civil Aviation Administration and Staff Training 9 3.6 Aircraft Maintenance 11 3.7 Financing Investments and Maintenance in the Air Sub-sector 11
4. THE PROGRAMME 11
4.1 Programme Design and Rationale 11 4.2 Programme Impact Area 13 4.3 Strategic Context 14 4.4 Programme Objectives 15 4.5 Programme Description 16 4.6 Environmental Impacts 20 4.7 Social Impact 20 4.8 Programme Cost Estimate 21 4.9 Financing Sources and Expenditure Schedule 23
5. PROGRAMME IMPLEMENTATION 26
5.1 Executing Agency 26 5.2 Institutional Arrangements 26 5.3 Implementation and Supervision Schedule 27 5.4 Procurement of Goods, Works and Services 29 5.5 Disbursement Arrangements 32 5.6 Monitoring and Evaluation 32 5.7 Audit and Financial Reports 32 5.8 Aid Coordination 332
6. PROGRAMME SUSTAINABILITY AND RISKS 33
6.1 Recurrent Expenses 33 6.2 Programme Sustainability 34
6.3 Main Risks and Mitigating Measures 34
7. PROGRAMME BENEFITS 35
7.1 Economic Justification 35 7.2 Social Impact Analysis 37
8. CONCLUSIONS AND RECOMMANDATIONS 37
8.1 Conclusions 37 8.2 Recommendations 38
______This report was written by Messrs. M. MBODJ, Transport Economist, OCIN.3 (Ext. 2348), and a Consulting Air Transport Expert, following their appraisal mission to Burkina Faso, Gabon and Nigeria from 20th November to 17thDecember 2004. The Director of OCIN is Mr. G. MBESHERUBUSA (Ext. 2034) and the Division Manager in charge Mr. A. RUGAMBA (OCIN.3, Ext.3069). i
AFRICAN DEVELOPMENT FUND TRA-TUNIS B.P. 323 TUNIS-BELVEDERE 1002 Tel.: (216) 71 333 511 Fax.: (216) 71 352 933
PROGRAMME INFORMATION SHEET
Date: December 2004
The information given hereunder is to provide guidance to prospective suppliers, contractors, consultants and all persons interested in the procurement of goods and services for programmes approved by the Boards of Directors of the Bank Group. More detailed information may be obtained from the Executing Agency of the Donees.
1. COUNTRY : CEMAC/ECOWA/WAEMU
2. NAME OF PROGRAMME : COSCAP
3. LOCATION : West and Central Africa
4. DONEES : - Executive Secretariat of the Central African Economic and Monetary Community (CEMAC) - Executive Secretariat of the Economic Community of West African States (ECOWAS) for the States of the Banjul Accord Group. - Commission of the West African Economic and Monetary Union (WAEMU)
5. EXECUTING AGENCIES : - Executive Secretariat of CEMAC through the Directorate of Transport and Telecommunications, to monitor the Programme for CEMAC/Sao Tome & Principe; 01 BP 543, Bangui, CAR; Tel.: (236)611083, Fax: (236) 612135
The ECOWAS Executive Secretariat through the Directorate of Infrastructure and Industry to monitor the Programme for the Banjul Accord Group, and to monitor the Liberalisation Project; P.O.B 401, Abuja, Nigeria, Tel.: (234)93147647, Fax: (234) 9 314 3005 / 3147644
WAEMU Commission through the Department of Community Land Use Planning, Infrastructure, Transport and Telecommunications to monitor the Programme for WAEMU/Mauritania, 01 BP 543, Ouagadougou, Burkina Faso, Tel.: (226) 50318873 to 76, Fax: (226) 50318872.
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6. PROGRAMME DESCRIPTION
The Programme Components are:
A - HARMONISATION OF TECHNICAL REGULATIONS A.1 Regulation harmonisation studies; A.2 Validation workshop.
B. - ESTABLISHMENT REGIONAL AGENCIES FOR THE SUPERVISION OF AVIATION SAFETY B.1 Regional agency organisational and operational studies B.2 Recruitment and services international experts B.3 Recruitment and qualifications regional inspectors B.4 Recruitment support staff B.5 Provision fitted premises B.6 Training B.7 Operation
C. - SUPPORT YAMOUSSOUKRO DECISION IMPLEMENTATION MONITORING COMMITTEE C.1 Feasibility Studies on a regional maintenance centre and air transport data base C.2 Recruitment and services project manager C.3 Capacity building CMC/YD Secretariat C.4 Organisation of meetings, validation, monitoring and ownership workshops and seminars C.5 Operation
D - PROGRAMME MANAGEMENT
D.1 Executing Agency monitoring capacity building D.2 Programme finance and account auditing.
7. TOTAL COST Programme cost : UA 13.21 million i) Foreign exchange : UA 7.83 million ii) Local currency cost : UA 5.38 million 8. ADF Grant • ADF Grant : UA 4.60 million
9. OTHER FINANCING SOURCES • COOP FR, UE, IFFAS : UA 4.76 million • Others (Airbus, Boeing, FAA, etc) : UA 0.68 million • CEMAC : UA 0.80 million • ECOWAS/GAB : UA 0.80 million • WAEMU : UA 0.72 million • Governments : UA 0.85 million
10. DATE OF GRANT APPROVAL : March 2005
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11. PROBABLE DATE OF PROGRAMME START-UP/DURATION : May 2005 / 37 months
12. PROCUREMENT OF WORKS, GOODS AND SERVICES
• PROCUREMENT OF GOODS
AND WORKS : IT hardware and office furniture will be procured through national competitive bidding. This procedure is justified by the fact that the hardware will be procured in three bid packages, and the amounts involved are low.
.
• CONSULTANCY SERVICES REQUIRED
AND SELECTION STAGE : Services of consultants for the studies and the audit will be procured through short lists launched by the Programme Executing Agencies. The services of consultants to coordinate the Programme will be procured through shopping based on short lists of individual candidates, after a regional tender notice launched by the each Programme Executing Agency.
The services of international civil aviation experts will be procured using procedures used by ICAO required to assist with project management.
13. ENVIRONMENTAL CLASSIFICATION OF PROGRAMME : 9 iv
CURRENCY EQUIVALENTS (December 2004) UA 1 = CFAF 791,261 UA 1 = US$ 1.46622
FISCAL YEAR 1st January – 31st December
WEIGHTS AND MEASURES 1 kilogramme (kg) = 2,205 lbs 1 metre (m) = 3.29 feet (ft) 1 kilometre (km) = 0,621 mile 1 sq. kilometre (km2) = 0.3861 sq mile 1 hectare (ha) = 2.471 acres
ACRONYMS, ABBREVIATIONS AND DEFINITIONS
AAMAC = African and Madagascar Civil Aviation Authority ADC = Cameroon Airport ADF = African Development Fund ADL = Libreville Airport ADM = Mali Airport ADM = Mauritania Airport AERIA = Abidjan International Airport AFCAC = African Civil Aviation Commission AFRAA = African Airlines Association Air Freedoms = 1st - the right or privilege in respect of scheduled international air services granted by one state to another to fly across its territory without landing; 2nd - the right granted by one state to another to land on its territory for non-traffic purposes; 3rd - the right granted by one state to another to put down in the territory of the first, state traffic coming from the home state of the carrier; -4th - the right granted by one state to another to take on, in the territory of the first state, traffic destined for the home state of the carrier; 5th - the right granted by one state to another to put down and to take on, in the territory of the first state, traffic coming from or destined to a third state. MOU = Memorandum of Understanding signed on 14/11/99 by the 23 states of the WCA for the implementation of the Yamoussoukro Decision ANAC = National Civil Aviation Agency of Congo ANAC = National Civil Aviation Agency of Côte d’Ivoire ANACB = National Civil Aviation Agency of Benin ANACS = National Civil Aviation Agency of Senegal ASECNA = Agency for Air Navigation Safety in Africa and Madagascar AU = African Union AVSEC = Aviation Security (OACI) BAD = African Development Bank BAG = Banjul Accord Group BOOT = Build Own Operate and Transfer BOT = Build Operate and Transfer CC = Cabin Crew (Hostesses, Stewards) CFAF = Franc of the African Financial Community CNS/ATM = Communications Navigation System/Air Traffic Management COA = Certificate of Airworthiness COCESNA = Central American Corporation for Air Navigation Services Codeshare = Trade Agreement enabling at least two airlines to sell seats on flights of one or other airline under their own airline code v
Convention = Convention on International Civil Aviation signed in Chicago on 7/12/1944 COSCAP = Co-operative development of Operational Safety and Continuing Airworthiness Programme CRS = Computerised Reservation System DATC = Department of Community Land Use Development, Infrastructure, Transport and Telecommunications DCA = Directorate of Civil Aviation Defect = Situation where an installation, a service or a procedure has not provided a regional air navigation plan that complies with ICAO standards and practices and which is a hazard to the safety, regularity and/or efficiency of air transport DGAC = General Civil Aviation Directorate of Cape Verde DGAC = General Civil Aviation Directorate of Guinea Bissau DGACM = General Civil Aviation and Meteorological Directorate (Burkina) DGACM = General Civil Aviation and Meteorological Directorate (RCA) DGTAC = General Transport and Civil Aviation Directorate (Equatorial Guinea) DME = Distance Measuring Equipment DNAC = General Civil Aviation Directorate of Mali DTT = Directorate of Transport and Telecommunications EAMAC = African School for Meteorology and Civil Aviation EASA = European Aviation Safety Agency ECA = United Nations Economic Commission for Africa ECCAS = Economic Community for Central African States ECOWAS = Economic Community for West African States ENAG = Air Navigation Company of Guinea Bissau ENASA = National Airport and Air Navigation Company of Sao Tome & Principe ERNAM = Regional Air Navigation and Management School ERSI = Regional Fire Safety School EU = European Union FAA = Federal Aviation Administration FAAN = Federal Agency for Air Navigation (Nigeria) FC = Flight Crew (Pilots, Flight Mechanics) GCAA = Gambia Civil Aviation Authority GCAA = Ghana Civil Aviation and Airports Authority GNSS = Global Navigation Satellite System HAALSS = Leopold Sedar Senghor Airport Authority (Security) IATA = International Air Transport Association ICAO = International Civil Aviation Organisation ICB = International Competitive Bidding IDA = International Development Association IFALPA = Airline Pilots Association, International IFFAS = International Financial Facility for Aviation Safety INAC = National Civil Aviation Institute of Sao Tome & Principe JAA = Joint Aviation Authorities (European Union) NCB = National Competitive Bidding NEPAD = New Partnership for Africa’s Development OAU = Organisation of African Unity PIA = Programme Impact Area Pool = Association of Several Air Carriers for Certain Activities (fuel, insurance, maintenance, running, earnings, etc.) RAN/AFI = Air Navigation Region/Africa Indian Ocean REC = Regional Economic Community SAA = South African Airlines SALT = Lome Tokoin Airport Company SARPS = Standards and Recommended Practices (ICAO) SOGEAG = Guinea Airport Management Company vi
STAP = NEPAD Short Term Action Plan for Infrastructure TCB = Technical Cooperation Bureau (ICAO) Traffic Right = Right of a given airline to carry passengers, cargo and mail on an air connection UNCTAD = United Nations Conference for Trade and Development USOAP = Universal Safety Oversight Audit Programme VOR = VHF Omni Range WAEMU = West African Economic and Monetary Union WCA = West and Central Africa
LIST OF ANNEXES No. of Pages N° TITLE 1. Map of the Programme Zone 1 2. COSCAP Programme Implementation Agency 1 3. Provisional List of Goods and Services for the Programme 1 4. Implementation Schedule 1 5. Cost Description Calculated by ICAO 1 6. ADF Grant for REC and ICAO Agreements 1 7. Community and by Expenditure Category 1 8. List of Programme Implementation Documents 1 9. Summary of TORs for International Experts and Regional Inspectors 5 10. Summary of TORs on the Study to Establish Three Regional Civil Aviation Security and Safety Agencies 2 11. Summary of TORs for the Recruitment of Programme Coordinators 1 12. TOR feasibility study for the Establishment of a Regional Data Base 2 13. TOR feasibility study for Creation of a Regional Maintenance Centre 3 14. Civil Aviation Statistics in WCA 1
LIST OF TABLES N° TITLE Page
4.1 Programme Cost Estimate by Component 21 4.2 Programme Cost Estimate by Expenditure Category 22 4.3 Programme Financing Sources 23 4.4 Programme Financing Source by Expenditure Category 24 4.5 Programme Expenditure Schedule by Component 25 4.6 Programme Expenditure Schedule by Financing Source 25 5.1 Implementation Schedule 28 5.2 Provisional Supervision Schedule 29 5.3 Procurement Arrangements 30 vii Comparative Socio-Economic Indicators
Developed Developing Year ECOWAS WAEMU CEMAC GAB Africa Countries Countries
Basic Indicators Area ( '000 Km²) 5 113 3 506 3 020 1 607 30 061 80 976 54 658 Total Population (millions) 2003 241.5 77.8 34.0 163.6 849 5 025 1 200 Urban Population (% of Total) 2003 41.1 34.5 45.5 43.8 39.2 43.1 78.0 Population Density (per Km²) 2003 39.8 22.2 11.3 101.9 28.3 60.6 22.9 GNI per Capita (US $) 2003 368 422 604 342 704 1 154 26 214 Labour Force Participation - Total (%) 2003 42.6 44.7 43.1 46.4 43.3 45.6 54.6 Labour Force Participation - Female (%) 2003 39.9 42.6 41.7 43.2 41.0 39.7 44.9 Gender -Related Development Index Value 2002 0,432 0,351 0,444 0,546 0,476 0,655 0,905 Human Develop. Index (Rank among 174 countries) 2002 n.a. n.a. n.a. n.a. n.a. n.a. n.a. Popul. Living Below $ 1 a Day (% of Population) 2000 ...... … 46,7 23,0 20,0
Demographic Indicators 2003 2,6 2,6 2,1 2,5 2,2 1,7 0,6 Population Growth Rate - Total (%) 2003 4,2 4,3 3,9 4,2 3,8 2,9 0,5 Population Growth Rate - Urban (%) 2003 44,5 46,2 43,9 43,7 42,0 32,4 18,0 Population < 15 years (%) 2003 3,0 2,7 3,5 3,1 3,3 5,1 14,3 Population >= 65 years (%) 2003 91,3 96,6 90,8 88,7 86,1 61,1 48,3 Dependency Ratio (%) 2003 100,4 99,5 97,8 100,9 99,0 103,3 94,7 Sex Ratio (per 100 female) 2003 23,0 22,8 23,1 23,1 24,0 26,9 25,4 Female Population 15-49 years (% of total population) 2003 41,0 50,0 50,5 51,5 50,7 62,0 78,0 Life Expectancy at Birth - Total (years) 2003 41,5 50,6 51,5 52,0 51,7 66,3 79,3 Life Expectancy at Birth - Female (years) 2003 40,1 43.8 39.5 38.3 37.0 24.0 12.0 Crude Birth Rate (per 1,000) 2003 14.8 16.7 17.8 13.9 15.2 8.4 10.3 Crude Death Rate (per 1,000) 2003 104.3 85.4 81.6 80.0 80.6 60.9 7.5 Infant Mortality Rate (per 1,000) 2003 177.9 144.6 134.9 134.3 133.3 79.8 10.2 Child Mortality Rate (per 1,000) 1997-99 811 633 662 441 641 440 13 Maternal Mortality Rate (per 100.000) 2003 5.9 5.3 5.0 5.1 4.9 2.8 1.7 Total Fertility Rate (per woman) 1995-99 14.2 12.6 14.3 8.6 40.0 59.0 74.0 Women Using Contraception (%) 1997-00 6.1 5.3 8.1 16.2 57.6 78.0 287.0 Health & Nutrition Indicators 1995-99 36.6 24.3 44.0 49.1 105.8 98.0 782.0 Physicians (per 100,000 people) 1999 27.0 39.0 49.0 20.7 44.0 56.0 99.0 Nurses (per 100,000 people) 2000 59.6 67.7 51.3 56.7 62.1 78.0 100.0 Births attended by Trained Health Personnel (%) 1992-99 58.0 70.0 64.0 52.5 61.7 80.0 100.0 Access to Safe Water (% of Population) 2000 51.0 34.0 57.0 61.5 60.5 52.0 100.0 Access to Health Services (% of Population) 2001 5.47 5.09 9.34 5.63 7.1 1.3 0.3 Access to Sanitation (% of Population) 2000 36.0 47.2 81.0 29.1 109.7 144.0 11.0 Percent. of Adults (aged 15-49) Living with HIV/AIDS 2003 71.6 77.4 72.1 83.5 81.0 82.0 93.0 Incidence of Tuberculosis (per 100,000) 2003 66.6 60.0 49.3 75.4 71.7 73.0 90.0 Child Immunization Against Tuberculosis (%) 2000 30.0 33.0 25.0 … 25.9 31.0 … Child Immunization Against Measles (%) 2001 2 585 2 393 2 187 2 674 2 444 2 675 3 285 Underweight Children (% of children under 5 years) 1995-99 0.4 0.2 0.3 … 3.3 1.8 6.3 Daily Calorie Supply per Capita Public Expenditure on Health (as % of GDP) 2001/02 84.2 67.0 92.3 93.0 88.7 91.0 102.3 Education Indicators 2001/02 63.3 57.9 85.9 83.9 80.3 105.0 102.0 Gross Enrolment Ratio (%) 2001/02 26.0 21.3 27.7 27.2 42.9 88.0 99.5 Primary School - Total 2001/02 18.8 10.2 28.5 34.3 41.3 45.8 100.8 Primary School - Female 1997 24.0 24.0 … … 44.1 51.0 82.0 Secondary School - Total 2003 42.7 63.7 34.1 28.8 36.9 26.6 1.2 Secondary School - Female 2003 33.9 53.0 26.2 23.8 28.4 19.0 0.8 Primary School Female Teaching Staff (% of Total) 2003 51.2 74.3 41.6 38.9 45.2 34.2 1.6 Adult Illiteracy Rate - Total (%) 1998-99 0.8 0.5 0.4 0.6 5.7 3.9 5.9 Adult Illiteracy Rate - Male (%) Adult Illiteracy Rate - Female (%) 2003 9.6 6.8 4.1 21.9 6.2 9.9 11.6 Percentage of GDP Spent on Education 1995 0.9 0.8 0.5 … 0.7 0.4 -0.2 1990 10.4 14.9 21.2 … 10.9 … … Environmental Indicators 1998 … … … … 1.2 1.9 12.3 Source: Compiled by the Statistics Division from ADB databases; UNAIDS; World Bank Live Database and United Nations Population Division. Notes: n.a. Not Applicable; … Data Not Available.
viii MULTINATIONAL: CEMAC/ECOWAS/WAEMU COSCAP Programme Logical Framework of Programme Start-up Date March-2005 Completion Date June-2008 Design Team Mr. M. MBODJ, OCIN3 BRIEF DESCRIPTION OBJECTIVELY VERIFIABLE MEANS OF ASSUMPTIONS INDICATORS VERIFICATION / RISKS
1..SECTOR OBJECTIVE 1.1 Contribute to improving the safety of civil 1.1 Reduction of air transport accidents by 50% by 2010 1.1 Air transport statistics. aviation and consolidating the Yamoussoukro Decision for optimal integration of West and Central 1.2 The number of international airports raised to the AAFAA Africa into the global air transport. Category, from 3 to 10 by 2010. 1.2 ICAO and FAA audit reports.
2. PROGRAMME OBJECTIVES 2.1.1 Three Regional Agencies autonomous and operational 2.1.1 ICAO and FAA audit 2.1 Continuation of 2.1 Build the capacity for supervision of air safety in for air safety supervision set up not later than June 2008 and reports. actions in favour of WCA. acknowledgement of a level of security similar to that of the 2.1.2 Minutes of the meetings regional integration. European and American transport sectors. of the CCSDY and ministers. 2.2 Proper 2.1.3 Supervision Reports. implementation of air 2.2 Establish uniform economic regulations and 2.1.2DCAs in WCA fully autonomous before 2010 Ditto 2.1.2 and 2.1.3 transport policies and technical regulations consistent with ICAO standards 2.2 Harmonised technical regulations adopted in 2006 reforms. and recommended practices with a view to 2.3 Mobilisation of improving air transport safety and efficiency in financial resources to WCA. 2.3 ICAO Statistics. support the other 2.315% reduction in air transport costs and travel time as of components of the 2.3 Reduce the overall costs of air transport. 2008 Action Plans, particularly the standardisation of airport safety. 3. RESULTS 3.1 Studies on the technical regulations for the 3.1 Reports of studies on: (i) the statutes, organisation and 3.1 Reports of audits supervision of air security, based on AT data, on the running of Regional Agencies for air safety supervision conducted by ICAO, 3.1 Low capacity of the regional maintenance centre and on the statutes, available and adopted in 2006 and (ii) technical regulations on certificates issued by the CEMAC, ECOWAS and organisation and running of the Regional Agencies the basis of air transport data, on the regional maintenance Federal Aviation Agency WAEMU Secretariats to established. centre available in 2007 (FAA), IASA, and the play their role of project programme’s progress and coordination. 3.2 At least 18 Regional Inspectors for the air safety supervision reports. 3.2 Capacity of the Civil Aviation Directorates to supervision trained and certified in 2008 to carry out air safety 3.2 Effective ensure regional supervision of air safety supervision activities within the framework of the Regional 3.2 Ditto 3.1 mobilisation of strengthened. Agencies, and at least 100 DCA Agents trained to effectively contributions to the carry out the air safety supervision missions at national level in programme’s financing. 2008 3.3 Keeping of Regional 3.3 Capacity to monitor regional projects and 3.3 Ditto 3.1 Inspectors in the programmes by ECOWAS, CEMAC and WAEMU 3.3 Air transport Units provided with at least 3 employees, set Regional Agencies. strengthened. up within the CEMAC, ECOWAS and WAEMU in 2006 and employees of these Units trained and provided with IT 3.4 Sustainability of equipment in 2008 actions and mechanisms put in place. 4. ACTIVITIES/COMPONENTS 4. APPLICATIONS / RESOURCES 4.1 Technical assistance, training and organisation of Components in UA million 4.1Coordination of seminars and workshops, preparation of conventions Components F.E. L.C. Total 4.1 Conventions signed. programme with ICAO for the provision of international experts A - Harmonisation of legislation 0,29 0,12 0,41 4.2 Evaluation Estimates. implementation financed and regional inspectors/technical assistants. B – Establishment of Regional Air Safety 4,74 3,85 8,59 4.3 Programme Accounts by several donors. 4.2 Conduct of studies for (i) the harmonisation of Agencies 4.4 Disbursement Registers. 4.2 Compliance with national legislations with ICAO safety standards; (ii) C- Support to the Committee to Monitor 0,52 0,22 0,75 4.5 Grant Agreement and schedules. the feasibility of creating a data base and a regional Implementation of the Yamoussoukro Decision Financing Convention. 4.3 Effective ADF aircraft maintenance centre; and (iii), preparation of D – Programme management and monitoring 1,46 0,62 2,08 monitoring. Base Cost 7,01 4,82 11,83 TORs and related shopping documents. 4.4 Mobilisation of all Physical Contingencies 0,35 0,24 0,59 Inflation 0,46 0,32 0,78 funds and availability of 4.3 Programme management and follow-up after the Total 7,83 5,38 13,21 counterpart funds from recruitment of coordinators, support staff, and Regional Organisations purchase of equipment and preparation of shopping Financing Sources in UA million responsible for and competitive bidding documents. coordinating programme Source F.E. L.C. Total % monitoring. ADF Grant 3,68 0,92 4,60 34,8% Fr. COOP, EU, IFFAS 3,47 1,30 4,76 36,1% Other (Airbus, Boeing, FAA, etc) 0,68 0,00 0,68 5,2% CEMAC 0,00 0,80 0,80 6,1% ECOWAS/GAB 0,00 0,80 0,80 6,0% WAEMU/MAURITANIA 0,00 0,72 0,72 5,5% GOVTs. 0,00 0,85 0,85 6,4% Total 7,83 5,38 13,21 100% Human Resources Departments Responsible for Transport in the ECOWAS, WAEMU and CEMAC countries, National Directorates of Civil Aviation of the countries, technical assistants, ADF and donor supervision.
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EXECUTIVE SUMMARY
1. Programme Origin and History
1.1 The COSCAP Programme for the supervision of air safety in West and Central Africa (WCA) stems from the implementation of the Yamoussoukro Decision of 14 November 1999 on the liberalisation of the air transport markets in Africa, adopted by the OAU Heads of State and Government on 12 July 2000, in Lome (Togo). It is also one of the thrusts for reaching the “open and safe skies” goal of the New Partnership for Africa’s Development’s short term action programme (STAP) formulated by the Bank at the request of the Heads of State and Government of the African Union.
1.2 The COSCAP Programme was adopted in concert by the 23 member states of WCA, following a participatory process, and upon review of several air sector studies. The audits carried out by the International Civil Aviation Organisation (ICAO) and the Federal Aviation Administration (FAA), revealed several deficiencies in WCA’s air safety: (i) inappropriate technical security regulations; (ii) lethargy of the Directorates of Civil Aviation (DCAs); (iii) limited expertise of the technical staff especially security inspectors; (iv) profusion of airlines with poorly maintained aircraft; and (v) sector financing difficulties. Accordingly, to lift these constraints, the Council of Ministers Responsible for Civil Aviation in the 23 WCA member states, confirmed the Bamako Action Plan (March 2002) by deciding during its 2nd meeting held in Lome in February 2003, to set up 3 COSCAP Groups (WAEMU/Mauritania, CEMAC/Sao Tome & Principe and the Banjul Accord Group).
1.3 In December 2003, WAEMU, followed by ECOWAS in September 2004, and lastly CEMAC in December 2004, requested financial assistance from the Bank for the COSCAP Programmes. ECOWAS also sought financial backing from the Bank with a view to pursuing activities to monitor and steer implementation of the Yamoussoukro Decision in West and Central Africa which over three years previously had been the responsibility of the World Bank. The latter has now made provision to fund the national components geared to reinforcing air safety and security, through the transport sector programmes (TSP) on-going in some member States.
2. Grant Proposal
The ADF grant of UA 4.60 million representing 34.80% of the total cost net of taxes will be used to finance 46.99% of the programme’s foreign exchange cost and 17.8% of its local currency cost.
3. Sectoral and Specific Programme Objectives
On the sectoral front, the programme will contribute to improving civil aviation safety and consolidating the Yamoussoukro Decision for better integration of West and Central Africa (WCA) into the global air transport system. Specifically, the programme aims at: (i) building the capacity of the DCAs in WCA to supervise air safety; (ii) establishing uniform economic rules and technical air security regulations consistent with ICAO standards and recommended practices so as to improve security and efficiency of air transport; and (iii) reducing the general costs of air transport.
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4. Programme Outputs
To attain the above-mentioned objectives the following outputs are expected:
(i) Uniform technical civil aviation regulations prepared and adopted;
(ii) Three autonomous and operational regional aviation safety agencies (RASA) established, and capacity to supervise air safety built;
(iii) Capacity to coordinate and monitor implementation of the Yamoussoukro Decision strengthened; and
(iv) Capacity to monitor and manage REC projects built.
5. Programme Cost
The cost estimate net of taxes and custom duties of the Programme, stands at UA 13.21 million, including UA 7.83 million in foreign exchange and UA 5.38 million in local currency.
6. Financing Sources
6.1 The programme will be financed by the ADF, the European Union, French Cooperation, the International Financial Facility for Aviation Safety (IFFAS), FAA, the United States Trade and Development Agency (US-TDA), private or industrial operators (Boeing, Airbus Industry, etc), the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat, the Banjul Accord Group, the WAEMU Commission, as well as the Governments. The ADF grant will finance: (i) studies to harmonise technical regulations for civil aviation safety, the establishment of regional aviation security agencies, feasibility studies for the creation of regional maintenance centres and to set up a regional data base on air transport; (ii) fees and per diem for the international experts; (iii) support for the Yamoussoukro Decision Implementation Coordination and Monitoring Committee; and (iv) Programme management and monitoring. The ADF contribution of UA 4.60 million represents 34.80% of the Programme’s total cost. It will cover 46.99% of the Programme’s foreign exchange cost and 17.08% of its local currency cost.
6.2 The Governments of the three States expected to host the planned COSCAP groups and Regional Aviation Safety Agencies (RASA) will, as their contribution, provide fitted premises. Private and industrial operators for their part will provide training for the regional and national experts.
7. Programme Implementation
Programme implementation will span about 37 months starting May 2005 through to June 2008.
8. Conclusions and Recommendations
8.1 Conclusions
8.1.1 Implementation of the COSCAP Programme and the Yamoussoukro Decision in WCA will help build the capacity of the DCAs to effectively carry out inter alia the grand xi
mission of regulation and supervision of air safety and security. Drawing inspiration from the successful experience in Asia, Latin America and the Pacific, this Programme will provide a rapid, attractive and affordable solution for high level civil aviation security in WCA member States by 2010, in keeping with ICAO standards and recommended practices. Thus, uniform technical regulations will take effect, 18 regional inspectors recruited, trained and certified to start activities in the planned regional agencies, 100 national inspectors trained, inspection and supervision made regular and at least 10 international airports certified as category A1 by the FAA. By the year 2010, this programme should make it possible to halve air accidents caused by human error and technical deficiencies.
8.1.2 The programme’s implementation will also help build the capacity of CEMAC, ECOWAS and WAEMU to prepare and monitor NEPAD’s infrastructure programmes. It will consolidate regional cooperation and economic integration through the participatory approach which partners all 23 member States for its implementation. The programme will furthermore create temporary and permanent jobs in the DCAs, multiply air transport operators and service providers and therefore, contribute to poverty reduction, more trade and greater regional integration.
8.1.3 The COSCAP Programme was designed technically by ICAO which put it to the test successfully in South East Asia, Latin America and the Pacific. Its environmental impact is positive for, through strict airworthiness control of aircraft that fail to comply with the noise norms of ICAO’s Chapters II and III, it will help limit noise pollution for the airport community and regulate the release of gases unfriendly to the ozone layer. Similarly, aerodrome certification will contribute to compliance with aviation easement, and to better airport planning and urban development. The Regional Agencies to be set up will contribute to long term supervision of aviation safety by member States of West and Central Africa.
8.2 Recommendations
In view of the foregoing, it is recommended that the three RECs be extended an ADF grant not exceeding UA 1.58 million, of which UA 1.58 million to the CEMAC Executive Secretariat, UA 1.72 million to the ECOWAS Secretariat for the Banjul Accord Group and for monitoring implementation of the Yamoussoukro Decision, and UA 1.30 million to the WAEMU Commission. The grant will be used to implement the programme as designed and described in this report and tied to the conditions specified in the Grant Protocol of Agreement.
1. INTRODUCTION
1.1 Programme Origin and History
1.1.1 The area covered by the 23 member States of West and Central Africa (WCA) comprises three Regional Economic Communities (RECs): (i) CEMAC (Cameroon, Central Africa, Congo, Equatorial Guinea, Gabon, Chad), WAEMU (Benin, Burkina Faso, Côte d’Ivoire, Guinea Bissau, Mali, Niger, Senegal, Togo) and ECOWAS (member States of WAEMU and those of the Banjul Accord Group: Cape Verde, Gambia, Ghana, Guinea, Liberia, Nigeria and Sierra Leone), as well as Mauritania and Sao Tome & Principe. WCA has population count of about 282 million inhabitants or nearly 34% of Africa’s total count. All 23 States answer for around 45% of the Africa’s Gross Domestic Product (GDP). WCA’s total area is 9.14 million km², i.e. an average population density of 31 inhabitants to the square kilometre. The assets of the economy of the WCA countries are derived primarily from agriculture which occupies 65% of the active population. Together the WCA countries boast agricultural, mining, fishing and human resources which should enable them and their RECs to develop appreciably. Such development is hampered air transport deficiencies that vary from State to State: high costs, limited inter-state connections, poor state of airport infrastructure, large number of airlines using poorly maintained aircraft and scarce financial resources.
1.1.2 In order to address these constraints, the meeting of African ministers Responsible for Civil Aviation, prompted by the United Nations Economic Commission for Africa (ECA) and the Organisation of African Unity (OAU), adopted a regional cooperation strategy to ensure sustainable development of air transport: (i) 7/10/1988, the Yamoussoukro Declaration on a new African aviation policy aimed at implementing common projects (data banks, maintenance centres, purchase of aircraft, tariffs, staff training) and in particular the merger and integration of airlines; and (ii) 14/11/1999, Yamoussoukro Decision concerning the liberalisation of access to air transport markets in African which lays down the following rules: mutual granting of all traffic rights (including those of the 5th freedom), no approval required by the aeronautical authorities for tariff to be charged by the designated airline, no limit on the number of frequencies and capacity offered on air services, multi-designation of operating instruments, fair competition on a non-discriminatory basis, eligibility of airlines based on a strict compliance with standards and practices recommended by the International Civil Aviation Organisation (ICAO), particularly in terms of security and safety. The Yamoussoukro Decision was approved in July 2000 by the OUA Conference of Heads of State and Government and became effective in 2002, pursuant to Article 10 of the Abuja Treaty of 12/05/1999, establishing the African Economic Community. NEPAD’s short-term action programme, prepared by the ADB at the request of the Heads of State and Government of the African Union (AU) supports the implementation of the Yamoussoukro Decision because it favours the reforms of the air sector.
1.1.3 It is in application of the Yamoussoukro Declaration and Decision that the COSCAP Programme relative to the supervision of aerial security was prepared and adopted, progressively in concert by the member States of West and Central Africa (WCA). In 1998, 11 member States of Air Afrique set up a Steering Committee later to include all 23 States of WCA. Through a World Bank Grant, the Committee commissioned sector studies which were submitted for consideration by civil aviation experts of the member States during a seminar held in Libreville in October 1999. This seminar adopted a summary record and draft resolution for the liberalisation of air transport in WCA. In November 1999, on the 2 fringes of the Conference on the Yamoussoukro Decision, the report of the experts and the draft resolution were examined by the Ministers Responsible for Civil Aviation of the 23 States which adopted the Memorandum of Understanding (MOU) on the implementation of the Yamoussoukro Decision in West and Central Africa (WCA). The MOU formalises and institutionalises the framework for aerial cooperation in the said States, by creating the following organs: a Council of Transport Ministers Responsible for Civil Aviation, a Coordination and Monitoring Committee (CMS), comprising Directors and General Managers of Civil Aviation and the Regional Economic Committees (RECs) and a Coordination Secretariat. To date, these bodies have held three meetings (i) the 1st in Bamako in March 2002 when members of the said bodies were appointed and a three- pronged Action Plan (technical- security, economic regulation and sector financing) was adopted (ii) the 2nd in Lome in February 2003, following consideration of the studies concerning aviation safety in particular, the Action Plan adopted the establishment of a COSCAP Programme within the 3 groups (WAEMU/Mauritania, the Banjul Accord Group, CEMAC/Sao Tome) and an Economic Regulation and Harmonisation Committee was created; (iii) the 3rd meeting in Libreville in November 2004, when the recommendation was made to accelerate implementation of the programme in the 3 COSCAP groups with a view to hedging the risk of marginalising WCA member states into the global civil aviation system.
1.1.4 Formulation of the COSCAP Programme was made easy by the following factors: (i) the statutory texts of ECOWAS, WAEMU, the Banjul Accord Group (BAG) as well as CEMAC which have provided for a coordination of national sectoral policies, through the implementation of common actions and possibly of common policies in various areas including that of air transport; (ii) the safety oversight audit (USOAP) conducted by ICAO and FAA, on the one hand, and the meetings of the General Managers of Civil Aviation organised by ICAO in Abuja in 2002 and in Cotonou in 2004, as well as seminars organised in Washington in 2003 by FAA on the other, enable the States concerned to identify deficiencies and acknowledge the need for emergency corrective measures and thus enable WCA to bridge its gap; and (iii) the introduction of common aviation policies including the COSCAP transition towards the creation of Regional Aviation Safety Agencies (RASA) by WAEMU (cf. the Common Air Transport Programme of 27/06/2002), by the BAG (cf. Memorandum of 29/01/2004) and CEMAC (cf. Resolution of 4/12/2004).
1.1.5 This appraisal report was prepared using: (i) studies on the status of civil aviation security carried out from 1999 to 2003 by the RECs with the assistance of the World Bank, ICAO, ASECNA and French Cooperation and validated by the member States; (ii) the three COSCAP project documents prepared with the help of ICAO and adopted by the CEMAC member States, the Banjul Accord Group and WAEMU; (iii) information collected during the preparatory and evaluation missions with the authorities and services concerned; and (iv) encounters and meetings with development partners and donors (World Bank, ICAO, ECA, French Cooperation) which is backing the COSCAP programme in the countries concerned.
1.1.6 The COSCAP Programme is consistent with NEPAD’s goals of safe and efficient air spaces and airports. It is an integral part of NEPAD s Short-Term Action Plan (STAP) on Infrastructure. Furthermore, ADF’s proposed financing of the programme is in keeping with its strategy in West and Central Africa and with the Bank’s strategic vision which prioritizes further integration of sub-regional economies. 3
2. THE TRANSPORT SECTOR
2.1 Background
2.1.1 The transport sector in the States of West and Central Africa (WCA) plays a prime role in giving impetus to integration and economic development in these States. It contributes on average, nearly 7% of their gross domestic product (GDP). Their transport system is made up primarily of roads, railways, sea ports, airport infrastructure, pipelines and to a lesser extent navigable watercourses.
2.1.2 The transport sector constrained mainly by the regional differences in transport infrastructure, inadequate internal resources for maintenance and external resources for rehabilitating infrastructure and renewing rolling and handling equipment. From the technical and institutional standpoints, investments are poorly planned at national level and at regional level there is a shortage of human resource and lack of training of and information for users and operators of the transport system.
2.2 Sector Overview
Road Transport
2.2.1 In West and Central Africa, road transport is the most common means of transporting goods and persons, meeting more than 80% of the domestic passenger and goods transport on a road network of about 548 000 km: 23.56% in the CEMAC/Sao Tome & Principe area, 52.89% in the zone of the Banjul Accord Group and 23.55% in the WAEMU/Mauritania area. WCA accounts for about 106,000 km long of paved roads. For the area it covers, differences in the road networks are even greater: 4% in CEMAC/Sao Tome, 18% in BAG and 3% in the WAEMU/Mauritania area. The main road transport constraints lie in the mismatch of supply and demand, poor organisation in the profession, low capacity for renewing the fleet of vehicles transporting goods and passengers, inadequate resources for road maintenance despite efforts made to establish a 2nd generation road fund, but more so the various check and custom points on the major roads that limit the system’s viability.
Railway Transport
2.2.2 The WCA States boast a railway network about 14.000 km long: 21% in CEMAC/Sao Tome & Principe, 45% in the Banjul Accord Group area and 34% in WAEMU/Mauritania. Nearly half of this network is in an advanced state of disrepair with rather narrow alignments and unconnected lines. However, some lines of the network play a regional function, in particular the Abidjan- Ouagadougou (1,261 km), Dakar-Bamako (1,233 km), Douala – Ngaoundere (922 km), Cotonou-Parakou (448 km) and Brazzaville – Pointe Noire (512 km) lines. Apart from the last two, private companies operate these lines by virtue of a lease, making it possible to check deterioration of the railway. Indeed, rail freight traffic had been on the decline because of consistently poor performance and aging railway equipment. The ADF-financed feasibility study for the interconnection of railway networks in the ECOWAS zone, scheduled for completion in 2006 will make recommendations on laying the foundation for a regional inter-connected network. 4
Maritime Transport
2.2.3 The main seaports of the WCA States are: Cotonou, Abidjan and San-Pedro, Dakar, Lome, Nouakchott, Tema and Takoradi, Lagos, Conakry, Monrovia and Buchanan, Douala, Libreville, Pointe Noire and Malabo. Most of the international traffic between the WCA States and the rest of the world go through these ports. Their handling and storing capacity seem adequate to meet current needs and most provide storage facilities for the landlocked countries of the Union (Burkina Faso, Niger, Mali, CAR, Chad) to attract transit traffic which in 2002 represented about 4.70 million tonnes including 4.2 million tonnes for the three countries of West Africa and about 0.50 million tonnes for the landlocked countries of the CEMAC zone.
2.2.4 Containerisation has in recent years been the engine of change in maritime transport worldwide and consequently of the African port industry. However, despite efforts made in that respect, the costs of port passage and ship holding in WCA are still very high. This is due to inadequate computerisation of customs and port operations, lack of interconnection between the existing information technology systems, shallow waters and the space- demanding quay inspections still practised.
2.2.5 The role of waterways is still low-key in the transport system of the WCA States, although the capacity for development in Central Africa is considerable. Still unfamiliar, waterways are expected to play a role in regional trade, as indicated in NEPAD’s Short-term Action Plan for Infrastructure (STAP). Projects are being prepared in WCA to improve the navigability of waterways.
Pipeline Transportation
2.2.6 Pipeline transportation is still marginal. With a length of around 6000 km it is used to the transport hydrocarbons as for instance the Chad-Cameroon Pipeline (1100 km) which is a multinational operation. Projects like the Algiers-Lagos Pipeline in particular are being prepared for the transportation of gas.
Air Transport
2.2.7 Given the speed of transport by air, it should along with transport by land open up African States, especially those faced with natural obstacles such as the Equatorial forest, the Sahara desert and those that are landlocked. For almost twenty years, various cooperation policies (Yamoussoukro Declaration and Decision, NEPAD) have been crafted with the purpose of lifting the non-physical barriers to its sustainable development, be they attendant on the international air transport crisis (oil shocks, floating exchange rates, deregulation) or the African air transport system: (i) the high cost of and poor intra-state links (ii) the small size of the market, compounded by the crisis from funding, managing and operating airlines that led to the liquidation of airlines like Air Afrique and Nigeria Airways, (iii) the repercussions of the protectionism in the exchange of traffic rights; and ; (iv) the rise in air accidents. 5
2.3 Transport Policy, Planning and Coordination
2.3.1 Since the late 80s, the transport sector policies introduced by the Governments of the WCA States, have sought to address the sector’s inflexibility and poor organisation the adverse effects of which are a strain on transport costs. These policies have focused on: (i) improving the state and service level of the existing road transport networks; (ii) creating a regulatory framework conducive to the development of private investment in the sector and to making economic operators more efficient; (iii) improving and building the management and planning capacity of the institutions involved in the sector; (iv) better recovery of infrastructure maintenance charges; and (vi) liberalising the air transport market.
2.3.2 The onus of planning, coordinating and implementing these policies lies first of all with the Ministers responsible for Roads and Transport in the States of West and Central Africa assisted by the National Directorates in charge of the various sub-sectors like the Directorates of Civil Aviation (DCA) for the air transport sector.
2.3.3 Within the framework of NEPAD, the regional investment programmes must be sponsored by the Regional Economic Communities (RECs). In West and Central Africa, coordination of programme planning is the responsibility of the ECOWAS Executive Secretariat, the WAEMU Commission, the CEMAC Executive Secretariat and the CEEAC General Secretariat. Plans have been made under the STAP of NEPAD, to build the current low capacity of the RECs. This programme will provide customised support in the transport sector that will complement actions undertaken by other donors.
3. THE AIR SUB-SECTOR
3.1 Airport and Air Navigation Infrastructure
3.1.1 The aviation infrastructure (airstrips, air terminals, aircraft hangars) of the WCA member States comprises about forty (40) international airports (2400 to 3500 m of tarred runways) regularly used, one hundred and fifty (150) domestic airports (runways of 1000 to 2000 m, usually surfaced with laterite) and 230 other national aerodromes (poorly maintained). Built for the most part in the 1960s, their deficiencies vary from State to State: (i) unsuitable or poorly maintained airstrips and taxiways, worn out and/or narrow parking areas, narrow passenger terminals, inadequate freight hangars; (ii) inexistent airport fences or in disrepair, and avian hazard. Consequently, only three airports (Sal in Cape Verde, Banjul in the Gambia and Accra in Ghana) have obtained the FAA category A1 certification.
3.1.2 The trend in airport management is towards autonomy and privatisation of international airports, as most States have created corporations or mixed enterprises to manage their airports (AERIA in Côte d’Ivoire, SALT in Togo, ANAC in Congo, ADL in Gabon, ADC in Cameroon, FAAN in Nigeria, SOGEAC in Guinea, etc.). Other States have granted ASECNA the right to manage their airports.
3.1.3 From the angle of air navigation, the controlled airspace covers over 20 million km², made up of 9 flight information regions (FIR) and flight information centres (FIC), equipped with radio-electric navigation installations (ILS, VOR, DME, beacons), communication systems (HF, VHF, RFSTA) and meteorological stations in compliance with ICAO’s regional RAN/AFI 7, processing over 500,000 flight movements per annum. The air navigation and meteorological services are the collective responsibility of ASECNA, established since 1959 for 15 member States (Benin, Burkina Faso, Cameroon, Central Africa, Congo, Côte 6 d’Ivoire, Gabon, Guinea Bissau, Equatorial Guinea, Mali, Mauritania, Niger, Chad, Togo and Senegal), and individually by the other eight States (Cape Verde, Gambia, Ghana, Guinea, Liberia, Nigeria, Sierra Leone and Sao Tome & Principe). Air control does not cover certain areas (deserts, equatorial forest in particular). Other problems include the absence of texts regulating air traffic and air traffic controller licence, frequent power outages, acts of vandalism on radio-electric installations, inappropriate control towers and few radar systems. However, some States including those of ASECNA implementing a services and equipment plan costing CFAF 172 billion that should enable transition via the GNSS towards the implementation of the CNS/ATM scheduled for 2010 by ICAO.
3.2 Air Fleet and Traffic
Air Fleet
3.2.1 About 847 aircraft listed in the national registers some of which are used on regular and chartered flights in WCA. Their average age is 19 years against 12 years in North America and 9 years in Europe. The main characteristics of the fleet are: (i) great difference from country to country and sometimes within the same country thus precluding aircraft interchange; (ii) short, medium and long haul aircraft are old (20 to 30 years) and of those some have no type certificate. These aircraft are costly in fuel, maintenance and insurance as well as being the most unfriendly (noise and gas emissions for the greenhouse effect) for the environment and the safety of air transport (high accident risk factors); (iii) there are only about twelve of the latest commercial aircraft. The fleet requirement is estimated at 30 large and medium carriers that comply with the ICAO’s noise standards of Chapters II and III, Annex 16.
Air Traffic
3.2.2 There are three types of air traffic networks: (i) the WCA inter-State network (domestic flights and flights to neighbouring countries as well as intra-WCA flights), mainly on the coastal route of Nouakchott-Dakar-Banjul-Conakry-Abidjan-Accra-Lomé-Cotonou- Lagos-Douala-Libreville-Pointe Noire where there is relative competition between airlines. These connections (about 20% of the total connections) are insufficient and uncoordinated (frequency, timetable) and connections are difficult and costly (delays, flight cancellations) for users; (ii) the network WCA/other African regions (especially bound for South Africa) is under-developed (12%) because of poor trade relations; (iii) the network WCA/intercontinental with flights to and from Europe (nearly 65% of the total connections), the Middle East and the United States of America.
Accidents
3.2.3 The world average air accident rate is 0.03 killed for 100 million passenger- kilometres performed; this rate is 10 times higher in Africa. According to ICAO data, in the last ten years, the fatal accident rate for a million departures on regular flights is higher in Africa than any other region in the world as the table below illustrates. 7
Table 3.1 Fatal Accident Rate for 1 million departures Africa 5.26 Latin America and the Caribbean 2.74 Asia-Pacific 2.13 Middle-East 1.25 North America 0.67 Europe 0.91 World 1,29
3.2.4 Since 2000, African commercial air transport has registered seven (7) dramatic accidents which caused the death of 1037 persons, several wounded and the total loss of 7 aircraft. Out of this total, WCA accounts for four accidents when 472 died, many were injured and 4 aircraft were written off, in other words around 50% of the fatal accidents in Africa. During the same period several accidents occurred causing severe injury to passengers. Other serious incidents to have caused considerable material damage include air misses, avian injections by jet engines which have qualified a number of airports in the WCA region for “the black star of avian hazard” awarded regularly by IFALPA, and during landing high speed exits and broken gear.
3.2.5 A study conducted by Boeing from 1994 to 2003 on accidents that caused complete aircraft loss, confirmed the deficiencies in the African region which accounts for the highest rate or 3 accidents for 1 000.000 departures, against 2.4 for regions like Latin America and the Caribbean and 1 00 for the rest of the world, as the Graph below illustrates.
Rate of Accident with Total Lost of the Aircraft For a million Departures
USA & Latin Am. Europe Middle Africa China Asia (China Oceania World Canada & the Car. East Excluded) Countries 3.2.6 Upon analysis, most of these accidents occur during landing/take off and the human factor comes into account for nearly 60%, against 40% for technical problems (engine and landing gear) and impacts without loss of control. There is no common organisation with adequate human and material means to investigate serious incidents and accidents, or for search and rescue. Some airports do not have emergency plans. All these aviation-related incidents and accidents are detrimental to the sector’s development because they imply: (i) financial and material losses for airlines, airport management and insurance companies, and increase in the cost of their services and insurance premium; (ii) loss of confidence of users in the reliability of the planes; and (iii) increased marginalisation of African States in 8 international civil aviation, seen as incapable of ensuring minimum security. Already, after the United States, Great Britain has “blacklisted” countries (3 in WCA) and airlines (5 of WCA) that are prohibited from flying over its territory. Similarly, the European Union could ban at any time, flights from its territory to countries judged unsafe.
3.2.7 The solution advocated by ICAO and FAA to help reduce air incidents and accidents is to build the capacity of the DCAs to supervise aviation safety on a regional basis. Hence, aware of the challenges to develop the air sector, WCA member States organised themselves to take up the challenge of improving the security of civil aviation, through a careful implementation of the COSCAP programme.
3.3 Air Transport Industry
3.3.1 The international air transport industry represents nearly 1500 billion US dollars in turnover employing 25 million people or 40% of global trade. In 2003, the regular airlines of the 187 ICAO States carried 1,620 million passengers and 28.7 million tonnes of freight. The share of African south of the Sahara represents about 2%, or nearly 32 million passengers and 600 000 tonnes of freight. In 2003, WCA’s air traffic was estimated at 17.5 million passengers transported and 349 027 tonnes of freight, or about 50% of the total traffic in Africa south of the Sahara. However, Africa had registered an air transport boom (14% between 1960 and 1972), followed by a period of decline (-25 to 4% up to 1999) before the recovery which started following the entry into force of the Yamoussoukro Decision (on average 4 to 20% depending on the State).
3.3.2 Air transport is supplied by about a hundred airlines some of which are state (Air Gabon, Camair, EGA, Ghana Airways) or private-owned and established or restructured in support of the Yamoussoukro Decision (TACV, Air Ivoire, Air Burkina, Air Senegal, Air Togo, Air Mauritania, Bellview, AA, Chanchangi, AeroBenin, WAA, STA Mali, etc), as well as foreign airlines in the area (Air France, KLM, SN Brussels, Lufthansa, British Airways, TAP, Iberia, Ethiopian Airlines, SAA, Afriqihya, Tunis Air, RAM, Sudan Airways, etc). Some airlines show dynamism although they are still not very competitive and professional (poor membership of IATA, AFRAA and SRI) against foreign competition. With the disappearance in 2002 of Air Afrique, Sabena and Swissair, the air transport supply fell by about 30% in certain States. Commercial and technical cooperation between airlines far from one another is very discreet, implying insignificant economies of scale and offering irregular products despite efforts made by the Permanent Council of Airlines (CPTA) since December 2002. This system counters the international trend that spotlights greater cooperation (coordination of timetables, interline cooperation, codeshare, pool agreements, global alliances). However, it must be pointed out that three projects have been designed to create regional airlines: one within CEMAC, to be known as Equatorian Airlines, scheduled to start in partnership with RAM by March 2005, the other two are being prepared within the framework of ECOWAS (EcoAir) and WAEMU.
3.3.3 Service providers, airline auxiliaries (travel agencies, airport managers, air navigation services, handling and catering, refuelers) are dependent on the trend of the air transport market and yet contribute to making operating costs high (taxes, airport taxes, fuel, handling). This means a tariff that does not reflect the purchasing power of the populations and paradoxically, one of the highest in the world, 30 to 60% depending on the kilometre flown and the air connection. 9
3.3.4 From the standpoint of demand, the consumer typology comprises businessmen, international civil servants or public administration officials, economic operators, tourists, pupils, students, clergy,… It is sensitive to three factors: (i) flight safety and security; (ii) the fare in comparison with the income of the populations most of whom are nationals of the LACs; and (iii) service quality (timetables, punctuality, comfort, easy connections and ticket utilisation).
3.4 Construction Industry
3.4.1 For lack of financial means and state of the art technology, the WCA member States purchase or hire aircraft built in the industrialised countries (United States with Boeing, European Union with the Airbus, former-URSS with Tupolev, Iliouchine,). Some airlines have developed expertise that enables them to carry out some maintenance on their aircraft in WCA.
3.4.2 For the construction of airports the WCA market is competitive and open to all qualified firms including the increasing competitive African firms. The construction of an airport is a high investment of between CFAF 150 to 200 billion, sometimes implemented through the BOT or BOOT system. Projects are underway or are being considered in some countries (Congo, Benin, Senegal, Burkina, Sao Tome).
3.5 Civil Aviation Administration and Staff Training
Civil Aviation Administration
3.5.1 In the 1970s to 1980s, WCA member States established Civil Aviation Directorates without the appropriate status to enable them accomplish efficiently the grand missions of regulation and control, particularly civil aviation security and safety. Subsequently, eight (8) States (Benin, Cameroon, Cape Verde, Congo, Gambia, Ghana, Nigeria, Senegal) set up autonomous agencies without genuine financial freedom; those of the fifteen (15) other countries are at the project stage. In September 2004, the WAEMU member States adopted a guideline granting their Directorates of Civil Aviation the status of public corporation, endowed with a legal personality, financial and management autonomy, within a timeframe of one year. By and large, these corporations, with average staff strength of 30 to 100 depending on the country, are organised in 4 to 5 Directorates or services (Air Transport, Air Navigation, Infrastructure, Administration and Finance). They lack the appropriate regulations (civil aviation code, technical regulations, procedures manual), technical documentation, premises, equipment and adequate financial resources. After examination, only the missions to issue overflight and landing clearance and traffic right negotiations with third party states are properly carried out. In order to encourage aviation cooperation between the DCAs, the African and Madagascar Civil Aviation Administrations (AAMAC) came into being in December 2001 in the ASECNA member States.
Staff Training
3.5.2 Staff are generally trained in specialised institutions of industrialised countries. As a rule, staff knowledge in the following areas is limited: statistics, IT, aerial mapping, economic planning, aviation medicine, accident investigation, air terminals, safe transport of dangerous goods, and technical documentation. Staff are not adequately trained (internship, retraining and qualification), have no medium or long term career paths nor staff replacement plan. Salaries are low and there is a brain drain towards companies of the air transport 10 industry. Training schools exist but cater more for the needs of air navigation services (EAMAC, ERNAM, ERSI for ASECNA or the Zaria Centre in Nigeria). Human resource capacity building projects are being implemented in various States including those of ASECNA since 2000.
Supervision of Aviation Safety and Security
3.5.3 There are huge resource differences from State to State: a minority (4 States) has the capacity to supervise security whereas the majority (19) does not. In this latter category, weaknesses range from partial supervision to almost none at all. There is a shortage of technical staff or no staff at all (inspectors of licences, navigability, aircraft operating techniques, airfield certification, instructors, examiners, aviation doctors). The activity level is low and skills are limited. Nonetheless, some States do have technical regulations (Cape Verde, Gambia, Ghana) whereas others, including those of the AAMAC have formulated draft technical regulations (in 2004: Aviation Staff Licences, Aircraft Operating Techniques and Navigability) that have been submitted to the member States and their RECs (CEMAC and WAEMU) for validation and adoption.
3.5.4 Legal documents (authorisations, COA, licences and patents, agreements, certificates, validation of medical examination and simulator results) are unreliable because they are issued without control or follow-up by some DCAs and regardless of technical regulations, procedures or adequate inspection as recommended by ICAO. For over forty years some States have authorised the Veritas Bureau, to control airworthiness certificates for direct payment from airlines, but there is no monitoring mechanism or possibility for a transfer of knowledge. In the wake of some incidents, in particular the Gabon Express plane crash of 2004 in Libreville following which one of its officials was threatened, the Veritas Bureau requested the termination of the agreement in force since early 2005. The States concerned are in the process of reviewing a transition mechanism with other existing Aviation Security Agencies so that airworthiness control and certification can continue until the inception of Regional Civil Aviation Security Agencies scheduled in the context of this programme.
3.5.5 Following the ICAO audits, some DCAs cannot prepare a corrective action plan because they lack of high calibre experts while others are encountering all sorts of difficulties applying within the prescribed timeframe. Consequently, air security supervision weaknesses tend to continue (rate of 49% in WCA higher than the world average of 28%) or even worsen. 3.5.6 Concerning civil aviation security, all WCA member States have, in the aftermath of 11th September 2001 attacks, taken measures to reinforce regulations (national security programme, wearing of badges, crisis management exercises), create supervisory organs (Haute Autorité de sûreté [High Safety Authority] in au Senegal, Benin, Gabon, etc.) and ensure a minimum of airport control service (electromagnetic detectors, X-ray gantries, surveillance cameras) to detect ammunitions and explosives. Regional Safety Mechanism Projects are being prepared for better protection of the States against acts of unlawful interference in civil aviation. The Lome Action Plan has provided for the merger of the Regional Safety Mechanism in the COSCAP Programme in order to avoid too many regional entities. 11
3.6 Aircraft Maintenance
3.6.1 About 39 aircraft maintenance centres (checks A, B and sometimes C) are authorised by the DCAs in eight States. Large-scale maintenance works (Checks C and D) are carried out at high cost in industrialised countries. Inspection and supervision of such maintenance works by the DCA’s are sometimes symbolic. Technical coordination and cooperation between the various maintenance centres would enable economies of scale and the establishment of one to two industrial centres capable of carrying out locally and at lower cost the technical inspection of aircraft in use in WCA.
3.6.2 Airport managers and air navigation services (ASECNA and other WCA States) have the know-how that enables them to maintain technical equipment.
3.7 Financing Investments and Maintenance in the Air Sub-Sector
3.7.1 With the exception of four States that invest considerably into the air sub-sector, most WCA member States, faced with economic and social crises (health, education, poverty reduction) endeavour to settle their operating and maintenance costs. Moreover, there has been a decrease in funds from industrial nations and international organisations to the air sector, similar to the crisis of bilateral aid to Africa (e.g.: 0.34% of the GDP of the European Union below the 0.7% target set by the UN; 30% drop in ICAO aid between 1999 and 2000). The regional development banks are applying a prudential policy and the commercial banks have set high interest rates on air sector projects.
3.7.2 Airlines, airports, air navigation, catering and handling management companies that are relatively self-sufficient generate capital expenditure from tariffs, airport and extra-airport user taxes (overflight, runway lighting, landing, fuel, freight, passengers, safety, commercial and territorial leases). Some airport managers have made considerable investment into extension and rehabilitation (e.g.: CFAF 25 billion for Abidjan by AERIA between 1996 and 2000).
4. THE PROGRAMME
4.1 Programme Design and Rationale
4.1.1 The Yamoussoukro Decision made it mandatory for the African signatory States to establish and have airlines respect safety and security rules that are in conformity with the standards and recommended practices of the International Civil Aviation Organisation (ICAO). To do so, the member States of West and Central Africa (WCA) took over the concept of the Operational Safety and Continuing Airworthiness Programme (COSCAP), prepared by ICAO and based on the voluntary grouping of a small number of countries (5 to 10) that are geographic neighbours and which agree to pool their aviation resources to improve air safety. Drawing inspiration from the COSCAP Programmes carried out in Asia, the Pacific and Latin America, the WCA member States in concert prioritised a participatory approach taking into account what already exists: legal frameworks for sub-regional and regional integration to favour stability, cohesion and solidarity (language, currency, common cooperation experiences, etc). Hence, during the 2nd meeting held in Lome in February 2003, the Council of Ministers Responsible for Civil Aviation, upon analysis of the various scenarios, decided to implement a COSCAP Programme, in the following three groups; (i) the West African Economic and Monetary Union (WAEMU) and Mauritania (or 9 countries), (ii) the Banjul Accord Group (or 7 countries) and (iii) CEMAC including Sao Tome & 12
Principe (or 7 countries). These groups aim at putting in place COSCAP with the technical assistance of ICAO so as to address the deficiencies pointed out by the audits, and tighten supervision of aviation security. In each COSCAP group, aviation cooperation between the participatory States is at a well-advanced stage especially in: determining the financial contribution of each country, adopting a draft document that identifies activities, cost, implementation schedule, financing and the headquarters. The concept of the COSCAP Programme, has the advantages of flexibility, ease and speedy implementation at least cost.
4.1.2 The programme aims at helping to build the capacity of the DCAs and the RECs, reducing air accidents caused by human error and technical deficiencies, at further disenclavement, increased regional aviation cooperation, consolidating the Yamoussoukro Decision and thereby contributing to the social and economic development of the WCA member States.
4.1.3 Furthermore, by virtue of the ADB/World Bank Memorandum of Understanding, the mechanism for coordinating the operations of both parties is organised. Accordingly, the ADB agreed to support the regional component for tighter aviation security in the member States of West and Central Africa, and the World Bank will do likewise for the national component.
4.1.4 The project’s formulation took advantage of lessons learnt from operations by the Bank and other donors, as well as similar experiences underway in other parts of the world. Between 1970 and 2000, the Bank financed 44 operations including the construction of 11 new airports, the rehabilitation or reconstruction of 17 airports including the installation of navigation aid equipment, 5 institutional support with a training component, 1 aircraft purchase project and 10 studies to prepare projects in the sector. These operations, totalling US$ 477,344 million were financed to the tune of 77.2% with ADB resources, 18.4% by the ADF and 4.4% by NTF. Of these operations, 24 involved 10 countries in WCA, for a cost representing 29.2% of the total amount of Bank operations. To that must be added, a study on the liberalisation of air traffic in WCA conducted in 2001 with bilateral funds under the joint supervision of ADB/ECA. Generally, most of these operations were implemented satisfactorily and their impact has been positive on economic development.
4.1.5 As a consequence whereof, the COSCAP Programme design is in keeping with the Bank’s vision and corresponds to the guidelines of NEPAD’s STAP; in particular, the establishment of safe and efficient air spaces and airports, for which the Bank is playing the role of catalyst of regional integration in Africa through the implementation of NEPAD by: (i) undertaking actions and supporting projects of Regional Economic Communities (RECs) aimed at uniform regulations as well as policy and institutional reforms; (ii) facilitating rapid resource mobilisation to implement regional projects; (iii) putting in place mechanisms based on a participatory approach, geared towards capacity building, and introducing governance of the sector likely to increase the competitiveness of transport infrastructure, reduce poverty and contribute to the social and economic development of African States. Thus, by backing the COSCAP Programme, the ADB is carrying out two major activities of NEPAD’s STAP, that is to say improving aviation security and consolidating the Yamoussoukro Decision. 13
4.2 Programme Impact Area
Limits and Characteristics of the Area
4.2.1 The Programme Impact Area (PIA) is made up of all 23 States of WCA. It covers an area of around 9.14 million km², or an average population density of 31 inhabitants to the square kilometre. The climate in the PIA passes from sudano-sahelian to humid equatorial as one nears the forest and coastal regions. The vegetation is very varied and includes a tree cover. The PIA is characterised by a variable and unevenly distributed rainfall (between 400 to 1500 mm in West Africa, and 1000 and 3200 mm of total rainfall per annum in Central Africa). The coastal region accounts for two rainy seasons.
4.2.2 The characteristics of air traffic (passenger, cargo and mail) in West and Central Africa suggest a North-South extraversion and about 65% of air connections with Europe; South-South connections between the WCA member States represent only 20% and those with other African regions are marginal (about 12%). This situation reflects the scale of the privileged trade relations between member States and Europe. It is worth noting that on the North-South air routes the most profitable in terms of turnover, i.e. over 50% of the market share, are held by foreign competitors (European Airlines in particular) because the planes used are modern and safe, services are of quality and these Airlines are commercially aggressive. Some airports emerge as hubs of West and Central Africa with an annual traffic that exceeds one million passengers (Sal, Dakar, Abidjan, Accra, Lagos, Douala and Libreville) while the others play the role of “feeder”.
Population and Poverty Profile of the Area
4.2.3 In 2002, the population of the PIA was estimated at approximately 282 million inhabitants or nearly 34% of the total population of African States. The Programme Impact Area has modern social and economic infrastructure (ports, road and railway terminals, airports, hospitals, markets, schools, banks, mining, oil and agricultural industries) located in the urban centres that play a traffic-inducing role.
4.2.4 Most of the States of WCA are least-advanced countries (LAC) with a low purchasing power. Some are faced with droughts, famine and/or endemic diseases (leprosy, meningitis, malaria, river blindness, AIDS, etc).
4.2.5 Exported air freight comprises primarily perishable goods: fruits and vegetables (runner beans, mango, pineapple, melon, papaya, green pepper, strawberries), cut flowers, fish, meat and crafts. This agricultural activity represents more than 50 000 tonnes per annum for a turnover estimated at over US$ 80 million. It is the livelihood of thousands of poor farmers (especially women and children) who grow off-season crops (October-March) and craft products for the European market. A specific air freight development programme should be put in place by the member States, RECs and donors to support the sub-sector and coordinate the activities of producers, economic operators and airlines so that products are of good quality, are competitive on the European market, are a source of foreign exchange as high value-added and contribute thereby to reducing poverty in the agricultural circles.
Production and Marketing
4.2.6 The economy of the PIA is based not only on agriculture and livestock but also on the mining industry, particularly oil. The agricultural activities in the PIA include the 14 growing of food crops (grain, tuber and pulses, plantains) and fruit; market garden production is highly developed in the area and so are cash crops (coffee, cocoa, tea, cotton, wood). Livestock plays a predominant role and mining activities concern oil, manganese, iron, gold, diamond, etc.
4.2.7 The PIA has a strong commercial calling as a result of its agricultural, mining and livestock resources (sheep, goats and poultry), its agribusiness and pharmaceutical industries and the proximity to large centres with a range of dynamic informal sector concerns, and also of the requirements in manufactured goods some of which are imported by air (pharmaceutical products, frozen foods, spare parts, etc).
4.2.8 There are prospects for sustainable growth in the air transport industry: (i) raw materials (oil, gold, diamond, manganese, iron, cotton, etc) attract investors (businessmen, industrialists, bankers) who travel mainly by air; (ii) fruits and vegetables, perishables (fish, meat, tropical flowers, fruits and vegetables) and crafts need to be exported by cargo planes so that they arrive without delay on the European markets; (iii) natural resources (sun, sea, islands, tropical and equatorial sceneries, cultural sites, diversified fauna) are assets to develop for mass tourism tailored to the needs of industrialised countries; and (iv) religious pilgrimage demand (Mecca, Rome, etc..).
4.3 Strategic Context
4.3.1 In the Chicago Convention and its Annexes, it is mandatory for the Contracting States to ensure civil aviation security as a result of the sovereignty it has over its territory. There are two responsibility levels for contracting States with regard to aviation security supervision: the responsibility of the State on whose register the aircraft is entered (State of Registry), and the responsibility of the State of the Operator). Concerning the State of Registry, the Chicago Convention stipulates that all aircraft of a Contracting State, involved in international air navigation must be operated by licensed crew and carry on board a Certificate of Registration and a Certificate of Airworthiness. Annex 6 of the Convention stipulates that the State of the Operator must issue an Operating Certificate or equivalent document once the Airline has illustrated that it is adequately organised and has a technical operating inspection and supervision method, a training programme and a maintenance system consistent with the nature and scope of the operation.
4.3.2 Resolution A29-13 – Improvement of Safety Oversight, adopted by ICAO’s 29th Assembly in 1992, acknowledges that some States may not have the legal framework or financial or technical resources to comply with the minimum requirements contained in the Convention and authorises them to group on a regional basis to undertake their international responsibilities relative to aerial safety oversight. In addition, it is stated that even industrialised countries which taken individually do not have adequate capacity must join forces, as testified to by the European Union’s creation of the European Agency for Aviation Safety (EASA) in July 2003.
4.3.3 In the Yamoussoukro Decision, access to air transport markets is subject to compliance with the ICAO standards and recommended practices, especially concerning civil aviation safety and security. The following provisions are an illustration: (i) Article 6.9 set out seven eligibility criteria for airlines designated by a Signatory State of the Decision, among which four relative to the obligation to hold an air operating certificate, the airworthiness of the aircraft, adequate insurance for passengers, cargo, mail, baggage and third parties, and to maintain standards at least equal to those set by ICAO; (ii) according to 15
Article 6.10, a State Party may revoke, suspend or limit the operating authorisation of a designated airline of the other State Party when the airline fails to meet the criteria of eligibility; (iii) Article 6.11 stipulates that each Party State shall recognise as valid the Air Operating Certificate, Certificate of Airworthiness, Certificate of Competency and the licenses issued or validated by the other State Party and still in force provided that the requirements for such certificate of licence are at least equal to the minimum standards set by ICAO; (iv) according to Article 6.12 “Safety and Security”, State Parties reaffirm their obligations to each other to protect the security of civil aviation against acts of unlawful interference, in accordance with ICAO provisions and especially the Chicago Convention and must accordingly establish close and mutually beneficial ties of cooperation..
4.3.4 The audits carried out by ICAO and FAA and the studies conducted by the RECs on aviation safety supervision have revealed, at varying degrees, depending on the State weaknesses that contribute to incidents and accidents in WCA. These include (i) inappropriate regulations: lack of or non-application of the civil aviation code, absence of signature and/or non-ratification of legal instruments governing international air law (conventions and protocols), lack or non-application of safety and security regulations and generally lack of manuals and practical guides for technical personnel (inspectors and instructors); (ii) low capacity of the civil aviation administrations: no legal and financial autonomy, difficulties recruiting, training and keeping security inspectors, limited expertise of technical staff who lack solid basic training and retraining; (iii) deterioration and/or poor working order of equipment, materials, airport infrastructure and technical civil aviation installations; (iv) large number of airlines with poorly-maintained aircraft; (v) inadequate financial resources to ensure harmonisation with ICAO standards.
4.3.5 The programme aims at contributing to the attainment of the objectives of the Yamoussoukro Decision and NEPAD’s STAP, by : (i) reducing the project’s overall costs for each State taken individually to acquire a high level of aviation safety rapidly and at least cost; (ii) reducing air-related incidents and accidents, hence the creation of incentive conditions to give momentum to air transport and open up member States for as much as possible; and (iii) promoting the emergence in WCA of air spaces and safe and efficient airports conducive to the development of tourism and the arrival of international airlines for healthy competition to the benefit of users. In line with the aeronautical policies adopted by the WCA member States, the Programme is in keeping with the Bank’s vision and the main priorities of NEPAD, geared to generating economies of scale through large integrated entities. Improving aviation safety, building the regulatory capacity of the DCAs and opening up member States are together one of the prime components for reaching this objective.
4.4 Programme Objectives
4.4.1 On the sectoral plane, the Programme will contribute to the improvement of civil aviation safety and the consolidation of the Yamoussoukro Decision for optimal integration of West and Central Africa (WCA) into the global air transport system.
4.4.2 Specifically, the Programme aims at: (i) building the capacity of the DCAs in WCA for better aviation supervision; (ii) establishing uniform economic rules and technical regulations that comply with the ICAO standards and recommended practices with a view to improving the safety and efficiency of air transport; and (iii) reducing the overall costs of air transport. 16
4.5 Programme Description
4.5.1 The COSCAP Programme on air transport safety will focus on the application by the DCAs of the following Annexes of the Chicago Convention: (i) Annex 1 concerning air personnel licensing: continuous inspection and supervision of training, certification, physical and technical aptitude tests of pilots, stewards, hostesses, ground mechanics and air controllers; (ii) Annex 6 concerning the aircraft operation: continuous inspection and supervision of the airline agreement, the air operating certificate, the plane’s history, maintenance centres and in-flight checks; (iii) Annex 8 covers issues of airworthiness: control of the aircraft’s capacity to fly, listing in the national register by certificate of origin of the manufacturer, DCA guidelines on the aircraft’s country of origin, as well as issue of certificate of airworthiness (COA) and (iv) Annex 14 relative to issues on aerodrome certification: continuous inspection of airport construction and operation, and operating manuals agreement.
4.5.2 To achieve the above-mentioned objectives, the following outputs are expected of the programme:
(i) Uniform technical regulations of civil aviation safety;
(ii) Three autonomous and operational regional agencies for the supervision of aviation safety put in place and the capacity for safety supervision by the Directorates of Civil Aviation built;
(iii) at least 18 Regional Inspectors responsible for aviation safety supervision trained and certified, 100 national inspectors trained and start-up of activities at the Agencies;
(iv) National experts of the Directorates of Civil Aviation trained and certified;
(v) Implementation of the Yamoussoukro Decision improved;
(vi) Capacity of the Executing Agencies built.
4.5.3 Programme components and activities can be described briefly as follows.
A. HARMONISATION OF TECHNICAL REGULATIONS A.1 – Technical regulations harmonisation studies A.2 – Validation workshop and adoption of the uniform technical regulations
B. ESTABLISHMENT OF REGIONAL AGENCIES FOR AVIATION SAFETY SUPERVISION B.1 – Agency organisation and operating studies B.2 – Recruitment and services of international experts B.3 – Recruitment and qualifications of regional inspectors B.4 – Recruitment of support staff B.5 – Provision of functional premises B.6 – Training B.7 – Capacity building (training, IT equipment) B.8 - Operating. 17
C. SUPPORT TO MONITOR IMPLEMENTATION OF THE YAMOUSSOUKRO DECISION C.1 – Feasibility Studies of a regional maintenance centre and data base on air transport C.2 - Recruitment and services of the project manager C.3 – CCSDY Secretariat capacity building C.4 – Organisation of meetings, workshops and validation, monitoring and support seminars C.5 - Operation. D. PROGRAMME MANAGEMENT D.1 – Capacity building of executing agencies D.2 – Programme Finance and Account Auditing
4.5.4 Programme activities can be described in detail as follows:
Harmonisation of Technical Safety Regulations
4.5.5 This will involve studies aimed at the preparation of uniform technical regulations for the supervision of civil aviation concerning: (i) air staff licensing, (ii) aviation medicine, (iii) airworthiness certificate, (iv) maintenance workshops agreements, (v) aircraft operation, (vi) aerodrome certification; (vii) audit, inspection and supervision procedures manual, (viii) the technical specifications manual; and (ix) the inspector’s manual. These regulatory texts will be prepared by the international inspectors who will be recruited (cf. TOR hereto attached) and who will refer to Articles 16, 28, 29, 31, 32, 33 and 37 as well as Annexes 1, 6, 8 and 14 of the Chicago Convention and take into account regulations in force within AAMAC (drafts) and in some States (Cape Verde, Gambia, Ghana).
4.5.6 In order to validate these draft technical regulations each REC (ECOWAS, GAB, WAEMU, CEMAC) will organise a workshop to present them to civil aviation experts of member States for consideration. Subsequently, these regulatory texts will be subject to the approval procedure of each REC for implementation in the member States concerned and serve as legal basis for the implementation of air safety supervision activities.
Establishment of Regional Aviation Safety Agency
4.5.7 The texts establishing the 3 Regional Aviation Safety Agencies (RASA) will be established and adopted before the first disbursement of the ADF grant. The programme will finance consultancy services for the conduct of organisational, operational and financial studies on these Regional Agencies by drawing inspiration from the experience of those in Latin America (ACSA in the COCESNA member States), and Europe (EASA in the EU member States). Once these studies have been validated and adopted by the RECs, the Regional Agencies will be operational as of the 2nd year of implementation of this programme, so as to ensure continuity of activities and avoid a halt detrimental to the sustainability of aviation safety supervision. These 3 Regional Agencies will carry out the functions of regulation and supervision of civil aviation safety whereas the air navigation services will still be the responsibility of existing organs such as ASECNA.
4.5.8 In order to put these RASAs in place, the Programme will finance for each Regional Agency over a 2 to 3 year period, training and certification of a pool of six (6) Regional Civil 18
Aviation Safety Inspectors including one (1) in staff licensing, two in (2) aircraft operation, two (2) in airworthiness and one (1) in aerodrome certification. For each RASA, the Programme will finance for varying durations and depending on the expertise required, the services of five (5) top notch international experts including one (1) in air staff licensing, one (1) in aircraft operation, one (1) in airworthiness, one (1) in aerodrome certification and (1) in legislation. These international experts will be required to train and qualify the regional inspectors for all certification and inspection functions. Training will focus primarily on the following points: (i) introduction to inspection of airline, dangerous goods, cabin safety, advanced aircraft operation and airworthiness; and (ii) basic courses for airworthiness controllers, Workshops Cat.II/III. Workshop on Reliability Monitoring, Modifications and Repairs, aircraft hire- airworthiness aspects, airworthiness control (on-the-job training), continuous certification and inspection, aviation medicine, introduction to air law, civil aeronautics regulations, air safety and accident prevention training (especially the CFIT and ALAR Programme), accident investigation, JAA licensing system, weight and balance, flight simulation evaluation, renewal of airworthiness certificate, violation control, aircraft certification, aerodrome certification will be organised. Once trained, the regional inspectors will in turn be apt to train, on-the-job, national inspectors (at least 100 by 2010) to supervise air safety at national level and be authorised (delegation of authority and oath-taking at Court) to carry out in member States of the RECs they belong to, inspections, audits and aviation safety supervision during implementation of the COSCAP Programme.
4.5.9 Other actions implemented under the Programme are complementary actions to enhance the efficiency of aviation safety supervision. These include: (i) autonomisation of the DCAs by member States, especially granting them an appropriate legal status, endowed with a corporate existence, and financial and management autonomy on the one hand, and the other, giving them the power to accomplish the grand missions of regulation and inspection mainly of air safety and security; (ii) revision and update of the basic civil aviation regulations (civil aviation codes, signature and ratification of legal instruments of international air law); (iii) preparation and adoption of a community mechanism for strengthening civil aviation safety in order to merge its activities with that of the Regional Civil Aviation Agency; (iv) common regulations and the establishment of regional entities commissioned to investigate incidents and accidents as well as conduct search and rescue; (v) preparation of a rehabilitation programme and application of ICAO standards for airport infrastructure and air navigation services, as well as mobilisation of the necessary financial means; and (vi) implementation of a GNSS system compatible with ICAO’s global CNS/ATM plan.
4.5.10 Provision has been made in the programme for familiarisation courses for the air transport units of RECs and regional inspectors in the functioning air safety supervision agencies like ACSA of COCESNA and EASA of the European Union. The interest in visiting ACSA is justified by the fact that it regroups countries of Latin America whose level of economic development is comparable to those of WCA. EASA for its part brings together industrialised countries with which WCA operates over 80% of its air connections. This dependence would be a major economic risk if airlines failing to fulfil minimal conditions of safety in keeping with ICAO’s standards and recommended practices, are banned from flying over the European airspace.
Support for the Implementation of the Yamoussoukro Decision in WCA 19
4.5.11 The supervision of air safety is an element of the liberalisation of air transport. Hence, the World Bank provided a three-year assistance for the CCSYD scheduled to end in December 2004 with the hope that the RECs or another donor will take over. The programme will provide this bridge and finance: (i) consultancy services to conduct feasibility studies for the creation of a regional centre for aircraft maintenance and a regional data base on civil aviation; (ii) consultancy services for the conduct of complementary studies on the preparation of economic regulations, especially rules relative to airline licensing, access to the air transport market, competition, airline responsibility, landing slots, protection of users and station handling; (iii) consultancy services for studies to finance the air sector, mobilisation of resources for the implementation of the CNS/ATM and promotion of private individuals in the creation of regional airlines; (iv) workshops to examine and validate these studies by civil aviation experts of WCA on the one hand, sensitisation seminars on the Yamoussoukro Decision intended for players of the air transport industry on the other; (v) periodic meetings of the institutional organs of the Memorandum of Understanding, in particular 4 meetings yearly of the Coordination and Follow-up Committee (CCSDY) comprising a Chairperson and 4 Vice-Chairpersons required to prepare activities and sessions, 2 meetings per annum of the CCSDY made of the DCA and DGACs of member States, alongside RECs, development partners, donors and industrialists of the sector to examine the status of the Lome Action Plan including the COSCAP Programme for the supervision of aviation safety, and the Committee for the Harmonisation of Economic Regulations, and one (1) meeting annually of the Council of Ministers Responsible for Civil Aviation of the 23 States, required to examine and approve the draft texts submitted by the CCSYD; (vi) recruitment for two years of a consultant attached to ECOWAS to play the role of Manager of this component and coordinator of all three COSCAP groups; (vii) running the Secretariat in charge of coordinating this component.
Programme Management
4.5.12 Implementation of the COSCAP Project involves many actors in each REC and several development partners, donors and sector industrialists. Apart from the CCSDY and Council of Ministers, a Management Committee or Steering Committee will be put in place in each REC. It will comprise Managers and General Directors of Civil Aviation Administrations, representatives of RECs, donors, development partners and sector industrialists, expected to play the role of the COSCAP Programme Steering Committee. The Steering Committee meets at regular intervals in accordance with its internal regulations, at least once half-yearly and more often if necessary to prepare, modify and give instructions for the consistent application of the COSCAP annual activity programme.
4.5.13 To assist the RECs, the Programme will finance the recruitment of three Coordinators, one per COSCAP Group and support staff (secretary, messenger) to carry out administrative, economic and financial management functions. The Coordinators will apply the decisions and guidelines of the Steering Committee, monitor ICAO’s services and procurement procedures under other Programme components. Accordingly, at the end of the Programme’s implementation, the regional inspectors qualified will be transferred to the Regional Agencies and confirmed (status and remuneration) to pursue the activities of security supervision within the framework of each Regional Agency. The Coordinators will then transfer their administrative and financial skills to the Directorates of the Regional Agencies so established. 20
4.5.14 The programme will build the capacity of the RECs to monitor and steer regional projects as planned under NEPAD. Therefore, it will finance: (i) IT equipment for the DTT of ECOWAS, the DTT of CEMAC and DTT of WAEMU, and logistic means for these Directorates; (ii) training of the officers of these Directorates; (iii) running of the Steering Committees of the COSCAP Groups and Directorates; and (iv) consultancy services to audit the finance and accounts of the ADF grant.
4.6 Environmental Impacts
The COSCAP Programme was classified under Category 9 because of its positive effects on the environment: (i) periodic aircraft testing and inspection by regional inspectors will mean a gradual withdrawal from the airspace of the oldest, noisiest aircraft in the world that are not in compliance with ICAO’s Chapters II and III and Annex 16. Similarly, aerodrome certification will improve compliance with aviation easement and therefore, airport planning and urban development. This will mean a decrease in noise pollution for the airport community and less emission of gases unfriendly to the atmosphere and ozone layer, as well as put a check to uncontrolled urban growth around airports; and (ii) better air security will reduce air accidents, and the material and environmental damage for airlines, airports, airport communities and third parties.
4.7 Social Impact
4.7.1 Better aviation safety should facilitate free movement of persons and goods and contribute to the attainment of the objectives of the Yamoussoukro Decision: competition between airlines, lower transport costs and a drop in fares. The most sought after effects are: (i) better air transport conditions and an increase in the air travel rate of the populations especially those on pilgrimage; (ii) increase in incomes generated by agriculture and the services sector from the export of high value-added perishables by air freight (fruit and vegetables, tropical flowers, meat and fish) and the development of tourism (hotel industry, land transport means, natural and cultural sites, crafts); and (iii) the best possible way to open up member countries, step up South-South and North-North trade and opportunities with other continents (America, Middle East and Asia).
Impact on Gender
4.7.2 Better safety will promote the expansion of the air transport industry through the development of airlines, airport management companies, travel agencies and companies involved in handling, catering, freight, transit, etc which could mean new jobs for the people in general, and women in particular, both in terms of the positions they traditionally hold like air or ground hostesses, airline desk assistants, ticket clerks, secretaries, and telephone operators, but also in new functions to be encouraged (pilots, engineers, inspectors, mechanics and managerial positions). Furthermore, women in the rural and sub-urban areas could increase their incomes by growing market garden crops for air freight export on the one hand, and crafting products for the tourist trade on the other.
Impact on Poverty
4.7.3 As a result of its various actions and provisions, the COSCAP Programme could have an indirect impact on poverty reduction. Indeed, pooling production facilities and the inflow of international finance contributions will require highly skilled labour and support staff to operate some duty stations. An estimated US$ 6 million is expected and could be 21
channelled into staff training and salaries for the regional inspectors, coordinators of the COSCAP Programme and the support staff who will be hired during the Programme’s implementation. Temporary jobs during the COSCAP Programme phase and permanent positions with the creation of the Regional Agencies will mean incomes supplementary to those generated by the air transport industry (particularly from the export of fruits and vegetables, cut flowers, meat and fish, crafts) and the development of tourism.
4.7.4 Overall the Programme will contribute to opening up the member States, to regional integration, a better environment and conditions for the people, and to reducing poverty. With regular, dependable, efficient and effective connections, the COSCAP Programme will make travel by air, the fastest means of transport, accessible at least cost to users and act as the physical hyphen between the populations of the WCA member States and play an effective role in support to their economic production.
4.8 Programme Cost Estimate
4.8.1 The Programme’s cost, net of taxes and customs duties is estimated at UA 13.21 million including UA 7.83 million in foreign exchange and UA 5.38 million in local currency. The provision for inflation is equal to 6.30% of the base cost plus physical contingencies. The cost estimate summary by component of the Programme is shown in the table 4.1 below.
Table 4.1 Programme Cost Estimate by Component
COMPONENT CFAF million UA million US$ million F.E. L.C. Total F.E. L.C. Total F.E. L.C. Total
A - Harmonisation of Regulations - Regulations Harmonisation Studies 122.31 52.39 174.70 0.15 0.07 0.22 0.23 0.10 0.32 -Validation Workshops 105.02 44.99 150.00 0.13 0.06 0.19 0.19 0.08 0.28
B – Establishment of Regional Aviation Safety Agencies B.1 - CEMAC/ Regional Agency Sao Tome 1 277.63 1 168.50 2 446.13 1.61 1.48 3.09 2.37 2.17 4.53 B.2 - ECOWAS/Banjul Accord Group Regional Agency 1 181.55 827.67 2 009.22 1.49 1.05 2.54 2.19 1.53 3.72 B.3 - WAEMU/ Regional Agency Mauritania 1 294.22 1 046.68 2 340.89 1.64 1.32 2.96 2.40 1.94 4.34 C- Support to the Yamoussoukro Decision Coordination and Monitoring Committee - Facilitation 212.84 91.17 304.02 0.27 0.12 0.38 0.39 0.17 0.56 - Establishment of Air Transport Team 87.80 37.61 125.42 0.11 0.05 0.16 0.16 0.07 0.23 - Regional Data Base on the AT Sector 55.75 23.88 79.63 0.07 0.03 0.10 0.10 0.04 0.15 - Studies 54.78 23.47 78.25 0.07 0.03 0.10 0.10 0.04 0.15 - Other 3.78 1.62 5.40 0.00 0.00 0.01 0.01 0.00 0.01 D – Project Management and Monitoring - Programme Coordinators 183.15 78.45 261.60 0.23 0.10 0.33 0.34 0.15 0.48 - Goods 107.12 45.88 153.00 0.14 0.06 0.19 0.20 0.09 0.28 - Operation 330.81 141.71 472.51 0.42 0.18 0.60 0.61 0.26 0.88 - Training 105.02 44.99 150.00 0.13 0.06 0.19 0.19 0.08 0.28 - Finance and Account Auditing 56.01 23.99 80.00 0.07 0.03 0.10 0.10 0.04 0.15 - ICAO Administrative Expenses 347.48 148.85 496.33 0.44 0.19 0.63 0.64 0.28 0.92 - Reports and Others 24.29 10.41 34.70 0.03 0.01 0.04 0.05 0.02 0.06 Base Cost 5 549.53 3 812.25 9 361.78 7.01 4.82 11.83 10.28 7.06 17.35 Physical Contingencies 277.48 190.61 468.09 0.35 0.24 0.59 0.51 0.35 0.87 Inflation 366.91 252.05 618.96 0.46 0.32 0.78 0.68 0.47 1.15 TOTAL COST 6 193.92 4 254.91 10 448.83 7.83 5.38 13.21 11.48 7.88 19.36
4.8.2 The cost summary by expenditure category for the Programme is given in Table 4.2 below. 22 23
Table 4.2 Programme Cost Estimate by Expenditure Category
Category In CFAF million In UA million In US$ million F.E M.L Total F.E. M.L Total F.E. M.L Total B Goods - Vehicles 49.32 49.32 0.06 0.06 0.09 0.09 - IT/ Photocopying and communication hardware 143.51 35.88 179.39 0.18 0.05 0.23 0.27 0.07 0.33 - Office Furniture 36.00 36.00 0.05 0.05 0.07 0.07 Total Goods 143.51 121.20 264.71 0.18 0.15 0.33 0.27 0.22 0.49 A - Works - CEMAC/ Agency Headquarters Sao Tome 200.00 200.00 0.25 0.25 0.37 0.37 - BAG Agency Headquarters 200.00 200.00 0.25 0.25 0.37 0.37 - WAEMU/Agency Headquarters Mauritania 200.00 200.00 0.25 0.25 0.37 0.37 Total Works 600.00 600.00 0.76 0.76 1.11 1.11 C – Consultancy Services - Studies for the Harmonisation of Technical Regulations 139.76 34.94 174.70 0.18 0.04 0.22 0.26 0.06 0.32 - Regional Agency Organisational and Operational Studies 168.00 42.00 210.00 0.21 0.05 0.27 0.31 0.08 0.39 - International Inspectors 1 594.62 718.09 2 312.72 2.02 0.91 2.92 2.95 1.33 4.29 -Regional Inspectors 869.56 457.79 1 327.35 1.10 0.58 1.68 1.61 0.85 2.46 - Support Staff 78.37 29.29 107.66 0.10 0.04 0.14 0.15 0.05 0.20 - COSCAP Programme Coordinators 261.60 261.60 0.33 0.33 0.48 0.48 - Technical Assistance Expert in Civil Aviation (CCSDY) 76.85 76.85 0.10 0.10 0.14 0.14 - Creation of a Data Base on Safety and Security 63.70 15.93 79.63 0.08 0.02 0.10 0.12 0.03 0.15 - Regional Maintenance Feasibility Study 0.08 0.02 0.10 0.12 0.03 0.15 - YD Implementation Study 0.04 0.04 0.06 0.06 - Finance and Account Auditing 0.08 0.02 0.10 0.12 0.03 0.15 Total Consultancy Services 3 040.61 1 702.68 4 743.29 3.84 2.15 5.99 5.63 3.16 8.79 D - Sundry - Training 1 053.23 232.75 1 285.99 1.33 0.29 1.63 1.95 0.43 2.38 - Meetings/Workshops/Sensitisation 306.66 147.36 454.02 0.39 0.19 0.57 0.57 0.27 0.84 - Activity Programme Coordinators 29.09 173.71 202.80 0.04 0.22 0.26 0.05 0.32 0.38 - Per diems, Airline Tickets, Operating of Intern. And Regional Experts 686.77 318.08 1 004.85 0.87 0.40 1.27 1.27 0.59 1.86 - Operation YD Monitoring Committee 4.32 1.08 5.40 0.01 0.00 0.01 0.01 0.00 0.01 - Operating Programme Steering Committees 269.71 269.71 0.34 0.34 0.50 0.50 - Reports and other 26.45 8.25 34.70 0.03 0.01 0.04 0.05 0.02 0.06 - ICAO Administrative Expenses 256.87 239.46 496.33 0.32 0.30 0.63 0.48 0.44 0.92 Total Sundry 2 363.38 1 390.40 3 753.78 2.99 1.76 4.74 4.38 2.58 6.96 Base Cost 5 547.50 3 814.28 9 361.78 7.01 4.82 11.83 10.28 7.07 17.35 Physical Contingencies 277.38 190.71 468.09 0.35 0.24 0.59 0.51 0.35 0.87 Inflation 366.77 252.18 618.96 0.46 0.32 0.78 0.68 0.47 1.15 Total 6 191.65 4 257.18 10 448.83 7.83 5.38 13.21 11.47 7.89 19.36
4.9 Financing Sources and Expenditure Schedule
4.9.1 The Programme will be financed by the French Cooperation Department, FAA, European Union, IFFAS, US-TDA, private or institutional operators (Boeing, Airbus Industry, etc.), the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat, the Banjul Accord Group and WAEMU Commission, as well as the respective Governments of the RECs. The ADF grant will be used to finance: (i) studies to harmonise national regulations, the creation of Regional Aviation Safety Agencies and feasibility studies (creation of regional maintenance centres, a regional data base on air transport); (ii) fees of and per diems for the international experts; (iii) support for Yamoussoukro Decision Implementation Coordination and Monitoring Committee; and (iv) Programme management and monitoring. The ADF contribution of UA 4.60 million or 34.80% of total Programme cost will be used to cover 46.99% of the foreign exchange cost and 17.08% of the local currency cost of the Programme.
4.9.2 The Governments of the three States to host the COSCAP Programme and the planned Regional Aviation Safety Agencies (ARSA), will as their contributions provide fitted premises. The contributions of private and institutional operators will take the form of 24 training of regional and national experts. Proof of donor commitment to provide funds and contributions for the RECs according to the expenditure schedule are grant conditions for this Programme.
4.9.3 The financing plan by source and expenditure category of the Programme is shown in tables 4.3 and 4.4 below:
Table 4.3 Programme Financing Sources (in UA million) Source F.E. Local Currency Total % ADF Grant 3.68 0.92 4.60 34.80% FR. COOP, EU, IFFAS 3.47 1.30 4.76 36.06% Other (Airbus, Boeing, FAA etc) 0.68 0.68 5.16% CEMAC 0.80 0.80 6.07% ECOWAS/BAG 0.80 0.80 6.03% WAEMU/MAURITANIA 0.72 0.72 5.47% GOV. 0.85 0.85 6.41% Total 7.83 5.38 13.21 100%
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Table 4.4 Programme Financing Sources by Expenditure Category (in UA million)
FR. COOP, EU, Other (Airbus, WAEMU/MAURI Categories ADF Grant CEMAC ECOWAS/BAG GOVTs. Total IFFAS Boeing, FAA etc) TANIA
F.E. L.C. Total F.E. L.C. Total F.E. L.C. Total F.E. L.C. Total F.E. L.C. Total F.E. L.C. Total F.E. L.C. Total F.E. L.C. Total
B -Goods - Vehicles 0.02 0.02 0.02 0.02 0.02 0.02 0.06 0.06 - IT photocopying and Communication
Hardware 0.18 0.05 0.23 0.18 0.05 0.23 - Office Furniture 0.02 0.02 0.02 0.02 0.02 0.02 0.05 0.05 A - Works -CEMAC Agency Headquarters / Sao Tome 0.25 0.25 0.25 0.25 - BAG Agency Headquarters 0.25 0.25 0.25 0.25 -WAEMU/ Agency Headquarters Mauritania 0.25 0.25 0.25 0.25 C – Consultancy Services - Studies for the Harmonisation of Technical 0.18 0.22 Regulations 0.04 0.18 0.04 0.22 - Regional Agency Organisational and
Operational Studies 0.21 0.05 0.27 0.21 0.05 0.27 - International Inspectors 1.12 0.28 1.39 0.9 0.34 1.24 0.11 0.11 0.08 0.08 0.10 0.10 2.02 0.91 2.92 - Regional Inspectors 1.1 0.41 1.51 0.07 0.07 0.04 0.04 0.06 0.06 1.10 0.58 1.68 - Support Staff 0.1 0.04 0.14 0.10 0.04 0.14 - COSCAP Programme Coordinators 0.10 0.10 0.10 0.10 0.12 0.12 0.33 0.33 - Technical Assistance Expert in Civil
Aviation (CCSDY) 0.04 0.04 0.06 0.06 0.10 0.10 - Creation of a data base on safety and 0.08 0.10 security 0.02 0.08 0.02 0.10 -Feasibility Study on a Regional Maintenance
Centre 0.08 0.02 0.10 0.08 0.02 0.10 - YD Implementation Study 0.02 0.02 0.03 0.03 0.04 0.04 - Finance and Account Auditing 0.08 0.02 0.10 0.08 0.02 0.10 D - Sundry - Training 0.47 0.12 0.58 0.25 0.09 0.35 0.61 0.61 0.03 0.03 0.03 0.03 0.03 0.03 1.33 0.29 1.63 - Meetings/Workshops/Sensitisation 0.39 0.10 0.48 0.04 0.04 0.05 0.05 0.39 0.19 0.57 - Activities Programme Coordinator 0.04 0.01 0.05 0.07 0.07 0.07 0.07 0.07 0.07 0.04 0.22 0.26 - Per Diem, Air tickets, Activities
International and Regional Experts 0.40 0.10 0.50 0.47 0.18 0.64 0.03 0.03 0.05 0.05 0.05 0.05 0.87 0.40 1.27 -Operation YD Coordination and Monit. 0.01 0.01 Committee, 0.00 0.01 0.00 0.01 - Operation Programme Steering Committee 0.11 0.11 0.11 0.11 0.13 0.13 0.34 0.34 - Reports and Others 0.02 0.00 0.02 0.02 0.01 0.02 0.03 0.01 0.04 - ICAO Administrative Expenses 0.06 0.01 0.07 0.27 0.10 0.37 0.06 0.06 0.06 0.06 0.06 0.06 0.32 0.30 0.63 Base Cost 3.29 0.82 4.12 3.11 1.16 4.27 0.61 0.61 0.72 0.72 0.71 0.71 0.65 0.65 0.76 0.76 7.01 4.82 11.83 Physical Contingencies 0.16 0.04 0.21 0.16 0.06 0.21 0.03 0.03 0.04 0.04 0.04 0.04 0.03 0.03 0.04 0.04 0.35 0.24 0.59 Inflation 0.22 0.05 0.27 0.21 0.08 0.28 0.04 0.04 0.05 0.05 0.05 0.05 0.04 0.04 0.05 0.05 0.46 0.32 0.78 Total 3.68 0.92 4.60 3.47 1.30 4.76 0.68 0.68 0.80 0.80 0.80 0.80 0.72 0.72 0.85 0.85 7.83 5.38 13.21
4.9.4 The expenditure schedule by component of the programme is summarised in table 4.5 below:
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Table 4.5 Programme Expenditure Schedule by Component (in UA million)
Components 2005 2006 2007 2008 Total A - Harmonisation de of Regulations - Regulation Harmonisation Studies 0.22 0.22 -Validation Workshops 0.19 0.19 B – Establishment of Regional Aviation Safety Agencies B.1 - Regional Agency CEMAC/Sao Tome 1.06 1.19 0.56 0.29 3.09 B.2 - Regional Agency ECOWAS/Banjul Group 0.88 0.96 0.46 0.24 2.54 B.3 - Regional Agency WAEMU/Mauritania 1.04 1.12 0.53 0.27 2.96 C- Support to the Yamoussoukro Decision Implementation Monitoring Committee - Facilitation 0.27 0.12 0.00 0.38 - Establishment of Air Transport Team 0.05 0.06 0.03 0.02 0.16 - Creation of a Regional Data Base on the AT Sector 0.10 0.10 - Studies 0.10 0.10 - Others 0.01 0.01 D – Project Management and Monitoring - Programme Coordinators 0.10 0.13 0.07 0.03 0.33 - Goods 0.19 0.19 - Operation 0.18 0.24 0.12 0.06 0.60 - Training 0.06 0.08 0.04 0.02 0.19 - Finance and Account Auditing 0.04 0.04 0.02 0.10 - ICAO Administrative Expenses 0.19 0.25 0.13 0.06 0.63 - Reports and Sundry 0.01 0.02 0.01 0.00 0.04 Base Cost 4.64 4.21 1.98 1.01 11.83 Physical Contingencies 0.23 0.21 0.10 0.05 0.59 Inflation 0.31 0.28 0.13 0.07 0.78 Total 5.18 4.69 2.21 1.13 13.21 Total in % 39% 36% 17% 9% 100%
4.9.5 The expenditure schedule by financing source of the Programme as well as that of the ADF Programme is summarised in 4.6 below.
Table 4.6 Programme Expenditure Schedule by Financing Source (in UA million)
Source 2005 2006 2007 2008 Total ADF Grant 2.06 1.43 0.74 0.37 4.60 FR.COOP, EU, IFFAS 1.43 1.91 0.95 0.48 4.76 Others (Airbus, Boeing, FAA etc) 0.20 0.27 0.14 0.07 0.68 CEMAC 0.28 0.30 0.15 0.07 0.80 ECOWAS/BAG 0.29 0.29 0.14 0.07 0.79 WAEMU/MAURITANIA 0.24 0.27 0.14 0.07 0.72 GOV. 0.59 0.25 0.00 0.85 Total 5.10 4.72 2.26 1.13 13.21 Total in % 39% 36% 17% 9% 100%
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5. PROGRAMMME IMPLEMENTATION
5.1 Executing Agency 5.1.1 The program executing agencies include: (i) the Executive Secretariat of the Central African Economic and Monetary Community (CEMAC) through the Directorate of Transport and Telecommunications (DTT-CEMAC) for the program components on the CEMAC Zone/Sao Tome and Principe; (ii) the ECOWAS Executive Secretariat through the Directorate of Infrastructure and Industry (DII) for the programme components on the Banjul Accord Group Agreement and the component supporting the implementation of the Yamoussoukro Declaration; and (iii) the WAEMU Commission through the Directorate of Transport and Telecommunications in the Department of Community Physical Planning, Infrastructure, Transport and Telecommunications (DTT-WAEMU) for the programme components on WAEMU and Mauritania.
5.1.2 However, these three Directorates are in need of human resources and have had little experience in implementing similar projects. Thus the WAEMU DTT is run by two (2) managers (the Director and a consulting air transport specialist). The CEMAC DTT has four (4) managers, including the Director who is the structure’s only civil aviation specialist. The ECOWAS DII has four (4) managers, including the Director, none of whom is a civil aviation specialist. The CEMAC DTT and the ECOWAS DII are also in charge of the transport infrastructure component.
5.1.3 The agencies mentioned in the MOU signed on 14 November 1999 by the 23 West and Central African member States will monitor the implementation of activities contained in the Yamoussoukro Declaration in West and Central Africa (WCA): the Council of Ministers responsible for Civil Aviation, the Coordination and Monitoring Committee (CMC) supported by a consulting air transport specialist attached to ECOWAS. The World Bank financial support ended in December 2004; the Lome Action Plan has not yet been completed. 5.2 Institutional Arrangements 5.2.1 The Programme will be based on institutional mechanisms contained in the Memorandum of Understanding (MOU) on implementation of the Yamoussoukro Declaration. Under ECOWAS coordination, the Programme will provide support the CEMAC and ECOWAS Executive Secretariats to enable both to continue with monitoring the implementation of the Yamoussoukro Declaration. However, to ensure the sustainability of the mechanism, an Air Transport Unit with a minimum of two full-time civil aviation specialists will be set up within the CEMAC DTT Executive Secretariat, the ECOWAS DII Executive Secretariat and the UEMOA Commission’s DTT. The establishment of these Units shall be a condition for awarding the grant for this Programme.
5.2.2 In the COSCAP Programme Framework Document prepared by ICAO and validated by the RECs, each COSCAP group was required to set up a Steering Committee (SC) comprising Directors and General Managers of civil aviation authorities, representatives of the corresponding executing agency, donors, development partners and sector industrialists. These Committees will act as the COSCAP Programme Steering Committee. The operation of these Committees will be funded with REC contributions to programme financing.
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5.2.3 To enable the Steering Committees and executing agencies to successfully conduct their respective missions and assume additional responsibilities, the programme will finance the recruitment of one Coordinator per COSCAP Group whose role will include: (i) serving as the link between the RECs, ICAO, the group of international experts, regional inspectors and the Steering Committee; (ii) keeping the SC secretariat; and (iii) preparing TORs and consultancy documents for all programme procurements, except for those assigned to ICAO. In that capacity, the Coordinator’s office will be located within the programme headquarters. The executing agencies and Coordinators will receive additional logistical resources, computer hardware and support staff (assistant and driver).
5.2.4 Furthermore, in view of the ICAO’s vast experience and reputation, the Programme will depend on that UN specialized agency which will be assigned the role of assisting the client in procuring the services of international experts and regional inspectors, and monitoring their activities. ICAO is the UN specialized agency in charge of setting the Standards and Recommended Practices (SARP) applicable worldwide to all Contracting States and covering all major aspects of international aviation. ICAO has a vast experience in civil aviation development projects in Africa and the Indian Ocean. The Technical Cooperation Bureau (TCB) has the unique capacity to recruit highly qualified technical experts worldwide and impartially administer complex organizational and infrastructure development projects. ICAO is currently advanced in implementing a COSCAP project in South Asia and will soon start a similar project in South-East Asia. Discussions are underway to implement COSCAP projects in the South Pacific region and a similar one in South America in the near future. Moreover, subject to approval by States, ICAO’s experience while implementing the Universal Safety Oversight Audit Programme (USOAP) will be put at the Programme’s disposal. Special agreements to provide assistance to the supervisor (funded with part of the ADF grant) will be signed between ICAO and RECs. The signing of such agreements shall be a condition for awarding the ADF grant. 5.3 Implementation and Supervision Schedule 5.3.1 The implementation phase will run from May 2005 to June 2008, i.e. about 37 months. The summary of the Programme implementation schedule (presented as annex) is as follows: 29
Table 5.1 Implementation Schedule
Activities Responsibility/Actions Date 1- PRELIMINARY ACTIVITIES Grant approval ADF March-2005 Grant signature ADF/CEMAC/ECOWAS/WAEMU April-2005 Publication of the General Information Note ADF/CEMAC/ECOWAS/WAEMU June-2005 2- REFITTING OF PREMISES Allocation of premises GOV. July-2005 Refitting of premises GOV. September-2005 3- RECRUITMENT OF INTERNATIONAL AND REGIONAL INSPECTORS Signing of agreement with ICAO for the recruitment of experts CEMAC/ECOWAS/WAEMU/ICAO May-2005 Start of the expert recruitment process by ICAO ICAO July-2005 Approval of selection of experts CEMAC/ECOWAS/WAEMU/ICAO August-2005 Start of services by experts Experts/ICAO October-2005 End of services by experts CEMAC/ECOWAS/WAEMU/ICAO April-2008
4- STUDIES ON THE HARMONIZATION OF REGULATIONS AND ORGANIZATION OF AGENCIES Preparation and approval of the TOR, the BD and the short list CEMAC/ECOWAS/WAEMU/ADF May-2005 Bid invitation CEMAC/ECOWAS/WAEMU June-2005 Bid submission Consultant/CEMAC/ECOWAS/WAEMU August-2005 Bid analysis, contract approval and signature Consultant/CEMAC/ECOWAS/WAEMU October-2005 Studies start-up Consultant/CEMAC/ECOWAS/WAEMU November-2005 End and approval of studies CEMAC/ECOWAS/WAEMU/ADF March-2006 5- OTHER STUDIES Preparation and approval of TORs, BDs and the short list CEMAC/ECOWAS/WAEMU/ADF June-2005 Bid invitation CEMAC/ECOWAS/WAEMU September-2005 Bid submission Consultant/CEMAC/ECOWAS/WAEMU December-2005 Bid analysis and signing of contracts Consultant/CEMAC/ECOWAS/WAEMU January-2006 Studies start-up Consultant/CEMAC/ECOWAS/WAEMU September-2006 Approval of study reports CEMAC/ECOWAS/WAEMU/ADF March-2006 6- PROJECT AUDIT Preparation and approval of short lists and BDs CEMAC/ECOWAS/WAEMU/ADF October-2005 Bid invitation CEMAC/ECOWAS/WAEMU December-2005 Bid submission Consultant/CEMAC/ECOWAS/WAEMU Févr-2006 Bid analysis and signing of contracts Consultant/CEMAC/ECOWAS/WAEMU April-2006 Start-up of services Consultant/CEMAC/ECOWAS/WAEMU May-2006 End of services CEMAC/ECOWAS/WAEMU/ADF June-2008 7- CAPACITY BUILDING 7.1 Recruitment of Programme Coordinators Publication of Procurement Notice CEMA/ECOWAS/WAEMU/ADF May-2005 Preparation and approval of TOR and the short list CEMA/ECOWAS/WAEMU/ADF June-2005 Bid invitation CEMA/ECOWAS/WAEMU July-2005 Bid analysis and signing of the contract Consultant/CEMAC/ECOWAS/WAEMU September-2005 Start-up of services Consultant October-2005 End of technical assistance services Consultant/CEMAC/ECOWAS/WAEMU June-2008 7.1 Recruitment of Directors for the Liberalization Project Publication of the Procurement Notice CEMA/ECOWAS/ADF May-2005 Preparation and approval of the TOR and the short list CEMA/ECOWAS/ADF June-2005 Bid invitation CEMA/ECOWAS July-2005 Bid analysis and signing of the contract CEMA/ECOWAS/WAEMU/ADF September-2005 Start-up of services Consultant October-2005 End of technical assistance services Consultant/CEMAC/ECOWAS June-2008 7.3 Support to Executing Agencies Request for price quotation for supplies and equipment CEMAC/ECOWAS/WAEMU September-2005 Start-up of training and seminars CEMAC/ECOWAS/WAEMU January-2006 End of training CEMAC/ECOWAS/WAEMU March-2008 Start of Programme monitoring CEMAC/ECOWAS/WAEMU May-2005 End of Programme monitoring CEMAC/ECOWAS/WAEMU/ADF June-2008
5.3.2 The ADF will launch the Programme soon after the grant approval. Subsequently, it will conduct supervision missions whose schedule and composition are given below: 30
Table 5.2 Provisional Supervision Schedule Approximate Date Activity Mission Composition Person/Weeks - Project officer (engineer or transport economist) – 29/06/2005 Start-up 6 Disbursement officer – Procurement officer 28/02/2006 Supervision Project officers 2.5 29/09/2006 Supervision Project officers 2.5 28/03/2007 Supervision Project officers 2.5 27/11/2007 Supervision Project officers 2.5 28/05/2008 Supervision Project officers 2.5 24/09/2008 Completion report 1 transport economist and a civil aviation expert 6 Total 24.5
5.4 Procurement of Goods, Works and Services 5.4.1 All goods, works and services procured with the ADF grant will be subject to Bank Rules of Procedure for the Procurement of Goods, Works and Services or, as the case may be, Bank Rules of Procedure for the Use of Consultants, using the appropriate standard Bank bidding documents. The modalities of various procurements scheduled under the Programme are summarized on the table below, followed by the details. 31
Table 5.3 Provisions for the Procurement of Works and Services (UA Million)
a Others. Excluding ICB LCB Others Short List b Total Expenditure Categories ADF B – Goods - Vehicles 0.07 0.07 - Computer/photocopying and communications hardware 0.25 [0.25] 0.25 [0.25] - Office furniture 0.05 0.05 [0.25 Total A 0.25 ] 0.12 0.37 [0.25] A – Works - CEMAC Agency headquarters/Sao Tome 0.28 0.28 - GDB Agency headquarters 0.28 0.28 - WAEMU Agency headquarters/Mauritania 0.28 0.28 Total B 0.85 0.85 C – Consultancy Services - Technical regulations harmonization studies 0.25 [0.25] 0.25 [0.25] - Organizational and operational studies on the regional agencies 0.30 [0.30] 0.30 [0.30] - International inspectors 1.88 [1.56] 1.38 3.26 [1.56] - Regional inspectors 1.87 1.87 - Support staff 0.15 0.15 - COSCAP Programme coordinators 0.37 0.37 - CCSDY technical assistance expert in aviation 0.11 0.11 - Creation of a data base on security and safety 0.11 [0.11] 0.11 [0.11] - Feasibility study on a regional maintenance centre 0.11 [0.11] 0.11 [0.11] - YD implementation study 0.05 0.05 - Financial and accounting audit 0.11 [0.11] 0.11 [0.11] [1.56 [0.88 1.88 0.88 3.93 6.69 [2.43] Total C ] ] D - Miscellaneous - Training 0.74 [0.65] 1.07 1.81 [0.65] - Meetings/workshops/sensitization 0.64 [0.54] 0.64 [0.54] - Operation, programme coordinators 0.29 [0.05] 0.29 [0.05] - Per diem, air tickets, operation international and regional experts 0.70 [0.56] 0.72 1.42 [0.56] - Operation YD Monitoring Committee 0.01 [0.01] 0.01 [0.01] - Operation Programme Steering Committees 0.38 0.38 - Reports, etc. 0.02 [0.02] 0.03 0.05 [0.02] - ICAO administrative expenditure 0.29 [0.08] 0.41 0.70 [0.08] [1.91 Total D 2.69 ] 2.61 5.29 [1.91] [0.25 [3.46 [0.88 Total 0.25 ] 4.57 ] 0.88 ] 7.50 13.21 [4.60] [ ] ADF (a) Services funded by the ADF and procured according to ICAO procedures for the recruitment of international experts ; expenditure committed on presentation of justifying documents (b) Works, goods and consultancy services procured according to other donors’ procedures and/or financed fully by the Government of the RECs.
Goods 5.4.2 Computer hardware amounting to UA 0,25 million, including UA 0.05 million for COSCAP-CEMAC, UA 0.06 million for COSCAP-BAG, UA 0.04 million for COSCAP- WAEMU, UA 0.03 million for DTT/CEMAC, UA 0.03 million for DII-ECOWAS and UA 0.03 million for DTT-WAEMU will be procured through local competitive bidding. The use of that procedure is justified by the fact that the computer hardware will be procured in three batches (one batch per REC) and the low procurement amount involved. Consultancy Services 32
5.4.3 Consultancy services for conducting studies totalling UA 0.77 million will be procured through competitive bidding on the basis of a short list drawn up by the Programme executing agencies as follows: (i) study on the harmonization of technical regulations for UA 0.25 million; (ii) study on the organization and funding of activities of Regional Civil Aviation Safety Agencies for UA 0.30 million; (iii) feasibility study on the creation of regional air transport data bases for UA 0.11 million; and (iv) feasibility study on the establishment of a regional aeronautic maintenance centre for UA 0.11 million. Consultants will be selected using a method combining the technical and financial proposals. For individual consultancy missions ranging from a few weeks to two (2) months, the executing agencies may use the direct negotiation procedure to recruit qualified individual consultants based on information at their (i.e. executing agencies’) disposal or that the Bank may provide them with.
5.4.4 Audit services for components financed by the ADF in the amount of UA 0.11 million will be entrusted to auditing firms recruited through competitive bidding on the basis of a short list. Each executing agency will conduct limited shopping in that regard. Consultants will be selected suing a method combining the technical and financial proposals.
5.4.5 The services of international civil aviation experts to the tune of UA 1.88 million will be procured using ICAO procedures for the recruitment of experts after the RECs would have signed assistance agreements with the client. The ICAO procedures for the procurement of consultancy services were reviewed and considered acceptable. Miscellaneous 5.4.6 This component will finance: (i) travel expenses and the cost of organizing the training of regional and national inspectors amounting to UA 0.74 million; (ii) operating and travel expenses totalling UA 1.02 million; (iii) the cost of organizing the restitution workshop, seminars, meetings and field trips to the tune of UA 0.64 million; and (iv) ICAO management fees amounting to UA 0.08 million. The expenses will be funded on presentation of justifying documents by the Programme executing agencies, based on annual activity programmes. General Information Note 5.4.7 The text of a general information note on procurements will be discussed with the parties and published in “Development Business” soon after the approval of the grant proposal by the Bank’s Board of Directors. Review Procedures 5.4.8 The following documents shall be subject to ADF review and approval prior to publication: (i) Special information note on procurement; (ii) Bidding documents, consultancy documents, terms of reference and letters of invitation to consultants; (iii) REC agreements with ICAO; (iv) Publication of local procurement notices; (v) Bid analysis reports for works and the services of consultants in charge of conducting the audit and other activities, including contract award recommendations; (vi) Draft contracts, if those in the bidding documents had been modified.
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5.5 Disbursement Arrangements 5.5.1 The ADF grant will be managed according to the special account method. The resources will be deposited by tranche (on the basis of an annual activity programme drawn up by the COSCAP Project regional coordinators under the supervision of the CEMAC DTT, the ECOWAS DII and the WAEMU DTT) into a separate account bearing the Programme’s name opened at the Central Bank of Central African States (BCEAC), the Central Bank of Nigeria and the Central Bank of West African States (BCEAO), respectively. For payment purposed, each REC will open an account with a leading commercial bank into which funds will be transferred from the Central Bank account as necessary. The Central Bank account will be replenished on presentation of justifying documents. Opening of these accounts shall be a condition for awarding the grant.
5.5.2 Since ICAO will play the role of client’s agent, special onlending agreements on part of the ADF contribution to the Programme will be signed between the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat and the WAEMU Commission, on the one hand, and ICAO, on the other. 5.6 Monitoring and Evaluation 5.6.1 Monitoring will comprise internal and external follow-up, supervision missions by the Bank and other cofinanciers, and final evaluation (including the preparation of completion reports by the executing agencies and the Bank). During the implementation phase, ICAO and programme coordinators will prepare quarterly progress reports under the oversight of the executing agencies; the reports will be forwarded to the ADF. The same procedure will be followed with regard to annual activity programmes and reports, annual budgets and their implementation reports. The executing agencies will coordinate donor operations and organize joint supervision missions. The preparation and transmission of quarterly reports to the ADF is a condition for awarding the ADF grant.
5.6.2 At the end of the Programme, ICAO and the COSCAP Regional Coordinators will prepare works completion reports which they will submit to the executing agencies for validation. In turn, the executing agencies will prepare the Donee’s Project Completion Report according to the prevailing ADB format, within six months of completing the Programme.
5.6.3 The accountants at the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat, the WAEMU Commission and ICAO will keep separate accounting records of the ADF grant put at their disposal. The Programme will be audited yearly and the report forwarded to the Bank. These reports will help to ensure that: (i) the grant resources were actually used in financing activities contained in the Grant Protocol of Agreement; (ii) accounting records on the grant were properly kept; and (iii) Bank procedures on grant administration were complied with. 5.7 Audit and Financial Reports The Programme accounts will be kept separately by the executing agencies using the private accounting plan format and in line with a computerized accounting management system in force in WCA. The system should permit the monitoring of Programme expenditure by estimates, source of financing, expenditure category and component. The Programme accounts will be externally audited yearly by an auditing firm recruited according to Bank Group procedures (the Programme resources include a provision in that regard). The 34 audit reports will be submitted to the ADF not later than six months following the end of each financial year. Since the implementation phase is scheduled to last 37 months, the Donees are expected to conduct three annual audits, including the last at the end of the implementation phase. 5.8 Aid Coordination 5.8.1 Ministries of Finance or Planning in each WCA country will be responsible for coordination. In addition, coordination in the transport sector will be conducted through mid- term review meetings within the framework of transport sector programmes (TSP). REC- level coordination will be through two annual meetings of the COSCAP Programme Steering Committee and the Follow-up Committee on the Implementation of the Yamoussoukro Declaration (CCSDY), as well as the annual meeting of the Council of Ministers of Civil Aviation in charge of monitoring the implementation of that Declaration. The CCSDY and the Council of Ministers last met on 29 November to 1 December 2004 in Libreville. The coordination effort will intensify during the Programme joint supervision mission.
5.8.2 Ministries of Finance or Planning in each WCA country will be responsible for coordination. In addition, coordination in the transport sector will be conducted through mid- term review meetings within the framework of transport sector programmes (TSP). REC- level coordination will be through two annual meetings of the COSCAP Programme Steering Committee and the Follow-up Committee on the Implementation of the Yamoussoukro Declaration (CCSDY), as well as the annual meeting of the Council of Ministers of Civil Aviation in charge of monitoring the implementation of that Declaration. The coordination effort will intensify during the Programme joint supervision mission.
5.8.3 Pursuant to the Memorandum of Understanding with the ADB, the World Bank plans to conduct a three-phase operation on the national air safety and safety components. The first phase (to start simultaneously with the COSCAP Programme) will concentrate on six WCA countries (Burkina Faso, Cote d’Ivoire, Mali, Gambia, Guinea and Cameroon) at an estimated cost of USD 38.11 million. Seventeen per cent (17%) of that amount (USD 6.37 million) will be set aside for the air safety component, while the remaining 73% (i.e. USD 31.74) will fund the air safety component. The other two phases will kick in immediately after lessons on the implementation of the first phase would have been drawn. The World Bank intervention will include: (i) studies on the restructuring of DCAs to render them autonomous, on putting in place new civil aviation codes, on specific civil aviation safety and training needs, with a view to improving civil aviation safety and security; (ii) DCA capacity building through training, procurement of technical manuals and documentation, computer and communications hardware; and (iii) rehabilitation of terminals and runways especially in Douala, rehabilitation of fences, procurement of baggage control and detection systems and rehabilitation of air navigation equipment.
6. PROGRAMME SUSTAINABILITY AND RISKS
6.1 Recurrent Expenditure 6.1.1 The recurrent expenditure includes operating expenses on training and retraining courses, travel for inspection and monitoring, salaries and emoluments of regional inspectors as needed, taking into account the results of audits conducted by ICAO and the FAA, as well as the status of ICAO Standard on Recommended Practice. Regional agencies should regularly factor these expenditures into their budget. 35
6.1.2 Income from air safety supervision services (delivery and renewal of licenses, permits and certificates) could be used in financing the recurrent expenditure. Cost recovery from users (flight staff, airlines, aircraft operators, airports and air navigation services) will take the form of airport charges to ensure the economic viability of the regional agencies. The financing issue will be discussed in-depth by the study on establishment of the regional agencies.
6.1.3 Technical regulations on community civil aviation safety will be reviewed periodically on the basis of the ICAO Standard on Recommended Practices. In that regard, a workshop for civil aviation experts from member States of each REC will review the necessary amendments. Subsequently, the revision will be validated and adopted in line with procedures appropriate and specific to each REC. 6.2 Programme Sustainability 6.2.1 The programme is sustainable, thanks to: (i) the planned transition towards the establishment of three Regional Aviation Safety Agencies; (ii) the autonomisation of DCAs to strengthen their regulatory capacity; (iii) the establishment of Air Transport Units within the ECOWAS Executive Secretariat, the CEMAC Executive Secretariat and the WEUMU Commission; and (iv) the transfer by COSCAP Programme coordinators of knowledge on management and contracting to the RECs to enable the RECs to successfully conduct such activities during future operations.
6.2.2 To reach these goals, the RECs, in agreement with member States, undertook to set up three Regional Agencies right from the programme’s first year and select countries to host the programme and the headquarters of the regional agencies (Lagos, Nigeria for COSCAP- BAG, Abidjan, Cote d’Ivoire for WAEMU) prior to the start of programme activities. The CEMAC headquarters will be chosen prior to programme start-up. These arrangements should also offer career guarantees within the regional agencies to qualified regional inspectors. The establishment of the regional agencies, the selection of the headquarters of regional agencies and an undertaking by RECs to implement the recommendations of the organizational study are all conditions for awarding the grant.
6.2.3 Even after establishing the regional agencies, several air safety supervision components will be handled by the DCAs on the basis of the subsidiarity and efficiency principle. Therefore, air safety supervision would be ineffective without the autonomisation of the DCAs. However, since such autonomisation is still partial in the RECs, it is recommended that rapid provisions be made to extend effective legal and financial autonomy to those DCAs already granted autonomous status. Countries without DCAs should set them up and grant them appropriate autonomy. The undertaking by the 23 countries participating in this Programme to establish autonomous Civil Aviation Authorities is a condition for awarding the grant. 6.2.4 The training of regional inspectors, DCA national inspectors and REC staff under the Programme will help to strengthen the capacity of parties to supervise air safety and sustain the programme objectives.
6.3 Major Risks and Mitigating Measures 6.3.1 The risks facing the COSCAP Programme include: (i) the complexity of the Programme and the large number of stakeholders; (ii) the capacity of the RECs to monitor the 36
Programme; (iii) the weaknesses in civil aviation safety technical regulations, the inadequate capacity of DCAs faced with the proliferation of airlines operating poorly maintained aircraft and hardly willing to respect ICAO standards and practices; and (iv) discordant national aeronautic policies.
6.3.2 The Programme implementation could also be partially or totally suspended, particularly on account of inadequate financial and human resources or the resignation of trained and experienced regional inspectors – hence the above institutional and financial arrangements (coordinators of the COSCAP Programme, ICAO assistance to the client, opening of counterpart contribution bank accounts, to be replenished as necessary after part of the contribution to be determined would have been disbursed). To limit the risk regarding the possible departure of the regional inspectors, industry-level salaries and an appealing career profile will be proposed to them prior to the start-up of the regional agencies.
6.3.3 The risk pertaining to the complexity of the Programme, the multiplicity of stakeholders and donors, as well as the inadequate capacity of the ECOWAS Executive Secretariat and the BAG Secretariat will be mitigated thanks to coordination by the Programme steering committees (3 Management Committees) that will be set up, the mechanism delegating supervision to ICAO, strengthening of the capacity of the RECs (Air Transport Units and COSCAP Programme Coordinators), preparing and adopting community-wide regulations on civil aviation safety and autonomising the DCAs.
7. PROGRAMME BENEFITS
7.1 Economic Justification 7.1.1 The COSCAP Programme is seen as the fastest and least expensive solution that would enable WCA States to strengthen their air safety supervision capacity in accordance with ICAO Standards and Recommended Practices. Using as reference the successful implementation of the COSCAP Programme among seven Asian member States (Bangladesh, Bhutan, India, Maldives, Nepal, Pakistan and Sri Lanka), the calculation of the average cost for the States compared to their contribution gives a ratio of between 2.8 to 7.3 (5.4 average for all States). WCA member States may expect a comparable ratio. Moreover, the capacity building cost is lower for each individual country, compared to other options requiring the country to procure high level safety supervision services on its own.
7.1.2 Thanks to the Programme, the establishment of an air safety supervision mechanism in line with ICAO Standards and Recommended Practices will help generate resources from services offered by the trained and experienced inspectors who will run the regional safety supervision Agencies. Such agencies could be self-financing through cost-recovery system for services rendered (delivery and renewal of pilot licences, airline operation permits, air worthiness certificates, deliverance of licenses to maintenance centres, inspection and control of air transport operators and service providers, etc.). Thus, based on the security supervision indicators given as annex to this report and the assumption that only 25% of all potential services will be conducted, a profit margin of nearly USD 5 million could be generated from the first year of commissioning the WCA regional agencies. The output would be similar should these separate services be replaced with an air safety fee of USD 4 per boarded passenger. In addition to these benefits, air traffic accidents will be cut by half (50%) by 2010, going by the experience of similar programmes implemented in Asia, Latin America and the Pacific where accidents dropped by 25% to 30% in three years. The 50% 37 improvement in the accident rate in WCA will help to save 236 lives and prevent the loss of 2 large and medium-carrier aircraft (second hand, estimated at a gain of at least USD 60 million). The establishment of regional aircraft maintenance centres whose feasibility study is planned under the Programme, will play a part in reducing the cost of aircraft maintenance due to economies of scale and the proximity of facilities, in addition to creating jobs. Therefore, the Programme is economically justified.
7.1.3 Within three years, the COSCAP Programme will certainly bring a value added to the air transport economy of WCA member States by: (i) opening up access and increasing trade: obtain FAA Category A1 to exploit traffic rights to the United States (10 WCA countries hold unexploited air services agreements with the US) and gain access to the American market which accounts for 40% of world air traffic. It is projected that at least 10 countries could obtain such authorization by 2010. In return, new foreign airlines, especially the “American Majors” (Delta Airlines, Continental, American, United) and the European “low-cost” flyers and “tour operators” could service the WCA zone, particularly bringing in tourists (as has been the experience of South-East Asian, Pacific and Latin American countries); (ii) creating synergy between air transport growth and socio-economic development: air traffic is expected to generate a snowball effect (15% to 20% increase as in the sixties), a broad expansion in passenger, freight and postal traffic, especially the massive influx of tourists (hence considerable foreign exchange earnings). With increased traffic, operating costs (insurance, maintenance, aviation fuel, etc.) will fall; rising competition among carriers could lead to lower air fares. In sum, the expected air transport growth will have a multiplier effect on trade, the hotel industry, tourism development, all service sectors and the agricultural sector, thus contributing to poverty reduction.
7.1.4 By pooling air safety resources, WCA member States would find adequate solution to the thorny issue of inadequate finances. Conducted on a regional basis, the COSCAP Programme has received solid backing from donors and development partners (the World Bank, IFFAS, the EU, French Cooperation, the FAA and the US-TDA) through extensive financial mobilization. Most of the Programme originates from the strong mobilization of donors, development partners and sector industries (nearly 77.5% of UA 13.5 million, compared to 22.5% for REC member States).
7.1.5 Furthermore, with significant air safety improvement, the private sector will confidently invest in emerging opportunities in the air sector. The private sector has traditionally participated in managing airports (AERIA, ADL, ADC, etc.), ground assistance (SHS, AHS) and catering (Abidjan Catering, Cambatani Group in Central Africa). Following the Yamoussoukro Declaration which increases the liberalization of intra-African traffic rights and with airline operation becoming competitive and profitable, international private investors have bought over a number of African airlines: Air Burkina by the Agha Khan Group, Air Senegal International by Royal Air Maroc, Air Ivoire by Air France, Air Togo and Afrique Airlines by Eagle Aviation and the imminent establishment of Equatorian Airlines in Central Africa in partnership with Royal Air Maroc. Consequently, it is expected that with the COSCAP Programme, the private sector, in general, and the African private sector, in particular, will become dynamic: (i) taking up shares, setting up and buying out airlines (regional, regular or charter, passenger or cargo); and (ii) investing in service delivery companies (freight, handling, catering, aviation fuel, duty free shops, maintenance centres, flights schools, ticketing, marketing, etc.). 38
7.2 Social Impact Analysis 7.2.1 The COSCAP Programme enables WCA member States to jointly fulfil their contractual commitments under the Chicago Convention and vis-à-vis ICAO. Each of the 23 member States will obtain the rapid enhancement of its air safety supervision capacity (staff training and qualification of safety inspectors) at least cost. Thus, apart from streamlining the technical regulations of civil aviation safety, the industry will boast highly qualified and skilled pilots, hostesses, stewards, mechanics and air controllers, airworthy and well- maintained aircraft, more secure and FAA-certified airports, compliance with overhead easements, reduction in air accidents for users and third parties, and as such a major advancement in air transport development. The establishment of a common high civil aviation safety level in the WCA zone will raise the credibility of member States within the global civil aviation community and strengthen their representativeness during bilateral and multilateral negotiations.
7.2.2 By receiving knowledge and technology transfer, civil aviation authorities will be able to further develop a culture of air transport safety and professionalism in the three regional agencies. Capacity building and autonomisation of the DCAs will be an indispensable asset, winning the three regional agencies recognition and acceptance by other certification and control authorities (FAA, EASA) with regard to audit, control, inspection of flight personnel, airworthiness, technical operation of aircraft and aerodrome certification.
7.2.3 The COSCAP Programme and the creation of the three regional agencies will offer employment opportunities for several years to youths and women. The resulting increase in income will have a positive impact on family living standards, principally those of children and women who are often the worst affected by poverty.
7.2.4 The COSAP Programme is highly integrating since WCA member States will pool their human, technical and financial resources together with a view to harmonizing their national regulations, strengthening the capacity of their DCAs and jointly conducting civil aviation audits, control and inspection. The community experience will last two to three years, and will be consolidated with the establishment of three Regional Civil Aviation Security and Safety Agencies. These new institutions will contribute to consolidating regional integration within ECOWAS, CEMAC and WAEMU. The COSCAP Programme will facilitate the free movement of persons, goods and services, and the advent of a safe, orderly and profitable air transport system in Africa that meets international standards as set out by ICAO.
8. CONCLUSIONS AND RECOMMENDATIONS
8.1 Conclusions 8.1.1 The execution of the COSCAP Programme and progress in implementing the Yamoussoukro Declaration in West and Central Africa will contribute to strengthening regional cooperation and economic integration. It will help to reduce the number of air accidents attributable to human and technical error, as well as play a role in effectively preventing illegal acts directed at civil aviation. 39
8.1.2 The implementation of the Programme will strengthen CEMAC, ECOWAS AND WAEMU capacity to plan and monitor NEPAD infrastructure programmes. The Programme will contribute to reducing poverty, training air transport regulators, operators and service providers.
8.1.3 ICAO conducted a comprehensive review of the Programme, having successfully experimented similar ones in other world regions (Asia, Latin America and the Pacific). The Programme will have a positive impact on the environment since it will contribute to reducing aircraft noise pollution by strictly controlling aircraft not in compliance with the noise standards as set forth in Chapters II and II under ICAO’s Annex 16. It will play a part in limiting harmful green house gas emissions and promoting compliance with overhead easements. The regional agencies set up by WCA member States to supervise air safety will guarantee the sustainability of investments. 8.2 Recommendations 8.2.1 In the light of the foregoing, it is recommended that the ADF award a grant not exceeding UA 4.60 million to the three RECs, broken down as follows: UA 1.58 million to the CEMAC Executive Secretariat, UA 1.72 million to the ECOWAS Executive Secretariat for the Banjul Accord Group Agreement and UA 1.30 million to the WAEMU Commission. The grant shall be subject to the following conditions as contained in the Grant Protocol of Agreement:
A. Conditions Precedent to Entry into Force 8.2.2 The Grant Protocol of Agreement shall enter into force immediately following its signing by the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat, the WAEMU Commission and the ADF;
B. Conditions Precedent to First Disbursement 8.2.3 The grant shall only be disbursed after fulfilment of the following conditions by the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat and the WAEMU Commission: (i) Show to the ADF proof of setting aside the budget for REC (ECOWAS, BAG, WAEMU and CEMAC) contribution to financing the Programme during the first year of implementation according to the expenditure schedule (paragraph 4.9.2); (ii) Show to the Fund proof of the Programme donors signing an agreement with the Donees to finance the Programme, or a written commitment to participate in its financing (paragraph 4.9.2); (iii) Undertake to set up within the Directorate of Infrastructure and Industry of the ECOWAS Executive Secretariat, the Directorate of Transport and Telecommunications of the CEMAC Executive Secretariat and the Directorate of Transport and Telecommunications of the WAEMU Commission an Air Transport Unit with a minimum of 3 staff (paragraph 5.2.1) ; (iv) Show to the Fund proof off opening an account at the central bank (Central Bank of Nigeria, BCEAO, BCEAC) and another account in a leading commercial bank into which the working capital from the Fund will be paid 40
(paragraph 5.5.1); (v) Show proof of establishing the Regional Air Safety Agencies, selecting the countries to host the COSCAP project headquarters and the headquarters of each Regional Agency (paragraph 6.2.2); (vi) Undertake to implement the recommendations of the organizational and financial autonomisation studies on the Regional Aviation Safety Agencies (paragraph 6.2.2); (vii) Undertake to grant legal, financial and management autonomy to the DCAs (paragraph 6.2.3).
C. Other Conditions 8.2.4 In order to avoid the suspension of disbursements on the grant during the Programme implementation phase, the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat and the WAEMU Commission shall fulfil the following conditions: (i) Before 1 July of each year with effect from 2006, show to the Fund proof of mobilizing the counterpart financing as set out on the Programme expenditure schedule (paragraph 4.9.2); (ii) Before 30 June 2007, show to the Fund proof of establishing the Air Transport Unit within the Directorate of Infrastructure and Industry, the ECOWAS Executive Secretariat, the Executive Secretariat’s Directorate of Transport and Telecommunications and the WAEMU Commission’s Directorate of Transport and Telecommunications, each with a minimum of three staff (paragraph 5.2.1); (iii) Forward the agreements signed with ICAO to the ADF (paragraph 5.2.4). (iv) Regularly prepare and forward the Programme’s quarterly progress reports (paragraph 5.6.1); (v) Show to the ADF proof of making provision for setting up the regional agencies and designating their respective headquarters (paragraph 6.2.2) ; (vi) Before 30 June 2006, show to the Fund proof of validating and adopting the recommendations of the organizational and financial autonomisation studies on the Regional Air Safety Agencies (paragraph 6.2.2); (vii) Prepare and adopt joint technical regulations on civil aviation safety (paragraph 6.3.3); and (viii) Show proof of the autonomisation of the DCAs not later than 31 December 2007 (paragraph 6.2.3).
Annex 1
CEMAC/ECOWAS/WAEMU: COSCAP PROGRAMME MAP OF THE PROGRAMME ZONE
This map was provided by the African Development Bank exclusively for the use of the readers of the report to which it is attached. The names used and the borders shown do not imply on the part of the Bank and its members any judgment concerning the legal status of a territory nor any approval or acceptance of these borders.
Annex 2
CEMAC/ECOWAS/WAEMU – COSCAP PROGRAMME IMPLEMENTATION AGENCY
WAEMU Commission CEMAC Executive Secretariat ECOWAS Executive Secretariat Council of Ministers in Charge (ES/ECOWAS) on Behalf of the of Civil Aviation in West Banjul Agreement Group & Central Africa (CMACAOC)
Department of Community, Department of Transport Directorate of Infrastructure Yamoussoukro Declaration Follow- Physical Development, Transport and and Telecommunications & Industries and Coordination Telecommunications Infrastructure (DTT) (DII) (CSCDY) (DATC)
STEERING COMMITTEE STEERING COMMITTEE STEEERING COMMITTEE COSCAP-CEMAC COSCAP-CEMAC COSCAP-CEMAC (SC/COSCAP-CEMAC) (SC/COSCAP-CEMAC) (SC/COSCAP-CEMAC)
Directorate of Transport and Telecommunications (DTT)
Air Transport Unit Air Transport Unit Air Transport Unit CSCDY Secretariat
Coordinato Coordinato Coordinato COSCAP-UEMOA COSCAP-CEMAC COSCAP-GAB
International Civil Aviation Organizatio (OACI)
COSCAP-UEMOA Agency COSCAP-CEMAC Agency COSCAP-BAG Agency 5 International Experts 5 International Experts 4 International Experts 6 Regional Inspectors and 6 Regional Inspectors & 5 Regional Experts & 2 Support 2 Support 2 Support
Annex 3 Page 1 of 1 CEMAC/ECOWAS/WAEMU: COSCAP PROGRAMME PROVISIONAL LIST OF GOODS AND SERVICES FOR THE PROGRAMME
In FCFA Million In UA Million In UA Million Others WAEMU/ FR. COOP., (Airbus, ECOWAS/ Categories For. Exc. L.C. Total For. Exc. L.C. Total ADF Grant CEMAC MAURITA GOVs EU. IFFAS Boeing, BAG NIA FAA. etc.) 1- Goods - Vehicles 49.32 49.32 0.06 0.06 0.02 0.02 0,02 - Computer/photocopying and communications hardware 143.51 35.88 179.39 0.18 0.05 0.23 0.23 - Office furniture 36.00 36.00 0.05 0.05 0.02 0.02 0,02 2- Works - CEMAC Agency headquarters/ Sao Tome 200.00 200.00 0.25 0.25 0,25 - GDB Agency headquarters 200.00 200.00 0.25 0.25 0,25 - WAEMU Agency headquarters/Mauritania 200.00 200.00 0.25 0.25 0,25 3- Consultancy Services - Technical regulations harmonization studies 139.76 34.94 174.70 0.18 0.04 0.22 0.22 0.27 - Regional Agency organizational and operational studies 168.00 42.00 210.00 0.21 0.05 0.27 - International inspectors 1 594.62 718.09 2 312.72 2.02 0.91 2.92 1.39 1.24 0.11 0.08 0,10 - Regional inspectors 869.56 457.79 1 327.35 1.10 0.58 1.68 1.51 0.07 0.04 0,06 - Support staff 78.37 29.29 107.66 0.10 0.04 0.14 0.14 - COSCAP Programme coordinators 261.60 261.60 0.33 0.33 0.10 0.10 0,12 - Technical assistance expert in civil aviation (CCSDY) 76.85 76.85 0.10 0.10 0.04 0.06 - Creation of a data base on security and safety 63.70 15.93 79.63 0.08 0.02 0.10 0.10 - Feasibility study on a regional maintenance centre 62.60 15.65 78.25 0.08 0.02 0.10 0.10 - Study on the implementation of the YD 34.54 34.54 0.04 0.04 0.02 0.03 - Finance and account auditing 64.00 16.00 80.00 0.08 0.02 0.10 0.10 4 - Miscellaneous - Training 1 053.23 232.75 1 285.99 1.33 0.29 1.63 0.58 0.35 0.61 0.03 0.03 0,03 - Meetings/Workshops/Sensitization 306.66 147.36 454.02 0.39 0.19 0.57 0.48 0.04 0.05 - Activities of Programme Coordinators 29.09 173.71 202.80 0.04 0.22 0.26 0.05 0.07 0.07 0,07 - Per diem, air tickets, Activities of international and regional 0.50 0.64 0.03 0.05 0,05 experts 686.77 318.08 1 004.85 0.87 0.40 1.27 - Activities of YD Monitoring Committee 4.32 1.08 5.40 0.01 0.00 0.01 0.01 - Activities of Programme Steering Committees 269.71 269.71 0.34 0.34 0.11 0.11 0,13 - Reports and others 26.45 8.25 34.70 0.03 0.01 0.04 0.02 0.02 - ICAO administrative expenses 256.87 239.46 496.33 0.32 0.30 0.63 0.07 0.37 0.06 0.06 0,06 Base cost 5 547.50 3 814.28 9 361.78 7.01 4.82 11.83 4.12 4.27 0.61 0.72 0.71 0,65 0,76 Physical contingencies 277.48 190.61 468.09 0.35 0.24 0.59 0.21 0.21 0.03 0.04 0.04 0,03 0,04 Inflation 366.91 252.05 618.96 0.46 0.32 0.78 0.27 0.28 0.04 0.05 0.05 0,04 0,05 Total cost 6 191.89 4 256.94 10 448.83 7.83 5.38 13.21 4.60 4.76 0.68 0.80 0.79 0,72 0,85
Annex 4
Implementation Schedule
Activity 1. PRELIMINARY ACTIVITIES
Grant approval Loan and grant signature Publication of the general information note 2. OUTFITTING OF PREMISES Allocation of premises Premises outfitting works 4. REGULATIONS HARMONIZ. & ORG. STUDIES
Preparation and approval of TOR, BD & short lists Bid invitation Bid submission Bid analysis and contract signature Studies start-up Approval of reports of studies 5. OTHER STUDIES
Preparation and approval of TOR, BD & short lists Bid invitation Bid submission Bid analysis and contract signature Studies start-up Approval of reports of studies
6. PROGRAMME AUDIT Approval of BD and the short list for studies Bid invitation Bid submission, analysis & contract signature Implementation of financial audit 7. CAPACITY BUILDING 7.1 Recruitment of Programme Coordinators Publication of the procurement notices Preparation & approval of the BD & the shortlist Bid invitation Bid analysis and contract signature Provision of service by coordinators
7.2 Recruitment of the Director, Liberalization Project Publication of the procurement notice Preparation and approval of the BD and shortlist Bid invitation Bid analysis and contract signature Provision of service by the Project Director 7.3 Support to the Executing Agency Price request & procurement of supplies and equipment Training Seminars & workshops Start of programme monitoring End of programme monitoring
Annex 5 Page 1 of 1
COUNTRIES: WEST AND CENTRAL AFRICAN STATES ICAO PROJECT: CEMAC AND SAO TOME N° RAF/03/801, BAG N° RAF/02/806 and WAEMU + Mauritania: N° RAF/01/807 AERIAL SECURITY AND SAFETY SUPERVISION COOPERATION PROGRAMME IN WEST AND CENTRAL AFRICAN STATES (COSCAP) COST DESCRIPTION CALCULATED BY ICAO
CEMAC+Sao Tome ECOWAS/BAG WAEMU+Mauritania T0TAL p/m USD p/m USD p/m USD p/m USD 10 PROJECT STAFF 11 INTERNATIONAL EXPERTS 11.01 Exp. tech. oper./SC 36 573100 24 441 800 24 437400 84 1 452 300 11.02 Exp. airworthiness 36 546700 24 434 900 24 437400 84 1 419 000 11.03 Exp. legislation 12 207000 12 235 100 6 91000 30 533 100 11.04 Exp. staff licensing 6 89700 6 98 700 6 87600 18 276 000 11.05 Exp. aerodrome safety and certification 12 207900 0 0 12 247200 24 455 100 11.97 Consultants 0 0 150000 0 150 000 11.99 Sub-total 102 1 624 400 66 1 210 500 72 1 450 600 240 4 285 500 13 ADMINISTRATIVE SUPPORT STAFF 0 0 13.01 Secretary 36 45800 24 29 500 24 38 400 84 113 700 13.02 Driver/messenger 36 25000 48 42 800 24 18 000 108 85 800 13.99 Sub-total 72 70 800 72 72 300 48 56 400 192 199 500 15 LOCAL MISSION EXPENSES 0 401900 0 630 000 372 600 0 1 404 500 16 INTERNATIONAL MISSION EXPENSES 0 45000 0 40 000 45 000 0 130 000 17 REGIONAL PROFESSIONALS 0 0 0 17.01 Regional Inspector Op. I 36 139900 24 111 700 24 112 600 84 364 200 17.02 Regional Inspector Op. II 36 139300 24 108 400 24 112 600 84 360 300 17.03 Regional Inspector Navig. I 36 139300 24 99 000 24 112 600 84 350 900 17.04 Regional Inspector Navig. I 36 139400 24 99 000 24 112 600 84 351 000 17.05 Regional Aerodrome Safety Certification Inspector 36 139500 24 105 400 24 112 600 84 357 500 17.06 Staff Licensing Inspector 24 112600 0 0 24 112 600 48 225 200 17.07 Project Manager 36 270300 0 0 24 180 200 60 450 500 17.99 Sub-total 240 1 080 300 120 523 500 168 855 800 528 2 459 600 19 CHAPTER TOTAL 0 3 222 400 0 2 476 300 0 2 780 400 0 8 479 100 20 SUB-CONTRACTING 0 0 21.01 0 45000 0 0 0 45 000 0 90 000 29 CHAPTER TOTAL 45 000 0 0 0 45 000 0 90 000 30 TRAINING 00 31.01 Scholarships 0 400000 0 410 000 400 000 0 1 210 000 31.02 Coverage by Airbus/Boeing/FAA, etc. 0 300000 0 245 000 350 000 0 895 000 39 CHAPTER TOTAL 700 000 655 000 750 000 0 2 105 000 40 EQUIPMENT 0 0 45.01 Consumables 0 41000 0 3 000 41 000 0 85 000 45.02 Non-consumables 0 60000 0 80 000 60 000 0 200 000 45.03 Team maintenance and operation 0 9000 0 8 500 206 000 0 223 500 49 CHAPTER TOTAL 110 000 0 91 500 0 307 000 0 508 500 50 MISCELLANEOUS 0 0 52.01 Report expenses 0 6000 0 7 000 6 000 0 19 000 53.01 Miscellaneous 0 25500 0 25 500 19 800 0 70 800 55.01 Administrative expenses 0 302600 0 261 200 355 900 0 919 700 59 CHAPTER TOTAL 334 100 0 293 700 0 381 700 0 1 009 500 4 411 500 0 3 516 500 0 4 264 100 0 12 192 100 99 PROGRAMME TOTAL
Annex 6 Page 1 of 1 CEMAC/ECOWAS/WAEMU: COSCAP PROGRAMME ADF GRANT BREAKDOWN BY CATEGORY AND REC
Categories TOTAL ADF GRANT GRANT TO CEMAC GRANT TO ECOWAS GRANT TO WAEMU FE LC Total FE LC Total FE LC Total FE LC Total B – Goods - Vehicles - Computer/photocopying and communications hardware 0.18 0.05 0.23 0.06 0.01 0.07 0.08 0.02 0.10 0.05 0.01 0.06 - Office furniture A - Works - CEMAC Agency Headquarters/ Sao Tome - GDB Agency Headquarters - WAEMU Agency Headquarters/Mauritania C – Consultancy Services - Technical regulations harmonization studies 0.18 0.04 0.22 0.06 0.01 0.07 0.06 0.01 0.07 0.06 0.01 0.07 - Regional Agency organizational and operational studies 0.21 0.05 0.27 0.07 0.02 0.09 0.07 0.02 0.09 0.07 0.02 0.09 - International inspectors 1.12 0.28 1.39 0.42 0.11 0.53 0.32 0.08 0.39 0.38 0.09 0.47 - Regional inspectors - Support staff - COSCAP Programme Coordinators - Technical assistance expert in civil aviation (CCSDY) 0.00 0.00 0.00 0.01 0.00 0.01 - Creation of a database on security and safety 0.08 0.02 0.10 0.03 0.01 0.04 0.05 0.01 0.06 - Feasibility study on a regional maintenance centre 0.08 0.02 0.10 0.08 0.02 0.10 - YD implementation study - Finance and account auditing 0.08 0.02 0.10 0.027 0.007 0.034 0.027 0.007 0.034 0.027 0.007 0.034 D - Miscellaneous - Training 0.47 0.12 0.58 0.15 0.04 0.19 0.16 0.04 0.20 0.15 0.04 0.19 - Meetings/workshops/sensitization 0.39 0.10 0.48 0.14 0.04 0.18 0.19 0.05 0.24 0.05 0.01 0.06 - Activities of Programme Coordinators 0.04 0.01 0.05 0.012 0.003 0.015 0.012 0.003 0.015 0.012 0.003 0.015 - Per diem, air tickets, Activities of international and regional experts 0.40 0.10 0.50 0.12 0.03 0.15 0.17 0.04 0.22 0.11 0.03 0.14 - Activities of YD Monitoring Committee 0.01 0.00 0.01 0.01 0.00 0.01 - Activities of Programme Steering Committee - Reports and others 0.017 0.004 0.021 0.006 0.001 0.007 0.006 0.001 0.007 0.006 0.001 0.007 - ICAO administrative expenses 0.06 0.01 0.07 0.02 0.01 0.03 0.02 0.00 0.02 0.02 0.00 0.02 Base cost 3.29 0.82 4.12 1.13 0.28 1.41 1.24 0.31 1.55 0.93 0.23 1.16 Physical contingencies 0.16 0.04 0.21 0.06 0.01 0.07 0.06 0.02 0.08 0.05 0.01 0.06 Inflation 0.22 0.05 0.27 0.08 0.02 0.10 0.08 0.02 0.10 0.06 0.02 0.08 Total 3.68 0.92 4.60 1.26 0.32 1.58 1.38 0.35 1.72 1.04 0.26 1.30 Annex 7 Page 1 of 1
CEMAC/ECOWAS/WAEMU: COSCAP PROGRAMME ADF GRANT FOR REC/ICAO AGREEMENTS
Categories GRANT TO CEMAC GRANT TO ECOWAS GRANT TO WAEMU TOTAL FE LC Total FE LC Total FE LC Total FE LC Total B - Goods - Vehicles - Computer/photocopying and communications hardware - Office furniture A - Works - CEMAC Agency Headquarters/Sao Tome - GDB Agency Headquarters - WAEMU Agency Headquarters/Mauritania C – Consultancy Services - Technical regulations harmonization studies
- Regional Agency organizational and operational studies - International Inspectors 0.42 0.11 0.53 0.32 0.08 0.39 0.38 0.09 0.47 1.12 0.28 1.39 - Regional Inspectors - Support staff - COSCAP Programme Coordinators - Technical assistance expert in civil aviation (CCSDY) - Creation of a database on security and safety - Feasibility study on a regional maintenance centre - YD implementation study - Finance and account auditing D - Miscellaneous - Training - Meetings/workshops/sensitization - Operation Programme Coordinators - Per diem, air tickets, activities of international and regional experts 0.12 0.03 0.15 0.17 0.04 0.22 0.11 0.03 0.14 0.40 0.10 0.50 - Activities of YD Monitoring Committee - Activities of Programme Steering Committee - Reports and others - ICAO administrative expenses 0.02 0.01 0.03 0.02 0.00 0.02 0.02 0.00 0.02 0.06 0.01 0.07 Base cost 0.56 0.14 0.70 0.51 0.13 0.63 0.51 0.13 0.63 1.57 0.39 1.96 Physical contingencies Inflation Total 0.56 0.14 0.70 0.51 0.13 0.63 0.51 0.13 0.63 1.57 0.39 1.96
Annex 8 Page 1 of 1 CEMAC/ECOWAS/WAEMU: COSCAP PROGRAMME LIST OF PROGRAMME IMPLEMENTATION DOCUMENTS
- Short-term Action Plan on NEPAD Infrastructure; - Joint Draft Air Transport Economic Regulation in West and Central Africa, November 2004; - Report on the Establishment of an Air Transport Development Financing Mechanism in WAEMU Member States, P. GANEMTORE, September 2003; - Draft Report on Granting Air Transport Operating Licenses and Regulations on Access to West and Central African Markets, FRESAIR-Frederik SORENSEN, April 2004; - Joint Air Transport Programme for WAEMU Member States; - Implementation of the Yamoussoukro Declaration on the Liberalization of Access to West and Central Africa Air Transport Markets, 4th Meeting of the Executive Bureau of the Coordination and Monitoring Committee (conceptual document on the project to strengthen the mechanism for supervising air safety and security in the CEMAC and ECOWAS region, Bamako, 4 September 2004); - Implementation of the Yamoussoukro Declaration on the Liberalization of Air Transport in West and Central Africa, Country Assessment Report (Benin, Ghana, Guinea, Mali, Nigeria, Senegal and Togo), Mr. Mam JALLOW, ECOWAS, May 2004; - Banjul Accord Group Agreement; - Decision to Implement the Yamoussoukro Declaration on the Liberalization of Access to the African Air Transport Market, United Nations Social and Economic Council, 1999; - International Civil Aviation Convention signed in Chicago on 7/12/1944; - NEPAD Short-term Action Plan on Infrastructure; - Impact Study on Air Transport Liberalization in West and Central Africa, Joint ADB/OAU/ECA Secretariat, October 2001; - Explanatory Memorandum on the Draft Air Transport Regulation Regarding the Implementation of Rules of Competition, AST Legal Consultancy, May 2004; - Draft Document on Aerial Security Supervision Cooperation with the West African Economic and Monetary Union (WAEMU) States, ICAO; - Draft Report on the Joint WAEMU Civil Aviation and Air Transport Sector Policy, Taeib and Ganemtore, ICAO, November 2000; - Assessment Study on the Status of Security Supervision and Proposal of a Regional Security Supervision Mechanism for WAEMU member States, André PEREZ, 1999; - Diagnostic Report on the Supervision of Civil Aviation Security in CEMAC member States and Sao Tome and Principe, Paul-Antoine Marie Ganemtore, Consultant, July 2004; - Evaluation of Implementation of the Yamoussoukro Declaration within CEMAC: the Experience of Four Countries (Cameroon, Gabon, CAR and Congo) – Economic Commission for Africa, April 2004; - Draft Document on the Aerial Security Supervision Cooperation Programme in the Central African Economic and Monetary Community (CEMAC) States and Sao Tome and Principe (COSCAP), ICAO;
- January to November 2004 activity report of the ECOWAS/CEMAC Project Secretariat on the status of implementation of the Yamoussoukro Declaration on the Liberalization of Air Transport in West and Central Africa, Libreville, 29 December 2004; - Final Communiqué of the Third Council of Ministers for the implementation of the Yamoussoukro Declaration on the Liberalization of Air Transport in West and Central Africa, Libreville, 2 December 2004; - Final report of experts on the Third Council of Ministers for the implementation of the Yamoussoukro Declaration on the Liberalization of Air Transport in West and Central Africa, Libreville (29 November to 1 December 2004), ECOWAS/CEMAC; - Draft Document on the Aerial Security Supervision Cooperation among Member States of the Banjul Accord Group (COSCAP-BAG), ICAO; - Final Report of Proceedings, Extraordinary Meeting of the Banjul Accord Group, Praia, 21 to 22 June 2004 - Air transport statistics
Annex 9 Page 1 of 5
CEMAC/ECOWAS/WAEMU: COSCAP PROGRAMME SUMMARY OF TERMS OF REFERENCE OF INTERNATIONAL EXPERTS AND REGIONAL INSPECTORS
1- INTERNATIONAL EXPERT IN TECHNICAL OPERATIONS/PRINCIPAL TECHNICAL ADVISOR 1.1 Qualification: the expert should have managerial or supervisory experience in a Civil Aviation Authority on tasks related to the preparation and implementation of rules and regulations, operations and procedures manuals on air transport inspection and certification. S/he should also be experienced in implementing multifaceted projects (including development project monitoring) and in writing reports. International experience, preferably in a developing country, will be an advantage. S/he should be cognizant with the legal responsibilities and administrative procedures associated with the issuance of documents that come under the jurisdiction of the State of registration and concern the supervision of technical operations. S/he should have considerable experience as a captain on a modern big jet airplane or substantial experience as a civil aviation inspector with specialization on modern big jet airplanes. S/he should have knowledge of the requirements of licensing systems, training and skills maintenance for flight and other technical operations staff. Knowledge of aircraft inspection and the requirements of airworthiness certification will be an asset. S/he should equally be experienced in the preparation, approval and utilization of operations manuals and other necessary flight documents, as well as in training and preparation of flight control programmes. S/he should have solid knowledge of ICAO’s Standards and Recommended Practices (SARP) and related documents. Mastery of French and demonstrated ability to prepare reports or similar documents. Solid knowledge of English is required. Initiative, tact, good judgment and readiness to maintain smooth relations.
1.2 Duties: S/he (i) coordinates and administers a regional aerial safety supervision cooperation project that uses regional resources to conduct certification and continuous surveillance; provides advice and training to staff from member authorities; (ii) serves as the regional forum for all security supervision issues, policies and procedures relating to the air transport certification and supervision; (iii) act as Secretary during meetings of the Project Steering Committee. S/he assists the Steering Committee in identifying and selecting candidates for the position of Regional Inspectors (technical operations) and Regional Airworthiness Inspectors; (iv) communicates with member authorities with regard to using national inspectors to supplement the project resources as the need may arise; (v) develops a detailed work programme covering the concepts, objectives, expected outcomes and activities contained in the project document; (vi) serves as a key member of the Steering Committee to meet targets, conduct activities and obtain results contained in the project document, and adjusts such objectives and activities to progress made by member authorities; (vii) develops a project administration manual containing the procedures and actions to take to obtain and use regional human resources to fill the inspection function, scheduled surveillance, audit transport companies in member States and meet additional demands for assistance in treating air safety-related issues; (viii) using recognized documents, develops a series of procedures manuals on air transport certification and inspection for use by Regional and National Operations Inspectors; (ix) with the support of Regional Operations Inspectors, assists States as the need may arise in adopting or adapting their procedures manuals; (x) assists the Air Regulations Expert to develop generic regulations to be used or adapted by the Participating States; (xi) assists States in their efforts to adopt or adapt their regulations; (xii) develops an annual certification/inspection plan for member States in line with activities approved by the Steering Committee; (xiii) conducts certification and surveillance for State Participants, including assistance in issuing operating specifications, staff certification, approval of operations manuals, preparation of crew training and control programmes, and scheduled air transport checks; (xiv) conducts at regular intervals accepted by member authorities, audit of their departments responsible for the security supervision component; (xv) offers on-the-job training to the Regional Operations Inspectors assigned to the project and to available National Inspectors, with a view to qualifying them to implement the full range of tasks associated with the supervision of technical operations; (xvi) directs workshops on the subject; liaises with such organizations as the FAA, the JAA, Transport Canada, the French DGAC, Airbus Industries, Boeing and other relevant institutions for aerial safety training or participation in workshops or other courses for the Regional and National Inspectors; (xvi) coordinates and makes the necessary arrangements during training sessions; (xviii) proposes a cost-sharing formula based on the needs of State departments for approval by the Steering Committee; (xix) participates and contributes to all studies aimed at creating a permanent regional security structure; (xx) assists in canvassing for resources by staying in contact with the Steering Committee and other potential financial partners; and (xxi) performs all other tasks relevant to the project, his/her area of specialization, as needed.
2- INTERNATIONAL AIRWORTHINESS EXPERT 2.1 Qualification: S/he should have university degree in aeronautics or equivalent professional qualification obtained in the course of more than fifteen years within organizations involved with airworthiness and major maintenance, and at least ten years of experience in aerial administration in a management or middle management Annex 9 Page 2 of 5 position managing airworthiness programmes, inspection, major checks and repairs, and means of reaching acceptable compliance. S/he should have relevant experience in the implementation of government procedures with regard to inspection or approval of the organization of accredited maintenance by an airline or in an accredited maintenance organization (AMO). S/he should have reasonable experience in the preparation, approval and utilization of maintenance manuals and other technical documents, and sound knowledge of ICAO’s Standards and Recommended Practices (SARP) and related documents. Other requirements include mastery of French, ability to prepare reports and similar documents and above average knowledge of English. S/he must demonstrate tact, sound judgment and good inter-personal relations.
2.2 Duties: under the supervision of the Expert in charge of technical operations and in cooperation with other experts and Regional Inspectors, s/he: (i) assists the Principal Technical Advisor in his/her general duties contributing to the preparation of a detailed work plan and annual plans in the field of airworthiness, covering the concepts, objectives, results and activities outlined in the project document; (ii) contributes to identifying and selecting candidates to be recruited as Regional Airworthiness Inspectors; (iii) develops a programme to supervise airworthiness maintenance at the request of member authorities, including the approval of airline maintenance programmes, issuance of airworthiness certificates and general surveillance of airworthiness-related activities; (iv) assists the Air Regulation Expert in developing generic regulations to be used or adapted as necessary; (v) using recognized documents, develops a policy manual on the supervision of airworthiness maintenance for use by Regional and National Airworthiness Inspectors; (vi) with the support of Regional Airworthiness Inspectors, assists States, as the need arises, to adapt or adopt their manuals to these policies; (vii) supports the Principal Technical Adviser in preparing a project administration manual containing procedures and conduct to follow to obtain and use regional human resources to fulfil the inspection function, conduct scheduled surveillance, audit airlines in member States and meet ad hoc demands for additional assistance in treating air safety-related issues; (viii) serves as a key member of the Steering Committee to meet targets, conduct activities and obtain results set forth in the project document, and adjusts such objectives and activities to progress made by member authorities; (ix) conducts certification and surveillance for member authorities; conducts at regular intervals accepted by member authorities, audit of their departments responsible for supervising airworthiness; (x) offers on-the-job training to the Regional Airworthiness Inspectors assigned to the project and to available National Inspectors, to qualify them to implement the full range of tasks associated with the supervision of airworthiness and supervise workshops in the subject; (xi) assists the Principal Technical Adviser (PTA) in his/her efforts to obtain training from such organizations as the FAA, the JAA, Transports Canada, the French DGAC, Airbus Industries, Boeing and other related institutions; (xii) provides assistance in preparing and implementing training sessions; (xiii) assists the PTA in developing a cost- sharing formula based on the needs of departments, for approval by the Steering Committee; and (xiv) participates and contributes to the study to set up a permanent regional security supervision structure, and carries out all other duties in his/her area of specialization related to the project as needed and as determined by the Principal Technical Advisor.
3- INTERNATIONAL EXPERT IN AIR LAW
3.1 Qualification: S/he should: (i) hold a university degree in law with specialization in air law and a minimum of five years’ practical experience in the field; (ii) be familiar with government procedures and practices relating to the establishment and administration of aeronautic legislation, the procedures and practices of the International Civil Aviation Administration, international air transport conventions, protocols and other international instruments, the Universal Safety Oversight Audit Programme (USOAP), preparation and negotiation of bilateral or multilateral agreements; (iii) have experience in reviewing and drafting legislation and regulations applicable to domestic and international air transport, and their application by States in such areas as: licensing and permits, the power to regulate air transport, aircraft ownership and registration, the responsibilities and commitments of airlines, the preparation of international treaties and convention ratification instruments; (iv) have a good knowledge of the legal particularities concerning the establishment of an inter-governmental organization and the latest developments in that field; (v) working experience in a developing country is desirable; (vi) good mastery of French and above average knowledge of English; demonstrate initiative, tact, sound judgment and good inter-personal relations.
3.2 Duties: under the supervision of the Director, Department of Technical Cooperation, the coordination of the Principal Technical Advisor and in cooperation with other experts and Regional Inspectors, against the background of the international obligations of members States and their bilateral agreements, s/he: (i) reviews the available information and prepares a status of the base legislation and existing policies on security supervision; (ii) identifies lapses and informs States thereon; (iii) advises States on legal and constitutional issues related to their base legislation; (iv) recommends and proposes amendment texts to the existing State base legislation and Annex 9 Page 3 of 5 regulations when necessary, to ensure that they cover all aspects treated under the Chicago Convention, especially those regarding the obligation on States to supervise safety; (v) using other examples based on existing financing systems in other regions of the world or even the sub-region, proposes forms of financing civil aviation regulatory activities and the planned post-project regional mechanism; (vi) recommends and proposes legislative texts enabling States to set up a financing system capable of sustaining project activities and the budget of civil aviation regulatory authorities; and (vii) performs all other duties demanded/required in his/her field, needed to attain the project objectives.
4- INTERNATIONAL EXPERT IN STAFF LICENSING
4.1 Qualifications: S/he should: (i) have not less than five years of experience in administering exams to flight staff and other aeronautic personnel, as well as in staff licensing procedures; flight staff experience desirable; (ii) have experience in supervising or managing a staff licensing department within a well established Government aeronautics agency, be familiar with the classification systems used for the issuance, renewal and maintenance of medical or skills validity; (iii) knowledge of ICAO’s Standards and Recommended Practices and recommended procedures for preparing a staff licensing system; knowledge of requirements with regard to the content of legal tools on staff licensing that States should implement; (iv) experience in preparing and implementing documents and instructions on staff licensing, e.g. a Staff Licensing Procedures Manual; (vi) mastery of French and demonstrated ability to prepare reports and similar documents; good knowledge of English is required. Experience in working in a developing country desirable; initiative, tact, sound judgment and good inter-personal relations.
4.2 Duties: under the supervision of the Director, Department of Technical Cooperation, the coordination of the Principal Technical Advisor and in cooperation with other experts and Regional Inspectors, against the background of the international obligations of members States and their bilateral agreements, s/he: (i) reviews the available information and prepares a status of the base legislation and existing policies on the zone covered on security supervision, especially with regard to provisions on staff licensing; (ii) reviews existing regulations and procedures, identifies lapses and informs States about their implications; (iii) assists States when necessary to prepare or amend their manuals, or harmonize their generic manuals; and (iv) perform all other duties necessary to attain project objectives.
5- INTERNATIONAL EXPERT IN AERODROME SECURITY AND CERTIFICATION
5.1 Qualifications: S/he should have: (i) university qualification, preferably in civil engineering, electrical engineering or transport engineering with a minimum of 15 years of experience in civil aviation, particularly in planning/design and/or construction or maintenance, or with a minimum of 15 years of experience in technical operations or air traffic control, provided the candidate has had the basic requisite aerodrome engineering training to conduct aerodrome inspection; (ii) a minimum of five years of experience as an Aerodrome Inspector and sound knowledge of Annex 14 and other related documents, including the aerodrome certification manual; (iii) experience in preparing and certifying training programmes and well structured working documents. Mastery of French and demonstrated ability to prepare reports or similar documents is a requirement; knowledge of English will be an advantage; (vi) capacity to take initiative, exercise tact and sound judgment, and maintain good inter-personal relations.
5.2 Duties: under the supervision of the Director, Department of Technical Cooperation, the coordination of the Principal Technical Adviser and in cooperation with other experts and regional inspectorates, s/he will: (i) prepare an adequate programme for aerodrome certification and inspection training workshops in line with the ICAO manual on aerodrome certification and, among others related documents, guidelines on aerodrome security regulations currently used in States where the aviation regulation system is well developed and which covers the regulatory aspects of aerodrome certification, regulations governing the certification of aerodromes and the aerodrome security management system; (ii) in coordination with the PTA, organize workshops in participating States on the basis of the programme drawn up and at the end of each workshop, send to the authorities of the major airport of each State Participant and the regulatory authorities specific details of each airport to put in the airport manual; (iii) during follow-up missions, review the data/information gathered by the authorities of the major airport and provide on-the-job training to staff of the airport on finalization of their aerodrome manual; assist the airport operator to prepare a formal request and during the same mission, assist the regulatory authorities to evaluate the certification request or, as the case may be, the delivery of conditional certification; (iv) guide the regulatory authorities in the certification approval or rejection/conditional certification process; (v) develop generic regulation on aerodrome security for use/adaptation by CEMAC member States; (vi) provide detailed recommendations to Annex 9 Page 4 of 5 member States on the adoption or adaptation of the generic regulations with a view to their promulgation; and (vii) perform all other duties in his/her field necessary for attaining the project objectives.
6- REGIONAL OPERATIONS INSPECTOR:
6.1 Qualifications: the candidate should have: (i) experience within the Department of Civil Aviation in one of the WCA States in the preparation and application of rules and regulations, operating manuals and procedures, inspection and certification; (ii) knowledge of the legal responsibilities and administrative procedures concerning the issuance of documents on air operations supervision by the State of registration; (ii) considerable experience in the administration of airworthiness, certification and inspection operations, major checks and repairs, the establishment of acceptable compliance resources within an administration at management level; (iii) relevant experience in implementing government procedures in connection with the inspection and approval of maintenance certification obtained from an airline or an Accredited Maintenance Organization (AMO); (iii) experience in the preparation, approval and utilization of maintenance manual and other related documents; (iv) solid knowledge of the ICAO Standards and Recommended Practices (SARP) and related documents; (v) mastery of French and demonstrated ability to prepare mission reports or similar documents; solid knowledge of English is required; (vi) considerable ability to prepare technical texts, readiness to take initiative, tact, sound judgment and good inter- personal relations.
6.2 Duties: under the direction of the Director, Department of Technical Cooperation and Coordination and the supervision of the Principal Technical Adviser/Operations Expert, the Air Regulations Expert and the Staff Licensing Expert, and in coordination with other Experts and Regional Inspectors, the Regional Operations Inspector participates proactively in the following activities: (i) develop generic regulations on technical operations for use/adaptation by WCA member States; (ii) prepare and issue specific recommendations to States with regard to practices and procedures applicable in technical operations and staff licensing fields; (iii) assist States in developing or modifying their regulations on technical operations and staff licensing; (iv) prepare generic procedures manuals for technical operations and staff licensing; (v) assist States in developing their technical operations and staff licensing procedures manuals; (vi) develop administrative procedures for surveillance and certification requests in States; (vii) develop annual checking programmes with the DGAC in each member State; (viii) assist States in surveillance and certification activities; (ix) assist and participate in seminars, workshops and training programmes organized within the project framework; and (x) perform all other duties necessary for attaining project objectives.
7- REGIONAL AIRWORTHINESS INSPECTOR
7.1 Qualifications: the candidate should have: (i) a university degree in aeronautic engineering or a diploma in aeronautic engineering with certification in technical maintenance or equivalent professional qualification, preferably in the maintenance of modern transport aircraft; (ii) experience in the administration of airworthiness, certification and inspection programmes, major checks and repairs, establishment of effective compliance resources within an administration at management level; (iii) experience in implementing government procedures in connection with the inspection or approval of certified maintenance organizations acquired from an airline or an Accredited Maintenance Organization (AMO); (iv) solid knowledge of the ICAO Standards and Recommended Practices (SARP) and related documents; (v) mastery of French and demonstrated ability to prepare mission reports or similar documents; sound knowledge of English is a requirement; (vi) considerable ability to prepare technical texts, capacity for initiative, tact, sound judgment and good inter-personal relations.
7.2 Duties : under the authority of the Director, Department of Technical Cooperation and Coordination and the supervision of the Principal Technical Advisor/Operations Expert, the Air Regulations Expert and the Staff Licensing Expert, and in coordination with other Experts and Regional Inspectors, the Regional Operations Inspector participates proactively in the following activities: (i) develop generic regulations on technical operations for use/adaptation by WCA member States; (ii) prepare and issue specific recommendations to States with regard to practices and procedures applicable to technical operations and staff licensing; (iii) assist States in developing or modifying their regulations on technical operations and staff licensing; (iv) prepare generic procedures manuals for technical operations and staff licensing; (v) assist States in developing their technical operations and staff licensing procedures manuals; (vi) develop administrative procedures for surveillance and certification requests in States; (vii) develop annual checking programmes with the DGAC in each member State; (viii) assist States in surveillance and certification activities; (ix) assist and participate in seminars, workshops and training programmes organized within Annex 9 Page 5 of 5 the project framework; and (x) perform all other tasks demanded/required in the field of specialization and necessary for attaining project objectives.
8- REGIONAL AERODROME SECURITY AND CERTIFICATION INSPECTOR
8.1 Qualifications: the candidate should have: (i) a university degree preferably in civil engineering, aerodrome engineering, electrical engineering or transport engineering; (ii) experience in civil aviation, preferably in the planning/design and/or construction or maintenance of airports (less than 10 years’ experience in airport operation, technical operation or air traffic control will also be acceptable provided the candidate received the required core aerodrome engineering training qualifying him/her to conduct aerodrome inspection); (iii) experience in the preparation, approval and utilization of aerodrome service manuals and other related documents; (iv) experience in implementing government procedures on aerodrome inspection; (v) solid knowledge of Annex 14 and other related documents, including the Aerodrome Certification Manual; (vi) mastery of French and demonstrated ability to prepare mission reports or similar documents; considerable ability in preparing technical texts. Solid knowledge of English is a requirement. Initiative, tact, sound judgment and good inter-personal relations.
8.2 Duties: under the authority of the Director, Department of Technical Cooperation and the coordination and supervision of the Principal Technical Advisor/Operations Expert, the Aerodrome Security and Certification Expert and in coordination with other experts and Regional Inspectors, the candidate will participate proactively in the following activities: (i) assist and participate in seminars, workshops and training programmes on aerodrome certification and inspection in compliance with the ICAO manual on aerodrome certification, organized within the project framework; (ii) prepare and provide specific recommendations to States in connection with aerodrome certification practices, procedures and regulations; (iii) assist the regulatory authorities in evaluating certification requests and conduct verification and inspection visits; (iv) assist the authorities of the major airport in each State to develop their aerodrome manual; (v) during follow-up missions, review data/information gathered by the authorities of the major airport and provide on-the-job training to airport staff on the finalization/review of their aerodrome manual; (vi) participate in developing generic regulations on aerodrome security; (vii) assist States in developing their airport certification procedures; (viii) develop administrative procedures for treating surveillance and certification requests in States, and annual surveillance programmes in consultation with member State DGACs; (ix) assist States in conducting airport surveillance and certification activities; and (x) perform all other duties requested/required in his/her field of specialization and necessary for attaining the project objectives.
9- REGIONAL LICENSING INSPECTOR
9.1. Qualifications: the candidate should have the following: (i) five years’ experience in administering tests to flight and other aeronautics staff and staff licensing issuance procedures; flight staff experience desirable; (ii) experience in supervising and managing staff licensing in a well-established government agency, familiarity with classification systems used for issuing, renewing and maintaining medical validity or competence; (iii) knowledge of the ICAO Standards and Recommended Practices (SARP) and procedures recommended for the establishment of a staff licensing system; knowledge of the content of legal tools that States should implement with regard to staff licensing; (iv) experience in preparing and implementing documents and directives on staff licensing, e.g. the Staff Licensing Procedures Manual; (v) experience in supervising or managing a staff licensing department within a well- established government agency, familiarity with the classification systems used in issuing, renewing and maintaining medical or skills validity; (vi) knowledge of the ICAO Standards and Recommended Practices (SARP) and recommended procedures for establishing a staff licensing system; (vii) sound knowledge of the content of legal tools that States should implement with regard to staff licensing; (viii) initiative, tact, sound judgment and good inter-personal relations; (ix) a minimum of five years’ experience in administering tests to flight and other aeronautics staff, as well as in staff licensing procedures; (x) experience as flight staff and work experience in a developing country is desirable; (xi) mastery of French or English (depending on the COSCAP Group), with demonstrated ability to prepare reports and similar documents in one of the languages; sound knowledge of the other language is required. 9.2. Duties: under the authority of the Director, Department of Technical Cooperation, the coordination of the Principal Technical Advisor and in cooperation with other experts and the Regional Inspectors, and considering the international obligations of member States and their bilateral agreements, the expert will be charged with: (i) reviewing available information and drawing up the status of current base legislation and policies with CEMAC with regard to security supervisions, especially staff licensing provisions; (ii) reviewing existing regulations and Annex 9 Page 6 of 5 procedures, identifying weaknesses and advising States on their implications; (iii) assisting States where necessary in preparing or amending their manuals or harmonizing them with the generic manuals; and (iv) performing all other functions necessary for attaining project objectives. Annex 10 Page 1 of 2
CEMAC/ECOWAS-BAG/WAEMU COSCAP PROGRAMME SUMMARY OF THE TERMS OF REFERENCE ON THE STUDY TO ESTABLISH THREE REGIONAL CIVIL AVIATION SECURITY AND SAFETY AGENCIES
Context: within the framework of implementing the 1999 Yamoussoukro Declaration on the liberalization of air transport markets in Africa, the Council of Ministers of Transport of the 23 States of West and Central Africa (WCA) on 28 February 2003 adopted an action plan comprising the implementation of a COSCAP Programme for air safety supervision that would take into account the component to strengthen civil aviation safety in three RECs (CEMAC/Sao Tome and Principe, BAG/ECOWAS and WAEMU/Mauritania). This approach is in line with ICAO recommendations and in the nature of ongoing experiences in several world sub-regions (South-East Asia, the Pacific, Latin America, EASA in the European Union, ACSA in COCESNA). So far, the status of implementation of the COSCAP project on air safety supervision by WCA member States is well advanced. Furthermore, action is underway to strengthen civil aviation safety in WCA. Given the relationship between civil aviation security and safety in strengthening air transport efficiency and with a view to avoiding the multiciplicity of identical institutions, West and Central African member States decided to establish one Regional Agency in each REC to oversee civil aviation safety and security. Within that context and following a request for financing, the African Development Bank decided to provide financial support to the COSCAP Programme and fund feasibility studies (operational, financial and technical) on the establishment of three Regional Agencies.
Objectives: the general objective is to have an efficient instrument that would sustainably strengthen civil aviation safety and security in line with the ICAO Standards and Recommended Practices. The Agency’s specific objectives include: (i) harmonizing and uniformising air safety technical regulations and national civil aviation safety programmes; (ii) strengthening air safety supervision and the capacity to prevent and respond to illegal acts against civil aviation; (iii) addressing the weaknesses highlighted by ICAO and FAA audits, and reducing air accidents resulting from human error and technical failures; and (iv) protecting passengers, crews, ground staff, ground third parties, aircraft, air transport installations and equipment from illegal acts against civil aviation (terrorism, sabotage, hostage taking, etc.).
Justification: since the 11 September 2001 terrorist attacks against the United States, ICAO member States have taken various measures to strengthen civil aviation safety and security. These measures urge each State signatory to the Chicago Convention to have up-to-date regulations, a competent administration equipped with sufficient human and material resources and a mechanism to audit and conduct systematic and compulsory inspection of all civil aviation activities. Any breach of ICAO standards and practices exposes the defaulting State to marginalization in the air transport industry. The following reasons justify the creation of the Agency: (i) the COSCAP Programme should be consolidated by sustainability guarantees, particularly necessary for retaining the regional inspectors who will be trained and certified; (ii) the rapid establishment of the Agency will help in the short term to reduce (at the level of several air transport partners: third party bilateral agreement co-signatory States, insurance, aircraft operators, users, etc.) the damaging consequences of the unilateral termination by Veritas of civil aircraft control and airworthiness agreements between it and West and Central African member States; (iii) the establishment of the Agency will also allow the fulfilment of conditionalities required by some donors; (iv) the institutionalization of the Agency appears to be the least costly and most rapid solution to enable WAEMU member States to meet their commitments under the Chicago Convention by complying with the ICAO Standards and Recommended Practices, especially as set forth in Annexes 1, 6, 8, 14 and 17; (v) the three Regional Agencies will contribute to lifting reservations on air safety and security of member States, improve the implementation of the Yamoussoukro Declaration by all African States concerned and facilitate the exploitation of air traffic rights with all countries of the world.
Mission of the Agencies: (i) sustainably guarantee and promote a safe, orderly and efficient air transport system in West and Central African States in line with the ICAO Standards and Recommended Practices; (ii) regulate and monitor civil aviation safety and security with a view to steadily strengthening air transport efficiency on the basis of the legal framework in each REC; (iii) assist each REC in preparing measures to take to raise and maintain a high level of safety and security, on the one hand, and provide it with technical, scientific and administrative support necessary for conducting its mission; (iv) contribute to increasing the capacity of Civil Aviation Authorities in member States by assisting them to meet their commitments under the Chicago Convention, especially their Annex 10 Page 2 of 2 safety and security regulation and control mission; (v) deliver, suspend or withdraw licenses and certificates on aeronautic staff licensing, airline licensing, aircraft technical operation and airworthiness, aerodrome certification, etc. on behalf of member States; (vi) train enough civil aviation safety and security inspectors and retain the regional inspectors needed by the Agency; (vii) have certified regional inspectors conduct systematic and compulsory safety and security audit, control and inspection on behalf of member States; (viii) organize crisis management simulations and exercises to maintain a high level of air transport safety and security; (ix) inform airlines, service providers and users about the importance of complying with the Agency and ICAO safety and security standards; and (x) maintain and develop international air cooperation with all civil aviation safety and security control and certification agencies, with a view to the mutual recognition of licenses and certificates issued.
Consultant’s profile and duties: the consultant should be a specialist in organizational studies, with experience in conducting similar studies and considerable knowledge of the air sub-sector. His/her duties will include: (i) preparing a draft text establishing the Regional Civil Aviation Safety and Security Agency containing (a) the reasons, areas of competence, objectives, operations (structures: General Management, Board of Directors, Chair of the Board of Directors, staff regulations, administrative and accounting procedures, financial arrangements, appeals and dispute settlement mechanism, specialized technical committees, etc.); (b) transitional arrangements: establishment and operation of the Management Committee in line with its regulations, status and duties of the Regional Coordinator, status of international and regional inspectors; and (c) final arrangements: start of Agency activities, amendments, withdrawal, abrogation, entry into force, signing of a Regulation or signing and ratification of a convention; (ii) presenting the status of aeronautic and non-aeronautic fees and taxes, identifying potential income generating sources for the Agency and proposing a sustainable financing mechanism; (iii) drawing from the experience of similar agencies in operation: ACSA within COCESNA and EASA within the European Union; (iv) preparing a programme; (v) reviewing the organic links between these Agencies and those that already exist and that exercise certain civil aviation safety and security functions; and (vi) performing all other duties assigned.
Results expected: (i) a report (or reasons) for establishing the Agency; (ii) draft text on the establishment, mission and operation of the Agency; (iii) report on the estimated operating account of the Agencies; and (iv) report on the medium-term staffing of the Agencies, etc.
Study duration: the study will be conducted over a period not exceeding four months, including one month for review, amendments and validation.
Annex 11 Page 1 of 1
CEMAC/ECOWAS-BAG/WAEMU COSCAP PROGRAMME SUMMARY OF THE TOR FOR THE RECRUITMENT OF PROGRAMME COORDINATORS
Context: within the framework of implementing the 1999 Yamoussoukro Declaration on the liberalization of air transport markets in Africa, the Council of Ministers of Transport of the 23 States of West and Central Africa (WCA) on 28 February 2003 adopted an action plan comprising the implementation of a COSCAP Programme for aerial security supervision that would take into account the component to strengthen civil aviation safety in three RECs (CEMAC/Sao Tome and Principe, BAG/ECOWAS and WAEMU/Mauritania). This approach is in line with ICAO recommendations and in the nature of ongoing experiences in several world sub-regions (South-East Asia, the Pacific, Latin America, EASA in the European Union, ACSA in COCESNA).
So far, the status of implementation of the COSCAP Programme in WCA is well advanced. It received the support of development partners and industries in the sub-sector. To ensure effective monitoring of the Programme implementation, it was decided that a Regional Coordinator should be recruited for each COSCAP group for a two- to three-year period. The Regional Coordinator will head the Programme Management or Steering Committees and the three Regional Economic Communities (RECs) namely CEMAC, BAG- ECOWAS and WAEMU, and will ensure harmonious transition with the establishment of Regional Civil Aviation Safety and Security Agencies.
Profile and experience of the Regional Coordinator: S/he should (i) hold a graduate degree or equivalent qualification in civil engineering, economics or air transport law; (ii) have a minimum of 10 years experience in civil aviation administration, airline management or a similar regional or international civil aviation agency; (iii) be highly computer literate and have considerable aptitude for preparing clear and concise reports, notes, etc. Moreover, aptitude in maintaining harmonious working relations and working as part of a team, impeccable mastery of French or English and good knowledge of the other language as well as an aptitude to take initiative are desirable. Experience in managing projects and working with development partners is highly desirable.
Core duties: (i) manage, plan and coordinate all activities necessary for implementing the COSCAP Programme in the REC to which s/he is assigned. In that regard, s/he will perform the following duties: (i) prepare, propose and submit to the Management Committee draft agendas, regulations, activity programmes, operating and capital budget; implement the decisions, instructions and recommendations of the said Committee, in collaboration with the Principal Technical Inspector, prepare and submit to the Management Committee the programme on the technical regulation of civil aviation security, the programme for the recruitment and training of regional and national inspectors; (iii) manage support staff as well as the salaries, emoluments, allowances and mission expenses of international and regional inspectors; (iv) procure the programme components especially the audit, computer hardware and furniture; (v) prepare and present the annual budget and activity programme; (vi) prepare requests for payment or replenishment of project accounts in accordance with programme donor procedures; (vii) with the REC accounting officer, coordinate the programme financial and accounting monitoring; (viii) prepare periodic progress reports (quarterly) on programme implementation as well as final reports to be forwarded to the RECs and donors in line with the conditionalities of each grant; and (ix) collect financial resources, execute expenditures and present annual statements.
Annex 12 Page 1 of 2
Draft Terms of Reference Short Term Study on the Creation of a Regional Air Transport Data Base for West & Central Africa ______
1. Introduction / Background
1.1 Within the framework of strengthening the capacity of ECOWAS and CEMAC member states to implement the Yamoussoukro Declaration on the liberalization of access to air transport markets in Africa, a number of activities were identified in action plans adopted in March 2001 and February 2003 by the Council of Ministers for the implementation of the said Declaration in the two regions.
1.2 These activities include air transport sector policy / regulatory reforms and capacity building for the States and REC’s to enable them execute and sustain these reforms. Air transport economic regulations are presently being harmonized to ensure fair competition and free market access. Also, three sub-regional aviation safety projects (COSCAP) have been prepared for implementation by member states (viz: CEMAC, Banjul Accord Group, and UEMOA) over a three-year period with effect from 2005.
1.3 To complement these efforts the prevailing air transport regional action plan envisages the creation of an air transport data base hosted at ECOWAS and CEMAC Secretariats to facilitate planning, development and management of air transport and the monitoring of the impact of the liberalization process in the two regions.
1.4 Air Transport is known to be one of the most important components of the travel and tourism industry, but also it is increasingly one of the critical factors in decisions to locate industries and establish markets and hence a determinant of the competitiveness of states and regions in attracting business and investment or providing access to world markets. However, in order to fulfil this role, relevant up-to-date information must be available to the process drivers and key players in the sector in a just-in-time fashion, to facilitate the making of well informed decisions and choices.
1.5 In West and Central Africa today, national aviation data is in most cases not compiled systematically and regularly nor is information readily available to those in need of it. This makes it difficult to build an overall picture of the industry and provide useful data for regional planning and development and / or monitoring of progress in the different areas of the sector (Economic, Technical, Operational, and Financial). The efforts of ICAO and ASECNA to collect and disseminate aviation statistics are largely inadequate in terms of up-to-date ness, scope / relevance, and accessibility of the information gathered.
1.6 In light of the foregoing ECOWAS in collaboration with CEMAC seeks to carry out a short term study on the creation of an air transport data base for the two regions.
2. Objectives
2.1 It is intended to carry out a study on the creation of a regional air transport data base for West and Central Africa. This study forms part of a project whose general objective is to strengthen the institutional and regulatory framework for the liberalization of air transport as a means of improving the economic competitiveness of the region.
2.2 The specific objective of the study is to develop a regional information system for the improvement of access to technical / safety, operational, economic, and financial information on the air transport sector within West and Central Africa. The study is meant to contribute towards regional integration and the modernization of Civil Aviation Administrations and RECs by introducing up-to-date technology in the collection and dissemination of data on a region wide basis. It will also contribute towards developing means for states to comply with international and national aviation safety standards as required by ICAO.
3. Description
3.1 The study is the first phase of a project that envisages the creation of a data base network linking all 23 states of West and Central Africa through a central hub to be located at the ECOWAS Secretariat as a means of strengthening planning and decision making capacity in the sector.
3.2 The data so collected and disseminated is to be for the utilization of and hence should be accessible to all stakeholders and key players in air transport and its related sub-sectors. The target constituency must therefore include Airlines, Aviation Administrations (Regulators), Travel / Tourism authorities and agents, Ground handling services, Trade & Investment promoters, Governments, International / Regional Organizations, Financial Institutions, Consumers, Annex 12 Page 2 of 2
Researchers etc.
3.3 System data is expected to include information on but not limited to: (i) detailed air traffic statistics on passengers, cargo and aircraft movements, (ii) Flight / route schedules; (iii) licensing and registration of Airlines, their personnel and equipment (aircraft); (iv) air worthiness reports, inspection findings, and corrective measures; (v) airline / airport revenues, fares, tariffs and charges; et (vi) airport infrastructure and Air Navigation facility physical characteristics and performance levels.
3.4 The proposed system design is to take into account the existing and planned ECOWAS IT Infrastructure. It should also be amenable to evolutionary development. In general terms, the software for the operating system and database should be fairly standard and readily available in the market so as to allow easy use, guarantee evolution of product features and facilitate training and re-training.
3.5 The network workstation / terminal in each country is expected to be a desk top computer connected to the national telecommunications network to for example the internet via a modem. Equipment recommendations should provide for adequate protection and backup for surges and outages.
3.6 At the end of the study ECOWAS may with the participation of its partners either utilize its own in-house capacity from the Community Computer Centre or contract a consulting service to develop the system, acquire all the necessary hardware and software, install it in all the participating countries, and train personnel from member states in its use and maintenance.
3.7 To take advantage of economies of scale and standardization of information format, the regional system would have its core operations at the ECOWAS Secretariat, and online access to update information at CAA’s of member countries.
3.8 Given the importance of strengthening regional information gathering and dissemination and the need to build a culture and awareness for such information gathering, ECOWAS or an independent contracted party would evaluate, 6 months after its execution, the performance of the data base network. The evaluation would cover: status of system entries and level of transmissions, usage in terms of external access, and commitment of national partners to, for example, system maintenance etc.
4. Scope of Activities: (i) examine the current status and systems in use for aviation data collection in the region of West and Central Africa as well as other regions in Africa and world wide. Identify the strengths and weaknesses of these systems and identify adaptable best practices; (ii) taking into account the out come of the exercise in above propose a Conceptual design of a data base for West and Central Africa covering identification of all the potential beneficiaries of the data base, determining their data requirements, and uses to which information is to be put, proposing the range of data to be collected in order to fully address needs of industry stake holders and best satisfy objectives of the project and presentation and examination of various network concepts including the option of linking the 23 States to a central Hub (at ECOWAS) and through this hub to one another, and make appropriate recommendations; (iii) provide a system architecture and technical design of the data base including but not limited to system lay out design and configuration, system software proposal, equipment technical specifications and quantities, design of data collection forms / formats, specification / proposal on medium to be used (i.e. internet etc), define broadly the protocols and various access levels of the system and available security to ensure high system integrity and assessment of financial cost of implementing proposal; (iv) propose an Implementation plan by drawing out a methodology and propose an implementation schedule and examining implementation options including the possibility of the ECOWAS Community Computer Centre (CCC) and make a recommendation on the preferred option; and (v) propose a programme for ab-initio and recurrent training in system use and maintenance. This is to be for users from national administrations.
5. Out puts / Deliverables: The study is to last 10 weeks over which the following deliverables are to be provided:
Pre-Assignment consultations at ECOWAS Within 1 week of contract commencement Inception Report 2 weeks after Contract effective date Draft Final Report 8 weeks after start up Final Report 2weeks after comments from the Client
The Inception report will include the results of the initial desk research and outline the detailed working schedule for the study. The Draft Final Report will cover the scope of the study as out lined in these TOR. Comments by the client and relevant parties on the draft report are to be addressed and taken into consideration in the Final Report. Annex 13 Page 1 of 3
Draft Terms of Reference: Feasibility Study for an Aircraft Maintenance Facility in West Africa ______
1. INTRODUCTION / BACKGROUND:
1.1 Activities of the global Air transport industry currently represent up to 40% of world trade by value. The sector therefore plays a significant role in the economic development of various countries and regions whilst fostering integration. In Africa in general and West Africa in particular, where air services are inefficient, irregular, and costly; flight connections inadequate; airport and air navigation infrastructure poor; and technical supervision of operators unsatisfactory, this has not been realized to the same extent.
1.2 This situation not withstanding, the key socioeconomic role of civil aviation and its capacity to contribute to regional development and integration is well recognized. Hence the incorporation of the Implementation of the Yamoussoukro Declaration on liberalization of air transport markets in the Short Term Action Plan of the New Partnership for Africa’s Development (NEPAD) as “flagship” project. The building of continent wide consensus on the liberalization of the air transport sector has now been consolidated and is being implemented. However, whereas effort is presently focused on strengthening the capacity of civil aviation administrations and addressing liberalization policy issues there is equally need to support airlines and create the right environment for them to thrive by facilitating access to financing and equipment acquisition, building operational / safety and management capacity, as well as proper maintenance facilities. This could be done in a manner which will also open the door for public – private partnership and guarantee full utilization of the opportunities envisaged in a fully liberalized air transport market.
1.3 The high cost of air travel in the region is a reflection of both the costs incurred by the service providers (airlines) and direct charges/taxes on passengers. Airlines procure spare parts for maintenance at high cost due to the absence of economies of scale in their operations. This coupled with the use of distant maintenance facilities and non-uniform equipment also contributes to the high cost of travel and complicates the safety oversight function of regulators. Standardization of aircraft equipment; creation of a technical pool of spares; and availability of a well managed regional maintenance facility to accommodate the various aircraft types and perform required range of maintenance checks will therefore result in better safety standards and introduce economies of scale that could in turn lead to reduced cost.
2. OBJECTIVES
In view of the foregoing, the ECOWAS Secretariat seeks to have carried out a Study on the Feasibility of establishing a Regional Aircraft Maintenance Facility (RAMF) in West Africa. Such a study is a precursor to a project whose overall objectives are: (i) to support the development and establishment of West African aircraft maintenance facility in order to provide cost-effective maintenance services to the airline industry in the region and Africa in general; et (ii) to improve the poor safety standard and safety record of African airline operators through the introduction of a highly professional and modern maintenance facility with internationally recognized quality criteria for aircraft maintenance. The specific objective of this study which is the first phase of the project is to assess and advise on whether the concept of a West African Aircraft Maintenance Facility is feasible and viable.
3. SCOPE OF STUDY / ACTIVITIES TO BE PERFORMED a. Inventory of Existing Maintenance services / Facilities: Existing African suppliers of aircraft maintenance services will be analyzed taking it account both the major ones and a number of smaller maintenance centres for turboprop and piston-engine aircraft. It is usual for airlines with their own maintenance centres to offer third party work to other airlines on ad hoc basis. The analysis will focus on West Africa but will also include maintenance centres in other parts of Africa as these will become potential competitors to a new centre in West Africa. The structure, size and capability of present suppliers will be assessed and described. This will require carrying out a survey and developing an inventory of all aircraft maintenance services presently available in the region and will provide information but not limited to the following: (i) ownership (owned by an airline or third party “stand-alone” centres); (ii) type / level of maintenance work (checks) performed and are certified for ; (iii) types of certification issued for different types of aircraft; (iv) availability and qualification of technical personnel; (v) equipment and spares; (vi) maintenance approval certification from State Regulators, etc; (vi) demand / capacity analysis i.e. maintenance capacity in terms of volume on offer compared to existing and projected demand; (vii) map out existing maintenance centres in order to identify geographical gaps between demand and supply; and (viii) Determine whether the centre is a “one stop” centre offering all types of services or specific and selected services for specific types of aircraft. b. Assessment of the present African market for aircraft maintenance with respect to types of work and Annex 13 Page 2 of 3 aircraft: Analyze the fleet of West African and other African airlines with respect to types and number of aircraft; age and number of flying hours (block hours) and hence determine size of aircraft maintenance market. The study will take note that although aircraft maintenance requirements partly relate to hours flown and partly on calendar time, unscheduled maintenance often occurs – especially with aged aircraft. The total market for maintenance will be determined with respect to: (i) hull maintenance and maintenance of landing gears, APU and props; (ii) engine maintenance, hush kitting, maintenance of avionics and interior maintenance and upgrading; (iii) conversion of aircraft to freighters and aircraft painting and refurbishing non-destructive testing, non-destructive testing and other types of maintenance services. The different types of work will be related to long haul intercontinental aircraft (jets), medium haul jets, short haul regional jets, regional turbo-props and Small charter and General Aviation (GA) Aircraft. Based on the record of fleet size and types of aircraft with the different carriers a market map will be drawn showing the market potential in the different regions in Africa with special focus on the West African region. c. Produce a 15 year forecast of the African maintenance market based on projected traffic development and aircraft fleet structure: Based on studies by major aircraft manufacturers, IATA, ICAO, AFRAA etc the total present air traffic volume will be determined and 15 year forecasts of the same produced for domestic, regional and intercontinental traffic. The demand for different types of aircraft for optimum service efficiency will be estimated and a 15 year forecast of demand for maintenance services produced specifying the major types of work to be carried out. This forecast will be split into a West African and Continental market. d. Evaluation of present maintenance procurement procedures and practices: Most airlines use a mix of in- house maintenance and external maintenance services. The present procurement procedures and practices for different types of maintenance work will be analyzed with different types and sizes of airline operators in West Africa. Furthermore the study will shed light on the decision criteria for choosing in-house maintenance and/or using third party work with other African maintenance centres or outside Africa. e. Assess the potential competition from other maintenance centres in Europe, the Middle East and Asia: The international market for maintenance services is important for a decision regarding an aircraft maintenance centre in Africa. Due to volatility of the aviation sector it is likely that big maintenance centres in Europe, the Middle East and in Asia will face over capacity in certain periods. In addition these facilities are often able to offer very competitive prices and short hangar turn-around periods, which is essential to airlines. The competition, market share, and benchmarks of the non-African maintenance providers will be assessed. Such assessment will take in to account any contractual limitations as may be found in equipment lease or procurement agreements specifying the obligation for maintenance to be carried out outside Africa. f. List of potential West African locations for the Maintenance Centre: A number of factors will influence the choice of feasible locations for the proposed region aircraft maintenance facility. These are: the geographical location of the market demand, accessibility and distance for ferry flights to the centre, political stability of the country, educational standard, technical competence and work efficiency, availability of licensed personal and facility management, aviation environment et other relevant factors. The study will identify 3-5 potential locations with specification of the advantages (and disadvantages) of the proposed sites. g. Assess the economic implications of a West Africa Maintenance Centre: The study will include an assessment of the: (i) current maintenance costs of African airlines and an estimation of the value of maintenance work carried out outside Africa; (ii) potential of retaining a significant proportion of this work within the continent if an efficient and professional maintenance centre is provided in West Africa; (iii) economic and social impact of retaining such work / services within Africa. h. Present a draft business plan for a West African Maintenance Centre: The feasibility study will include a draft 5-year business plan specifying the types of work, which should be aimed at and the market segments and target groups which should be considered the main customers for the aircraft maintenance centre (it is most likely that the centre will offer only major checks and overhauls and specific repairs, while line maintenance and small checks are carried out by the airlines themselves). Furthermore, the plan will evaluate if such a maintenance centre will be able to offer competitive services to airline outside Africa due to lower labour costs in Africa ( provided that world class/internationally recognized standards are met ). A financing proposal is to be developed bearing in mind the need for private sector participation and in this respect consideration should be given to the possibility of establishing the centre through collaboration between local private sector and other reputable international maintenance organizations. It is desired that the centre and its ancillary services be financially self-sustaining over time. i. Draft Maintenance centre Master Plan: Based on the market assessment, the forecast and the business plan a first tentative master plan for the maintenance centre will be prepared. This will include the overall dimensions of the centre, land requirements, airport access and specification of the different types of in-house workshops, technical Annex 13 Page 3 of 3 departments and offices required. j. Assess the concept of a West African training centre for maintenance staff: It is assumed that the new centre will offer a very high technical standard based on a highly trained and certified staff. The study is to explore the feasibility of the regional aircraft maintenance centre providing training for its own personnel needs as well as becoming the basis for a technical aviation training centre offering training of mechanics and engineers who could carry out light maintenance in the home base of African airlines. The option of co-operation in staff training with overseas partners is also to be investigated.
4. DATA COLLECTION AND INPUT
The data will be collected through international airline and aircraft information sources such as Boeing, Airbus, IATA, ICAO, AFCAC, AFRAA, and through interviews with international and African maintenance organizations. Furthermore interviews will be carried out with a sample of 12-15 small, medium sized and large African airlines and airline sector organizations like AFRAA (African Airline Association) Airline Association of Southern Africa and others.
5. DURATION AND DELIVERIES
The study is to last 15 weeks over witch the following deliverables are to be provided: Inception Report (2 weeks after kick-off); Monthly Progress Reports (Every 4 weeks); Draft Final Report (13 weeks after kick-off) and Final Report (2weeks after comments from the Client
The Inception report will include the results of the initial desk research and outline the detailed working schedule for the study. The Monthly Progress reports will keep the client and all relevant parties involved updated on activities carried out in the past month and activities to be fulfilled in the coming months. Any problems and deviation from the schedule will be addressed in the Monthly Reports. The Draft Final Report will have an Executive summary including Main results of the feasibility study, proposals for the continuation of the project (or the contrary) and a list of potential locations for the maintenance centre. The Draft Final Report will include a Technical Section with detailed information on the issues identified in the activity plan. Comments by the client and relevant parties on the draft report are to be addressed and taken into consideration in the Final Report.
Annex 14 Page 1 of 1
CEMAC/ECOWAS/WAEMU: COSCAP PROGRAMME STATUS OF CIVIL AVIATION IN WEST AND CENTRAL AFRICA IN 2003
Maintenanc State DCA Airports Passenger Freight (tons) Movements Airlines Pilots Aircraft e Benin ANACB Cotonou 320 836 3 121 8 999 7 20 1 0 Burkina DGACM Ouagadougou 242 074 3 466 5 352 3 52 18 1 Cote d'Ivoire ANAC Abidjan 766 398 16 727 21 662 5 692 55 1 Guinea B DGAC Bissau 46 000 283 1 012 2 3 2 0 Mali DNAC Bamako 553 629 4 704 12 923 1 29 13 0 Niger DAC Niamey 100 809 2 305 4 298 1 27 18 0 Senegal ANACS Dakar 1 402 592 16 715 19 832 3 72 29 1 Togo DAC Lome 213 857 3 600 2 962 4 47 15 1 Mauritania ANACM Nouakchott 227 918 866 8 834 6 28 10 0 Sub-total A 3 874 113 51 787 85 874 32 970 161 4 Cameroon CCAA Douala 802 749 21 663 34 604 7 128 34 3 Central Africa DGACM Bangui 44 749 1 271 6 078 2 33 30 0 Congo ANAC Brazzaville 889 919 53 424 55 232 4 45 36 2 Gabon SGACC Libreville 1 047 857 34 871 56 263 7 177 59 5 Equat. Guinea DGTAC Malabo 353 243 3 182 16 851 9 0 12 0 Chad DAC N'Djamena 102 233 4 785 7 200 1 42 45 0 Sao Tome INAC Sao Tome 40 473 280 2 472 46 6 45 0 Sub-total B 3 281 223 119 476 178 700 76 431 261 10 Cape Verde DGAC Sal 1 405 468 55 000 36 000 2 50 6 0 Gambia GCAA Banjul 355 944 2 922 5 253 3 6 15 4 Ghana GCAA Accra 741 622 47 682 11 651 10 203 46 2 Guinea DNAC Conakry 299 555 3 970 9 966 7 17 16 2 Liberia AAC Monrovia 100 053 2 120 3 700 3 30 20 0 Nigeria NCAA Lagos 7 300 000 64 630 137 436 42 500 302 17 Sierra Leone AAC Freetown 152 084 1 440 30 555 3 30 20 0 Sub-total C 10 354 726 177 764 234 561 70 836 425 25 TOTAL A+B+C 17 510 062 349 027 499 135 178 2 237 847 39
Annex
CAPACITY BUILDING PROGRAMME FOR THE SUPERVISION OF AVIATION SAFETY IN WEST AND CENTRAL AFRICA (COSCAP PROGRAMME)
ADDENDUM
Question 1 : Why is it that in the Corrigendum, CEMAC is no longer mentioned in the condition concerning the creation of an Air Transport Unit within the DTT?
Answer 1 : After the programme appraisal mission, CEMAC had opted to build DTT’s capacity by providing experts to cover air transport. Accordingly, it recruited a specialist in air transport and a transport economist and plans have been made to continue capacity building by recruiting another air transport specialist in 2007. Taken by CEMAC, these measures meet the objective of the condition which is to enhance staffing in the Directorates of the RECs in charge of Transport. Hence, CEMAC is no longer mentioned in this condition. This is not yet the case for WAEMU and ECOWAS.
Question 2 : Why put the condition relative to the creation and effective establishment of the Regional Air Safety Agencies under “Other Conditions”?
Answer 2 : The organisational and financial management studies required for the establishment of these Regional Agencies will be financed in the context of the project. Consequently, it would have been difficult for the RECs to establish these Agencies before the ADF resources became available. If we had left the condition as it is worded in the Appraisal Report, the RECs would not have been in a position to fulfil it and the project’s implementation would have been delayed. To avoid a blocking of the situation and in collaboration with legal experts, we asked the RECs to first provide us with an undertaking to establish these Agencies as a prerequisite to any disbursement, and second under “Other Conditions” to show proof of their effective creation and establishment before 31 December 2006, upon completion of the studies.
Question 3: The English Version of the Corrigendum of Conditions (ii) and (v) under “Other Conditions” is not clear
Answer 3 : The English translation does not fully reflect the original French version of the text. We have corrected the English version of the text as follows (the corrections are in bold letters):
Replace the following conditions in the Corrigendum:
(ii) Before 30 June 2007, show proof to the Fund of establishing the Air Transport Unit within the ECOWAS Executive Secretariat’s Directorate of Infrastructure and Industry and the WAEMU Commission’s Directorate of Transport and Telecommunications, each with a minimum of three staff (paragraph 5.2.1);
(v) Before 31 December 2006, show to the ADF proof of making provision for setting up the regional agencies and designating their respective headquarters (paragraph 6.2.2).
2
By these Conditions:
(ii) Before 30 June 2007, show proof to the Fund of the establishment of an Air Transport Unit within the ECOWAS Executive Secretariat’s Directorate of Infrastructure and Industry and the WAEMU Commission’s Directorate of Transport and Telecommunications, each with a minimum of three staff (paragraph 5.2.1);
(v) Before 31 December 2006, show to the ADF proof of the establishment of the regional agencies and the designation of their respective headquarters (paragraph 6.2.2).
Question 4 : How will sustainability be ensured?
Answer 4 : During the Programme’s implementation phase, the RECs (ECOWAS, CEMAC and WAEMU) will coordinate implementation until the effective establishment of the Regional Air Safety Agencies. They will be assisted by ICAO which has the expertise in air transport, and will be provided with technical assistance specialised in the air transport sector. Once established, these Regional Air Safety Agencies will be fully autonomous and will be auto-financed by payments for services that they will be called upon to provide (cf. paragraph 7.1.2 of the Appraisal Report). Conversely, the RECs will continue to monitor implementation of the Yamoussoukro Decision and under the project their capacity will be build accordingly.
Annex
MULTINATIONAL ECOWAS/CEMAC/WAEMU: CAPACITY BUILDING PROGRAMME FOR THE SUPERVISION OF AVIATION SAFETY IN WEST AND CENTRAL AFRICA (COSCAP PROGRAMME)
CORRIGENDUM
After forwarding the grant conditions, comments were received from the Donees, on the basis of which we adjusted the conditions and deleted repetitions. The corrections are in bold type.
B. Conditions Precedent to First Disbursement 8.2.3 The grant shall only be disbursed after fulfillment of the following conditions by the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat and the WAEMU Commission: Replace the following conditions:
(iii) Undertake to set up within the Directorate of Infrastructure and Industry of the ECOWAS Executive Secretariat, the Directorate of Transport and Telecommunications of the CEMAC Executive Secretariat and the Directorate of Transport and Telecommunications of the WAEMU Commission an Air Transport Unit with a minimum of 3 staff (paragraph 5.2.1);
(v) Show proof of establishing the Regional Air Safety Agencies, selecting the countries to host the COSCAP project headquarters and the headquarters of each Regional Agency (paragraph 6.2.2).
With the following conditions:
(iii) Undertake to set up within the Directorate of Infrastructure and Industry of the ECOWAS Executive Secretariat and the Directorate of Transport and Telecommunications of the WAEMU Commission an Air Transport Unit with a minimum of 3 staff (paragraph 5.2.1);
(v) Undertake to establish Regional Air Safety Agencies and to select countries to host the COSCAP project headquarters and the headquarters of each Regional Agency (paragraph 6.2.2).
C. Other Conditions 8.2.4 In order to avoid the suspension of disbursements on the grant during the Programme implementation phase, the CEMAC Executive Secretariat, the ECOWAS Executive Secretariat and the WAEMU Commission shall fulfill the following conditions:
Replace the following conditions:
(ii) Before 30 June 2007, show to the Fund proof of establishing the Air Transport Unit within the Directorate of Infrastructure and Industry of the ECOWAS Executive Secretariat, the CEMAC Executive Secretariat’s Directorate of Transport and Telecommunications and the WAEMU Commission’s Directorate of Transport and Telecommunications, each with a minimum of three staff (paragraph 5.2.1);
(v) Show to the ADF proof of making provision for setting up the regional agencies and designating their respective headquarters (paragraph 6.2.2).
2 With the following conditions:
(ii) Before 30 June 2007, show proof to the Fund of establishing the Air Transport Unit within the ECOWAS Executive Secretariat’s Directorate of Infrastructure and Industry and the WAEMU Commission’s Directorate of Transport and Telecommunications, each with a minimum of three staff (paragraph 5.2.1);
(v) Before 31 December 2006, show to the ADF proof of making provision for setting up the regional agencies and designating their respective headquarters (paragraph 6.2.2).