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					List of Abbreviations


AIDCO                     EuropeAid Cooperation Office
ATPL                      Air Transport Pilot‟s Licence
BC                        Beneficiary
CAD                       Civil Aviation Department (of UTA)
CIS                       Commonwealth of Independent States (12 former Soviet republics
                          including Georgia)
CPL                       Commercial Pilot‟s Licence
CS                        Certification Specifications
CSP                       Country Strategy Paper
DG                        Directorate-General (of the EC)
DG RELEX                  External Relations Directorate-General
EASA                      European Aviation Safety Agency
EEC                       European Economic Community
EC                        European Community
ECAC                      European Civil Aviation Conference
ENP(I)                    European Neighbourhood Policy (Instrument)
ENP AP                    European Neighbourhood Policy Action Plan
EU                        European Union
FCL                       Flight Crew Licences
ICAO                      International Civil Aviation Organization
JAA                       Joint Aviation Authorities
JAA/T = JAA-T             Joint Aviation Authorities in Transition
JAR                       Joint Aviation Requirements
MAK/IAC                   Interstate Aviation Committee (of CIS)
MS                        Member state
NGO                       Non-governmental organisation
NIP                       National Indicative Programme
OPS                       Operations
PCA                       Partnership and Cooperation Agreement
PL                        Project Leader
PPL                       Private Pilot‟s Licence
Reg.                      Regulation
RTA                       Resident Twinning Adviser
SARPs                     Standards and Recommended Practices (of ICAO)
TA                        Technical Assistance
TACIS                     Technical Assistance to CIS States (of the EU Commission)
TAIEX                     Technical Assistance and Information Exchange (of the EC)
ToR                       Terms of Reference
TRACECA                   Transport Corridor Europe Caucasus Asia
USOAP                     Universal Safety Oversight Audit Programme (of ICAO)
UTA                        United Transport Administration (of the Ministry of Ministry of
                           Regional Development and Infrastructure of Georgia )




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   1
                         TWINNING PROJECT FICHE

1.       BASIC INFORMATION
1.1      Programme:                     ENP National Action Programme (NAP) 2008
1.2      Twinning Number:               GE09/ENP-PCA/TP/03
1.3      Title                          Harmonisation with EU norms of the legislation and
                                        standards of Georgia in the field of Civil Aviation
1.4      Sector:                        Transport
1.5      Beneficiary country:           Georgia
1.6      Beneficiary institution:       The Civil Aviation Department (CAD) of the United
                                        Transport Administration (UTA) of the Ministry of
                                        Regional Development and Infrastructure of Georgia

2.        OBJECTIVES
2.1       Overall Objectives
Ensuring that all Georgian aviation regulations in civil aviation safety and licensing of air
carriers are harmonised with those of the European Union and implemented by the aviation
authorities and industry in Georgia with the aim to
        increase safety standards in Georgia
        support negotiations between the EU and Georgia in this area.
In areas where the EU has not yet adopted Implementing Rules to the Regulation 216/2008 1,
or not covered by the Regulation 3922/91 (EU OPS), aviation regulations in civil aviation in
Georgia will be harmonised with the relevant Joint Aviation Requirements, as they stand on
30 June 2009.


2.2       Project purpose
      a) Specific Purpose:
At the end of the project all the regulations of the Georgian Civil Aviation are fully complying
with the requirements of the EC Regulation 216/2008 and implementing Rules thereto the
remaining JARs as they stand on the 30 June 2009 (in the areas not covered by the
Implementing Rules), the EU OPS (Regulation EC 3922/91 and following legislation),
Directive 94/45 and Directive 2003/42 and Regulation (EC) 1008/2008, to the extent it



1
 As amended by the Regulation (EC) No 1108 of the European Parliament and of the Council of 21 October
2009


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   2
concerns licensing of air carriers. Operators, CAD and the Ministry should fully understand,
apply and implement these requirements.


     b) Scope of the Project:
     Community legislation specified in Annex 3


Implementation of the Community law must be supported by:
      (a) intensive training measures, including on-the job training, for the aviation
           authorities and industry (understanding of the new system must be created) and
      (b) Adaptation of the structure of the CAD if necessary to have the new legislation and
           procedures effectively implemented.


Georgia will be technically in a position to conclude with the EU arrangements envisaged in
Article 66 of the Regulation (EC) No. 216/2008 whereby it has adopted and applying
Community law in the areas covered by this Regulation.


The project‟s purpose is to be achieved through the four following components:
a)      The legal objective: The relevant Georgian law on aviation is harmonised with the
        relevant EU legislation listed in Annex 3
b)      The technical objective: All technical guidance and tools necessary for a proper
        implementation of the EU legislation (in particular, inspectors handbooks and
        checklists, certification specifications, including airworthiness codes and acceptable
        means of compliance, as well as guidance material) are elaborated, developed and
        issued by the appropriate divisions of the CAD.
c)      The training objective: Training (courses and on the job training, workshops and
        study tours) for selected CAD personnel and in selected areas will be provided.
d)      The institutional building objective: Proposals for implementation and enforcement of
        safety oversight mechanisms and for the institutional structure are discussed,
        elaborated and agreed upon to enable clear responsibilities and authority for
        implementing the new legislation and procedures.
All objectives should support and take account of the process of future EU-Georgia
negotiations on a Common Aviation Area agreement.




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   3
2.3      Contribution to the PCA (Partnership and Co-operation Agreement) and ENP
         (European Neighbourhood Policy) Action Plan
2.3.1 The general procedures and documents of approximation
The European Neighbourhood Policy (ENP) is implemented by means of the European
Neighbourhood Policy Instrument (ENPI) 2.
EU-Georgia bilateral relations are regulated by the Partnership and Cooperation Agreement
(PCA) 3 which entered into force on 1 July 1999.
The ENP National Action Plan (NAP) endorsed by the EU-Georgia Cooperation Council of
14 November 2006 aims at fulfilling the provisions of the PCA and contributing to a closer
relationship with Georgia, involving a significant degree of economic integration and
deepening the political co-operation. It covers a period of five years.
The main EU co-operation objectives, policy responses and priority fields are set forth in the
ENPI Country Strategy Paper 4 2007-2013 for Georgia (CSP) 5.
On the basis of bilateral priorities, also a National Indicative Programme (NIP) 2007-20106
has been adopted in agreement with the Georgian authorities.
The European Neighbourhood Policy (ENP) reference documents 7 include also the 2007
Progress Report 8 on Georgia which mentions on page 15 the foundation of UTA based on the
reorganisation of earlier institutions.

2
   ENPI consistently regroups former TACIS etc. instruments in the post-Soviet and other states. General
provisions are established by Regulation (EC) No 1638/2006 of the European Parliament and the Council of 24
October 2006, OJ L 310, 9.11.2006, p.1. In particular: Commission Decision on the ENPI Annual Action
Program 2007 in favour of Georgia, chapter 5 on page 11 pertains to the Twinning instrument in Georgia. A
very useful source on Institution Building (i.e. the core of the Twinning philosophy) is the Reference Document
No. 1 “Institutional Assessment and Capacity Development: Why, what and how?” issued by EuropeAid in
September 2005, available from http://ec.europa.eu/europeaid/multimedia/publications/index_en.htm#category4
3
  See the “virtual library” at http://www.delgeo.ec.europa.eu/en/publications/virtuallibrary.html, English text at
http://www.delgeo.ec.europa.eu/en/pca/EURO_E.pdf and Georgian text at
http://www.delgeo.ec.europa.eu/en/pca/EURO_G.pdf. More detailed information on similar EU policies at
http://www.delgeo.ec.europa.eu/en/eu_global_player/index.html and on earlier enlargement at
http://www.delgeo.ec.europa.eu/en/enlargement/enlargement.html. European Union documents may be
retrieved from EurLex or from the site http://europa.eu/documents/index_en.htm. EU Bookshop at
http://bookshop.europa.eu/eGetRecords?Template=en_index&indLang=EN. Information of EU external Aid
such as TAIEX from http://ec.europa.eu/europeaid/where/neighbourhood/overview/taiex_en.htm. Introductory
information on the European Neighbourhood Policy ENP at and on Twinning at
http://ec.europa.eu/europeaid/where/neighbourhood/overview/twinning_en.htm.
4
  see the older version of 12 May 2004 in the “virtual library” at
http://www.delgeo.ec.europa.eu/en/press/commission%20communication%20ENP%20Stratege%20Paper.pdf.
On page 18 it says: “Another important task is to step up aviation relations with partner countries with the aim
to open up markets and to co-operate on safety and security issues.”
5
  page 22 of this CSP (C(2007) 672, available e.g. at http://ec.europa.eu/world/enp/documents_en.htm#3) says:
“The Commission has also adopted in March 2005 a Communication proposing the creation of a wider
European Common Aviation Area including the neighbouring countries of the EU by 2010. Therefore,
assistance should also be envisaged with respect to the aviation sector as Georgia is a member of the European
Aviation Conference and is expected to become a member of the JAA (Joint Aviation Authority).”
6
  http://ec.europa.eu/world/enp/pdf/country/enpi_csp_nip_georgia_en.pdf
7
  very comprehensively at http://ec.europa.eu/world/enp/documents_en.htm#3


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation           4
Regular “Cooperation Reports EU-Georgia” are issued9, the latest for the year 2007.
A Twinning Launching Workshop providing basic knowledge on the Twinning instrument to
Georgian Ministries was held in Tbilisi in November 2007.
The particular security situation after August 2008 is dealt with in the “EU assistance fact
sheet” 10 and the Georgian press published in English11.
EuropeAid has a very informative web site12 describing legal bases and programming for
ongoing actions and lists relevant literature13 such as the NAP 200714.


2.3.2 Approximation for the field of transport
The Country Strategy Paper 2007-201315 emphasizes that in the field of transport, assistance
will be aimed at “the process of approximation of legislative and regulatory framework with
European and international standards”. This is particularly important in the field of aviation.


The mentioned EU-Georgia ENP National Action Plan16 has been signed on 2 October 2006.
Item 4.6.1 “Transport - Implement selected measures and reforms in the aviation sector”
(page 28) provides for such actions as:

           Promote regulatory approximation, including on safety and security issues;
           Increase administrative and technical capacity to comply with Joint Aviation
            Authorities (JAA) standards and obtain full JAA member status,
           Cooperation in the area of air navigation.

Given the dissolution of JAA by 30 June 2009 and envisaged takeover of responsibility for
non EU-states by EASA17 (see for details below 3.3.1), the second last item must now be read
as: “to comply with EU standards or pending adoption of the relevant EU implementing
rules, the relevant JAR standards as they stand on 30 June 2009 and be prepared for
association with the EU safety system”.

8
 http://ec.europa.eu/world/enp/pdf/progress2008/sec08_393_en.pdf
9
 can be found for the years 2003, 2005, 2007 in the “virtual library”, text of the 2007 report at
http://www.delgeo.ec.europa.eu/en/publications/Euro%20Engl.pdf.
10
     http://europa.eu/rapid/pressReleasesAction.do?reference=MEMO/08/645&format=HTML&aged=0&language=EN&guiLanguage=en
11
   such as “Weekly Georgian Journal” at http://www.kvirispalitra.ge/gj-site/index.htm, “Georgia Today” at
http://www.georgiatoday.ge/, “The Messenger” at http://www.messenger.com.ge/, “The Georgian Times” at
http://www.geotimes.ge/ (not to be confused with “Georgia Times” at http://www.georgiatimes.info/) and also
“World Press Review” at http://www.iberiapress.net/index.php?lang_id=2.
12
   http://ec.europa.eu/europeaid/where/neighbourhood/country-cooperation/georgia/georgia_en.htm
13
   at http://ec.europa.eu/europeaid/where/neighbourhood/regional-cooperation/enpi-east/annual-programmes_en.htm
14
     http://ec.europa.eu/europeaid/where/neighbourhood/regional-cooperation/enpi-east/documents/annual_programmes/georgia_2007_en.pdf
15
   http://ec.europa.eu/world/enp/pdf/country/enpi_csp_georgia_en.pdf
16
   European Union - Georgia Action Plan at http://www.delgeo.ec.europa.eu/en/trade/Booklet%20A4-2.pdf
17
   see http://www.easa.eu.int/


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation                              5
The EC in consultation with the CAD have considered that the best approach to make
progress is to form a „Twinning Project‟ with a similar organisation in an EU Member State
(MS).


2.3.3 Analyses, further studies and more detailed information
Background information on approximation is available from “The Georgian-European Policy
and Legal Advice Centre” (GEPLAC) 18, an institution funded by the EC in analogous manner
in similar neighbouring countries. As an example, a Conference on “Georgia‟s European
Way – ENP AP implementation” was held in Batumi on 3-5 July, 200819.
GEPLAC‟s main types of publication series could be helpful for this Twinning:
         The Legal Inventory20,
         Georgian Economic Trends21,
         Guide to the Implementation of the Partnership and Cooperation Agreement between
          Georgia and the European Communities and their Member States22.
         GEPLAC Research and Policy Papers 23,
GEPLAC‟s own legal, economic and political analyses include titles such as:
         The Europe Agreements compared in the light of their pre-accession reorientation24,
         The development of the legal system of Georgia since 199725,
         The partnership and co-operation agreement between Georgia and the EC (PCA) 26.


3.        DESCRIPTION OF THE TWINNING PROJECT
3.1       Background and justification
3.1.1 The situation in the EU: EASA as a successor to JAA
After having gained its independence, Georgia has become a member of ECAC (European
Civil Aviation Conference in 2005, the members of which are currently 44 European States
including Georgia). In December 2006, Georgia signed “The Cyprus Arrangements”


18
   see at http://www.geplac.org/eng/, GEPLAC‟s publications at http://www.geplac.org/publicat/index.html or
table of contents at http://www.geplac.org/publicat/law/tocs.html.
19
   http://www.geplac.org/eng/news.php?id=101
20
   at http://www.geplac.org/publicat/legal_inventory/index.html
21
   ToC at http://www.geplac.org/publicat/economic/contents.html
22
   http://www.geplac.org/publicat/pca/index.html
23
   on the newer page at http://www.geplac.org/eng/Reports.php and also
http://www.geplac.org/eng/otherpubs.php
24
   http://www.geplac.org/publicat/law/archives/glr01q1e.pdf
25
   http://www.geplac.org/publicat/law/archives/glr00q1q2e.pdf
26
   http://www.geplac.org/publicat/law/archives/glr99q1q2e.pdf


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation        6
concerning the Development, the Acceptance, and the Implementation of the Joint Aviation
Requirements (JARs) and has become (in 2007) a Candidate Member State to the Joint
Aviation Authorities (JAA) which – as an associated body of ECAC – are based in
Hoofddorp, the Netherlands. Meanwhile (since 2007), the JAA are in the state of transition to
EASA (JAA-T) and their functions are split into a Liaison Office (LO) which is based in
Cologne (at EASA) and a Training Office (TO) which is still based in Hoofddorp 27.


In 2003, the European Aviation Safety Agency (EASA) has been established under
Regulation (EC) 1592/2002 (“Basic Regulation”). This Regulation has recently been revised
by Regulation (EC) 216/2008 (“REGULATION (EC) No 216/2008 OF THE EUROPEAN
PARLIAMENT AND OF THE COUNCIL of 20 February 2008 on common rules in the field
of civil aviation and establishing a European Aviation Safety Agency, and repealing Council
Directive 91/670/EEC, Regulation (EC) No 1592/2002 and Directive 2004/36/EC”)28.


The revised “Basic Regulation” (Regulation (EC) No. 216/2008) also forms the legal basis
for an extension of EASA competences to licences, approvals and certificates in the area of
pilot licensing, flight operations and third country operators These competences will be
implemented by the EC at the latest on 8.04.2012.


3.1.2 Participation of European third countries in EASA
Article 66 of Regulation (EC) No. 216/2008 deals with “Participation of European third
countries”. It reads as follows:


           “The Agency shall be open to the participation of European third countries which are
           contracting parties to the Chicago Convention and which have entered into
           agreements with the European Community whereby they adopted and apply
           Community law in the field covered by this Regulation and its implementing rules.
           Under the relevant provisions of these agreements, arrangements will be developed
           which shall, inter alia, specify the nature and extent of, and the detailed rules for, the
           participation by these countries in the work of the Agency, including provisions on
           financial contributions and staff.”

On 19 March 2008, the Directors General of Civil Aviation of ECAC‟s then 42 European
Member States have decided on the future of JAA (cf. Press Release No. 192E of 19/03/08):



27
     http://www.jaa.nextgear.nl/
28
     OJ No. L 79 of 30 March 2008, p. 1.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   7
        The JAA system, including the JAA Liaison Office, will be closed by 30 June 2009.
         In addition, the Cyprus Arrangements will be dissolved by unilateral acts of all
         Member States.

        The JAA Training Office in Hoofddorp will continue its activities as an associated
         body of ECAC.

        EASA will establish a liaison function in early 2009 which will help the non-EASA
         JAA Member States in becoming associated with EASA. ECAC Directors General
         recognised the need for appropriate resources to EASA for the liaison function and
         additional standardisation tasks given to the Agency.

        All non-EASA JAA Members were urged to continue with their efforts leading to a
         relationship, preferably “association with the Agency”, at the same time pleading that
         the EC shows all possible flexibility to include all these States in a suitable
         relationship with the Agency and emphasise the need to continue with standardisation
         visits to non-EASA JAA Member States after closing of JAA.

3.1.3 The need for this Twinning Project
This process intended by Georgia is long, difficult and more effort-consuming than might be
anticipated since it implies an actual change of culture from one system to another. The
Georgian authorities have stressed the need to receive further assistance and training in order
to facilitate the implementation.


Institutional Twinning with a Member State (MS) of the EU has been identified as the most
effective way to provide that assistance as, through two-way co-operation, it should
accelerate the capacity building of the CAD. This will enable them to come in line with EU
experience and practices whilst, in turn, the MS benefits in gaining experience from closer
co-operation with another civil aviation agency which is a potential associated member of
EASA.


3.1.4 The situation of aviation in Georgia
A study on “The Economic benefits of a common Aviation Area Agreement between the EU
and Georgia/South Caucasus Region” commanded by DG Transport 29 analyses thoroughly
regulatory regimes30 and among others highlights that the Georgian aviation market has seen
a significant adjustment in the last five years, from a focus on air transport services to Russia
(leading market with ~140 frequencies in 2006) and other CIS/former-USSR destinations to


29
   Executive summary as of 20 November 2008, authored by: von den Steinen, E., Joerss, I., Mendes de Leon,
P.; performed by booz&co, London in co-operation with Vedbaek, Denmark.
30
   Pages 4-13 of said summary.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation       8
its East, to a focus on Turkey, Ukraine (leading market with ~120 frequencies in 2008) and
Europe31.


There are three international airports32: Tbilisi, Batumi, and Kutaisi. Sukhumi airport lies in
Abkhazia which has been outside de-facto control of the Georgian government since 1993
and is not certified or licensed according to ICAO Standards (Annex 14) by the CAD of
Georgia. Kutaisi (a double-purpose airport) is reported to have its runway destroyed in the
August 2008 fights but is planned to be repaired. It is envisaged to reopen it for dual use to
have it act as alternative for the other airports due to its propitious meteorological conditions.
Batumi lies next to the Turkish border and operates to noticeable extent as de-facto airport for
Hopa, a Turkish city in the border region involving bus transport for passengers (see “o”
inserted into Figure 1).




                      Hopa   O




Figure 1: Airports on the territory of Georgia (green). Source: UTA website 33, details see text.



31
   For statistical data on passenger transport see also http://www.uta.gov.ge/eng/aviacia/samgzavro.html, on
cargo transport see http://www.uta.gov.ge/eng/aviacia/satvirto.html (issued by UTA).
32
   http://www.uta.gov.ge/eng/saqart_shesaxeb.html and http://www.uta.gov.ge/eng/aviacia/saq_aeroportebi.html
33
   http://www.uta.gov.ge/eng/saqart_shesaxeb.html


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation         9
The Turkish consortium TAV-Urban has invested in the Tbilisi and Batumi airports and
operates them for 15 years34 on a concession base.
Air navigation is ensured by “Sakaeronavigatsia” Ltd, an entirely state-owned company35 that
has undergone and implemented several steps of reorganisation and modernisation 36.
Georgia is part of several international civil aviation organisations such as ICAO
(International Civil Aviation Organization, since 1994), ECAC (European Civil Aviation
Conference, since 2005), JAA (2007 Georgia became candidate member state), and also
MAK (Moscow-based Interstate Aviation Committee, since 1993, with declining importance
for Georgia) as well as has an Open Skies agreement with the USA. Talks have been initiated
with EUROCONTROL with a view to become a candidate member (details see UTA
website37)


The present document was authored in December 2008, based on several discussions with
CAD staff from all five included CAD divisions (dashed line in Figure 2) and with the CAD
head, as well as two offices of UTA (legal and security). The following items were seen as
crucial from the CAD perspective:
        Stability of staff in CAD and general shortage of staff 38,
        training39 of the entire staff in procedures in line with EU regulations,
        appropriate organisational structure for UTA.


3.1.5 Description of the Beneficiary Administration (CAD)
The “Civil Aviation Department” (CAD, organisation chart in Figure 2) 40 is one out of three
departments of the “United Transport Administration of the Ministry of Regional
Development and Infrastructure of Georgia” (UTA) – an agency responsible for the state
technical regulation in transport. It was established on 13 April 2007 under the “Law of
Georgia on the State Regulation of Transportation” adopted by the parliament 41. Since then,
all international obligations in the area of Civil Aviation, Road Transport and Maritime
Transport Departments, are allocated to the United Transport Administration of the Ministry
of Regional Development and Infrastructure
34
   see http://www.uta.gov.ge/eng/aviacia/saq_aeroportebi.html and linked websites on all airports.
35
   http://www.uta.gov.ge/eng/aviacia/saq_navigacia.html
36
   http://www.uta.gov.ge/eng/aviacia/istoria.html
37
   http://www.uta.gov.ge/eng/xelshek.html, http://www.uta.gov.ge/eng/struqtura.html, department names are
also selected according to the statutes
38
   mainly because of insufficient funds
39
   it is suggested that TAIEX training programmes could complement this Twinning until the Twinning start.
40
   comprehensive website at http://www.uta.gov.ge/.
41
   compare UTA‟s statute (Art. 1 lit 1) at http://www.uta.gov.ge/eng/debuleba.html.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation       10
The CAD as one of the departments of UTA contains five divisions (Article 5 of the Statute):
          Aerodromes and Airports Division
          Flights Standards Certification Division
          Air Transportation Division
          Airworthiness and Registration Division
          Air Navigation Service Division.




Figure 2: Organisation chart of the UTA. Source: UTA website42 (above) and CAD documentation
(below). CAD as one department of UTA is highlighted with a dotted line. The five divisions of CAD and
two offices of UTA affected by this Twinning are indicated by a dashed line.


The full CAD organisational structure is shown in Figure 2. It is headed by the “Head of the
Civil Aviation Department” reporting to one of the three Deputy Heads of UTA. The 31
technical and administrative personnel are structured in the abovementioned 6 Divisions43,
each with a Head.


The organisational structure further shows:

42
     http://www.uta.gov.ge/eng/struqtura.html
43
     the English translation for organisational units might vary from source to source.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   11
        Aviation Security is assigned to a general security office under supervision of another
         one of the Deputy Heads of UTA who is responsible for all modes of transport
         including aviation.
        There is no separate Accident Investigation Division or Office. However, one of the
         staff is assigned the task setting up a team of experts in case an accident should occur.
        The absence of a quality & methodology division. Such a division, reporting to the
         Head of CAD, would strengthen the activities of CAD in offering a „quality service‟.


The working procedures of CAD are based on the “Law of Georgia on the State Regulation
of Transportation” which forms the legal basis for UTA and CAD – see above.


3.1.6 Legal framework
The legal framework for aviation in Georgia 44 (apart from the Constitution of Georgia)
consists of:
1.       The “Air Codes of Georgia” (also called: “Aviation Code”) put into force by the
         “Decree of the Parliament of Georgia” dated 29 October 1996, number 462–Is45.
         Under Article 4 section1 of the “Air Codes” use of the airspace “shall be governed by
         these Codes or other legislation acts approved on their basis”.
2.       Civil Aviation Regulations (issued by UTA)
3.       Documents (issued by CAD):
            Rules
            Procedures
            Manuals
            Instructions


The current status of the development of normative acts concerning flight safety is the
following:


3.1.7 Georgian legislation affected by this Twinning project 46
         Effective normative acts:

44
   A general source of Georgian legislation: http://www.geplac.org/publicat/index.html whereas a source for
analyses of EU and Georgian legislation is http://www.geplac.org/eng/eudocuments.php. The Georgian
Parliament lists its legislation at: http://www.parliament.ge/index.php?lang_id=ENG&sec_id=69
45
   http://www.parliament.ge/index.php?lang_id=ENG&sec_id=69&info_id=16073 (without the legal text itself).
A trilingual booklet (ge, ru, en) with the legal text was published in 1997 by Tipographia LTD “IRGI-21”.
46
   These lists were provided by UTA in November 2008.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   12
            Aviation Code
            Airspace Structure
            Rules of the Air (Annex 2, Doc. 4444)
            Meteorological Services Rules (Annex 3, Doc. 8896-AN/893)
            Rules of Civil Aviation Inspection (Doc. 8335, Doc. 9734, FAA‟s Proposal)
            Air Traffic Service Manual (Annex 11, Doc. 4444)
            Instruction on Prevention of Psychoactive Substance Use (Doc. 9654)
            Aerial Works Manual
            Operation of Aircraft (Annex 6, FAA‟s Proposal, JAR-OPS)
            Operators Certification Rules (AOC) (Annex 6, Doc. 8335, FAA‟s proposal)
            Aircraft Maintenance Rules (Annex 6, 8, JAR-145, IAC, FAA‟s Proposals)
            Accidents and Incidents Investigation Rules (Annex 13, FAA‟s Proposal)
            Manual on Flexible Use of Airspace (SWEDAVIA‟s Proposal, Doc. 9554, Doc.
             9433)
            Instruction on Duty Time of Crew Members (Cir. 52-AN/47)
            National Aviation Security Programme
            Airport Certification Rules (Annex 14, Doc. 9774-AN/969)
            Air Specialists‟ Certification Rules (Annex 1, Doc. 9379-AN/916, FAA‟s
             Proposal, ECAC)
            Air Specialists‟ Medical Certification Rules (Annex 1, Doc. 8984 – AN/895,
             National Legislation)
            Manual of Transport of Dangerous Goods (Annex 18, Doc. 9284-An/905)
            Qualification Requirements for Flight Safety Specialists (Doc. 9734)
            Presidential “Ukase about Distribution of Responsibilities within the Civil-
             Military Co-operation” (Resolution A33-14)
            Aircraft Registration Rules (Annex 7, FAA‟s Proposal)
            Air-Ground Communication Rules & Phraseology (Annex 10, Doc. 9432, Doc.
             4444).


        Normative acts “under way of approval”:
            Rules on Certification of Aviation Equipment


        Normative acts “under way of development”:



Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   13
            CNS Systems Operations Manual (Annex 10)
            Search and Rescue Operations Manual (Annex 12, Doc. 9731)
            Certification Rules of the Aircraft Maintenance Companies (FAA Proposal, EASA
             Part-145)


         General legislation relating to aviation activities:
            Law on State Control and Transport and Communication Sphere Activities
             Regulation
            Law on Enterprise Activities
            Law on Search and Rescue
            Law of Labour
            Law on Control of Enterprise Activities Law on State Standards
            Law on Normative Acts
            Law on Insurance Activities


3.1.8 Responsibilities of CAD 47:
Figure 2 above shows how the CAD is one of the departments of UTA which is an
administrative body under supervision of the Ministry of Regional Development and
Infrastructure of Georgia. The Minister reports to the Prime Minister.


As far as aviation is concerned, the Ministry of Economic Development – assisted and
supported by UTA/CAD – is responsible for the following subjects:
            Aviation policy,
            International relations,
            Rulemaking.


The responsibilities of CAD are extensive and comprehensive and are regulated by Article 2
of the UTA statutes48.


47
   http://www.uta.gov.ge/eng/debuleba.html
48
   Citation of Article 6 of the statutes: main functions of structural units of the Civil Aviation Department:
a) Flight Standards and Certification Division - Technical service of civil aircraft and supervision of complying
   with flightworthiness rules; Certification of air enterprises and supervision of their activities; issuing,
   replacing, prolongation of certificates to aviation specialists and issuing qualification records; supervision
   over ensuring safety of pilot-instructors flights; Recognition of certificates and qualification records issued by
   other states; investigation of aviation accident on board of aircraft; airline crew flight inspection, elaboration
   of draft technical regulations within the scope of its competence.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation             14
They involve not only the functions of safety oversight but also cover many other
management aspects of civil aviation organisations. The main functions are:
        Aircraft Register,
        Issuance of all certificates & licenses in civil aviation,
        Airworthiness certificates (remark: there is no type certification yet),
        Licenses (personnel and training institutions),
        Supervision of aerodromes and airports,
        Safety Inspection,
        Responsibility for air traffic control and supervision of Sakaeronavigatsia (ATC-
         provider),
        Accident Investigation.


The provision of Air Navigation Services was delegated in 1993 to Sakaeronavigatsia 49,
which is a limited company whose shares (100 %) are held by the government (Ministry of
Economic Development). Sakaeronavigatsia is a state owned organisation which has
budgetary autonomy and recovers cost via en-route and terminal air navigation charges.


3.1.9 Economic and practical information on aviation in Georgia
There are 18 commercial air operators50, 18 valid air operator certificates, 10 approved
maintenance organisations, no design organisations, no aircraft manufacturing organisations,


b) Aerodromes and Airports Division: certification and technical supervision of aerodromes and airports for safe
   functioning of civil aviation; registration of aerodromes, helicopter decks and flight grounds (sites);
   certification of enterprises providing aircraft with lubricants; elaboration of draft technical regulations within
   the scope of its competence.
c) Aeronavigation Service Organization Division: - organization of aeronavigational services of air traffic
   within the air space of Georgia; supervision of implementation of meteorological rules by air enterprises;
   organization of search and rescue services and coordination with other state agencies; elaboration of draft
   technical regulations within the scope of its competence.
d) Aircraft Flightworthiness and Registration Division: State registration of civil aviation aircraft of Georgia;
   maintenance of appropriate registry; establishment of flightworthiness of aircraft and issuing appropriate
   documents; supervision over technical exploitation of aviation machinery by aviation enterprises;
   certification of organizations providing technical service to aviation machinery and supervision of their
   activities; elaboration of draft technical regulations within the scope of its competence.
e) Transportation-Carriage Division: ensuring access of airlines registered in Georgia to the international
   market, ensuring access of airlines of foreign countries to the aviation market of Georgia, ensuring issuance of
   permits on non-scheduled flights, ensuring issuance of permits on aviation works on the territory of Georgia,
   checking of qualifications of personnel related to transportation of dangerous good by air enterprises;
   organizing auction related to issuance of scheduled international air service license, approval of flight
   schedules for airlines in accordance with navigational seasons, elaboration of draft technical regulations
   within the scope of its competence.
49
   http://www.uta.gov.ge/eng/aviacia/saq_navigacia.html.
50
   compare the list of national air companies at http://www.uta.gov.ge/eng/aviacia/erovnuli.html and foreign air
companies at http://www.uta.gov.ge/eng/aviacia/ucxouri.html.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation             15
no aircraft parts and equipment manufacturing organisations, 6 flight training organisations
and no type rating training organisations.


The number of aircraft registered in the Georgian registry is 34 (mostly aircraft produced in
the Soviet Union/Ukraine/Russia). The number of special aircraft non-registered is 2
(sporting purposes).


The numbers of valid licenses for aviation personnel are:
          PPL: 5 licenses
          CPL: 43 licenses (including 6 CHPL – helicopter pilots licenses)
          ATPL: 82 licenses (including 14 helicopter pilots licenses)
          Navigators: 5 licenses
          Free balloon: 3 licenses
          Flight engineer: 32 licenses (including 7 for helicopters)
          Cabin crew: 109 licenses
          Maintenance personnel: 194 licenses
          Air traffic control: 108 licenses.


The Universal Safety Oversight Audit Programme (USOAP) of the International Civil
Aviation Organisation (ICAO)
In May/June 2007, CAD was audited by the International Civil Aviation Organisation under
its Universal Safety Oversight Audit Programme (USOAP) on aviation safety 51. In response
to findings made in the audit report, an action plan addressing actions to be taken to address
adverse findings, was submitted some time later by CAD. A follow-up was conducted in
2008 and in 2009 by ICAO. The first report listed more than 100 findings. The final report
contained only 14 findings where further action is needed. This is under progress.


The Twinning Project Programme will have to take into account the findings and will discuss
and present proposals as to how these requirements can be met adequately.


Whatever the findings may be, they will have to be addressed by remedial proposals covered
by the Twinning Project. Otherwise there is a risk that air operators from Georgia could be
affected by measures taken by the EU under the Regulation on operational bans ("black list").

51
     Available on the ICAO website according to UTA staff.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   16
The MAK (Interstate Aviation Committee)
MAK/IAC (Interstate Aviation Committee) was established in 1991, when 12 states of the
former Soviet Union, including Georgia, signed the Intergovernmental Agreement on Civil
Aviation and Use of Airspace. MAK/IAC is designed as an executive body coordinating the
use and management of airspace and the sphere of civil aviation of member states.


This aviation organisation of CIS (Commonwealth of Independent States) now plays only a
minor role in Georgia. Georgia has made financial contributions to MAK. Although
membership is not yet formally terminated this is already under discussion. The main
connection appears to be the type certification of ex-soviet aircraft.


Georgia and the European Aviation Safety Agency (EASA)
Given the oncoming dissolution of JAA, which are already in a state of Transition (JAA-T),
and the takeover of their rulemaking responsibilities by EASA by end of June 2009, EASA
will offer Georgia and other now JAA candidates a co-operation on the basis of a working
arrangement to cover the interim time until a fully-fledged EU-Georgia aviation agreement is
covering the relations. The Twinning project should offer assistance in further developing
relations between Georgian authorities and EASA.


The application of Regulation (EC) 1008/2008 (on air services), Commission Regulations
(EC) 1702/2003 and 2042/2003 (including the different Parts) and 859/2008 (EU OPS , in
force since 20 September 2008) are causing concerns in Georgia and for some air operators
registered here. The future law is expected to be too burdensome to Georgian air operators.
This is particularly true for EASA‟s certification deadline of 28 March 2007 under regulation
1702/2003, Article 2c para 2 and 3. According to Article 1 of Commission Regulation (EC)
No 287/2008 of 28 March 2008 on the extension of the period of validity referred to in
Article 2c(3) of Regulation (EC) No 1702/2003 “(t)he period of validity referred to in
paragraph 2 of Article 2c of Regulation (EC) No 1702/2003 is extended until 28 September
2009 with respect to the aeroplanes of type Antonov AN-26 and AN-26B and the helicopters
of type Kamov-32A12 and Kamov-32A11BC.” In Georgia, only the latter aircraft (Antonovs)
out of the listed ones are still being operated. In addition to that, the following types from the
Soviet era: TU-134A, IL-76, AN-12, YAK-40 and Mi-8 - operate in Georgia.




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   17
The CAD strategy in civil aviation
This strategy (by CAD) is to progressively move from its current situation to:
- step 1:    Conclusion of a working arrangement with EASA in 2009
- step 2:    Continued implementation and application of legislation in the area of
             airworthiness, continuous airworthiness, the remaining JARs and the EU OPS
- step 3:    achieving mutual recognition with the EC and full integration with the EC/EASA
             system through the EU-Georgia Common Aviation Area agreement
- step 4:    Full implementation of the aviation EU Acquis Communautaire.


3.2     Linked activities (other international and national initiatives).
1.      Translation of the EU Acquis, in the field of Civil Aviation, is presently in progress.
        (TACIS 2006 Service Contract N. TACIS 2007/145736, “Accompanying Activities
        for Promotion of Twinning Instrument in Georgia”) – this is relevant for the
        translation of necessary legal texts.
2.      TAIEX - the Technical Assistance and Information Exchange Instrument of the
        European Commission: To provide short-term technical assistance, in line with the
        overall policy objectives of the European Commission, and in the field of
        approximation, application and enforcement of EU legislation.
3.      In order to provide additional information and in order to facilitate learning from
        earlier projects‟ experiences, the following list of other similar Twinning Projects in
        Central and Eastern European States is given:
            The most similar ongoing Twinning Project is about to be completed in Ukraine
             (1M€, UA06/ PCA/TP01)
            Another Twinning project in this area was launched in Armenia in February 2010.
             (1.1M, AM09/ENP-PCA/TP/03)
            Lithuania (2.5M€, including aviation: LT2001/IB/TR/01) and a Twinning light
             (0.25M€, LT03/IB/TR/02/TL)
            Poland (0.5M€, PL02/IB/TR/01)
            Twinning light in Estonia (~0.1M€, EE04-IB-TR-01).



3.3     Mandatory Results
At the completion of the project:
The CAD shall be ready for the EASA standardisation visit(s). For this the following
conditions shall apply:


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   18
        1.       All European aviation safety regulations listed in Annex 3 are transposed into
                 the Georgian legal system.
        2.       All EU legislation listed in Annex 3 can be correctly applied by the CAD and
                 commercial operators through the use of developed technical guidance and
                 tools (certification specifications, including airworthiness codes and acceptable
                 means of compliance, as well as any guidance material). All the tools (internal
                 procedures, inspectors‟ guidance materials, check-lists, data bases and other)
                 necessary for the implementation of European aviation safety regulations
                 specified in Annex 3 are developed.
        3.       Courses, training and work experience placements for selected CAD staff and
                 industry are completed according to components 3.3, 3.4, 3.5 and 3.6 (see
                 below).
        4.       Proposals regarding effective implementation and enforcement safety
                 oversight mechanisms will be made. The proposed institutional structure shall
                 show clear responsibilities and authority for safety oversight.




3.4     Activities
In order to achieve the required results of paragraph 3.3, a number of activities have been
identified, which are also instrumental in the civil aviation global strategy of Georgia.


The expected results and the respective activities fall into 5 components which are:
Component 0:        General activities
Component 1:        Assessment and Analysis of the Current Situation
Component 2:        Harmonisation of Georgian Civil Aviation Standards with the European
                    Standards
Component 3:        Implementation and Training
Component 4:        Recommendations for Organizational Changes and Schedule of Activities
Component 5:        Actions for the Future


Component 0: General activities
The official language of the project will be English. All formal communication regarding the
project, including all reports will be produced in English. Translation into Georgian language




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   19
of all (relevant) project results shall be made which shall be financed by this Twinning‟s
Budget52.


At quarterly intervals the Project Leaders, the RTA and his/her counterpart will assess the
project progress, verify the achievements of the outputs and mandatory results and define
actions required (Project‟s Steering Committee, according to the Twinning Manual 53).


Following the inception report, reports will be issued by the MS Project Leader, in
cooperation with the BC Project Leader, every three months.


The following two concrete events will ensure visibility of the entire project, the integration
of different stakeholders and the dissemination of the achieved results:
0.1     Kick-off Meeting
0.2     Closing Conference
The objectives of these two activities are to form the team, to add impetus to the twinning by
mutual strengthening of the personal relationships of all twinning members, to clearly define
the twinning targets and deadlines by statements of team leaders, RTA and key experts, to
assure political awareness by the presence and contribution of the ministerial level in both
countries by the presence of ministers (if possible) in order to strengthen high-level backing.
Participants of 0.1 and 0.2 should be all experts and representatives of all involved
institutions. Public visibility may be enhanced by a project website, press releases, photo
documentation and interviews.



Component 1: Assessment & Analysis of the Current Situation
1       Review the Air Transport System architecture of Georgia with respect to meeting the
        requirements of the European certification, licensing and operational standards in the
        aviation sector. Analyse the relationships, roles and responsibilities within and
        between the actors (Ministry of Regional Development and Infrastructure, UTA/CAD,
        Sakaeronavigatsia, Airlines, Airports, Industry).
1.1     Review the status of the promulgation and implementation into Georgian legislation
        of the EU acquis listed in detail in Annex 3 and their application by CAD and by the


52
   Emphasis on the necessity of translations was made among others by the TAIEX mission report (9 to 13 June
2008, INFRA IND/EXP 30149) preceding this Twinning initiative, namely in chapters 5.7 and 6.5.
53
   http://ec.europa.eu/enlargement/how-does-it-work/financial-assistance/institution_building/twinning_en.htm


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation      20
           Georgian aviation industry. The result shall be presented in the form of a table 54
           which shall be regularly updated over the course of the project.
1.2        Review the coherence between the CAD orders and the Georgian Air Code. Also,
           review the coordination with related projects (e.g. ENPI).
1.3        Assess the ICAO USOAP 55 reports and coordinate with CAD on the required
           corrective actions and recommendations made.
1.4        Review the UTA/CAD organisation against the requirements of the EU legislation.
1.5        Analyse and assess all UTA/CAD working procedures and manuals against the
           requirements of EU legislation listed in Annex 3 and Recommended Practices
           (SARPs) and the ICAO USOAP reports.


Component 2: Harmonisation of Georgian Civil Aviation standards with the European
standards
It is crucial that the activities of this component are achieved in close cooperation with the
Commission and EASA so as to avoid different recommendations in the implementation of
the requirements into Georgian practice.


2.1 Make revisions and/or amendments of the legal basis and CAD existing procedures and
       manuals together with the elaboration of new tools (certification specifications, including
       airworthiness codes and acceptable means of compliance, as well as any guidance
       material for the application of this) in Certification, Design & Production: Part-21, EASA
       Certification      Specifications,       as     listed   on    the     EASA         website       under
       http://www.easa.eu.int/ws_prod/g/rg_certspecs.php.
2.2 Make revisions and/or amendments of the legal basis and CAD existing procedures and
       manuals together with the elaboration of new tools (acceptable means of compliance, as
       well as any guidance material for the application of this) in Airworthiness Directives and
       Part 21A.3B (Annex to Reg. (EC) 1702/2003).
2.3 Make revisions and/or amendments of the legal basis and CAD existing procedures and
       manuals together with the elaboration of new tools (acceptable means of compliance, as
       well as any guidance material for the application of this) in Maintenance: Part-M and
       AMC & GM as issued by EASA: see EASA website AMC & GM current issue,
       http://www.easa.eu.int/ws_prod/g/rg_amcgm.php.


54
     Available online at least for the twinning members.
55
     Universal Safety Oversight Audit Programme.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation      21
2.4 Make revisions and/or amendments of the legal basis and CAD existing procedures and
    manuals together with the elaboration of new tools (acceptable means of compliance, as
    well as any guidance material for the application of this) in Maintenance Organisations:
    Part-145 and AMC & GM as issued by EASA: see EASA website AMC & GM current
    issue, http://www.easa.eu.int/ws_prod/g/rg_amcgm.php.
2.5 Make revisions and/or amendments of the legal basis and CAD existing procedures and
    manuals together with the elaboration of new tools (acceptable means of compliance, as
    well as any guidance material for the application of this) in Certifying Staff: Part-66 and
    AMC & GM as issued by EASA: see EASA website AMC & GM current issue,
    http://www.easa.eu.int/ws_prod/g/rg_amcgm.php.
2.6 Make revisions and/or amendments of the legal basis and CAD existing procedures and
    manuals together with the elaboration of new tools (acceptable means of compliance, as
    well as any guidance material for the application of this) in Maintenance Training
    Organisations: Part-147 and AMC & GM as issued by EASA: see EASA website AMC &
    GM current issue, http://www.easa.eu.int/ws_prod/g/rg_amcgm.php.
2.7 Make revisions and/or amendments of the legal basis and CAD existing procedures and
    manuals together with the elaboration of new tools (acceptable means of compliance, as
    well as any guidance material for the application of this) in Flight Crew Licensing: JAR
    FCL 1, 2, 3 and 4.
2.8 Make revisions and/or amendments of the legal basis and CAD existing procedures and
    manuals together with the elaboration of new tools (acceptable means of compliance, as
    well as any guidance material for the application of this) in Flight Operations: EU-OPS,
    JAR-OPS 3 and the respective compliance lists.
2.9 Make revisions and/or amendments of the legal basis regarding the licensing of air
    carriers so as to make it compliant with Regulation (EC) No. 1008/2008.
2.10 Make revisions and/or amendments of the legal basis regarding accident investigation to
    make it complaint with the Directive 94/56
2.11 Make revisions and/or amendments of the legal basis regarding occurrence reporting to
    make it complaint with the Directive 2003/42


Component 3: Implementation and Training
It is crucial that the activities of this component are achieved in close co-operation with the
EC Commission and EASA so as to avoid different recommendations in the implementation
of the requirements into Georgian practice. The training courses listed below should be



Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   22
calculated on the basis of “half-day-presence” so as to give the UTA/CAD personnel the
chance to catch up with their daily works.
3.1 Contribute to the Georgian authorities‟ activities for implementing the accepted
    Organisational and Institutional Changes.
3.2 Contribute to the CAD‟s activities for adopting and implementing mechanisms to enforce
    the newly developed procedures and manuals in order to have them fully applied by the
    CAD.
3.3 Provide training for CAD Personnel and industry on the basic structure of EU and EASA
    and the rulemaking procedure for 32 persons for a duration of two weeks (2 courses for
    16 persons each).
3.4 Provide training for CAD Personnel and industry with respect to advanced theoretical
    courses, each for a duration of five days, on main legal instruments (Regulation (EC)
    1008/2008, EU OPS , Directive 94/56, Directive 2003/42 Parts-21, -M, -145, -66, -147 as
    well as JAR-OPS 3 and JAR-FCL 1, 2, 3 and 4 including applicable certification
    specifications, airworthiness codes and acceptable means of compliance, as well as any
    guidance material) for up to 10 persons from each of the following divisions: Flights
    Standards Certification Division, Air Transportation Division, Airworthiness and
    Registration Division, . The CAD Personnel of the Aerodromes and Airports Division as
    well as the Air Navigation Service Division shall complete a five days course each on the
    oncoming second extension of EASA competences for aerodromes and ATM/ANS, the
    latter one additionally to the Single European Sky Concept.
3.5 Provide training for CAD Personnel with respect to courses of at least 10 days duration,
    up to 10 CAD inspectors from each of the following divisions: Aerodromes and Airports
    Division, Flights Standards Certification Division, Air Transportation Division,
    Airworthiness and Registration Division, Air Navigation Service Division in their
    respective fields of responsibility. Subjects should at least cover: supervision
    methodology and auditing techniques including review of documentation, review and
    approval of operating/training manuals, training programmes, preparation of inspections,
    use of check-lists and forms, registration and reporting of findings and deficiencies.
3.6 Provide training for CAD Personnel with respect to theoretical and practical training
    (such as short courses, on the job training, workshops), in Georgia, of all CAD personnel
    who are concerned with the new elaborated tools. To be conducted by visiting experts and
    key CAD personnel to the following divisions personnel: Aerodromes and Airports
    Division, Flights Standards Certification Division, Air Transportation Division,



Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   23
    Airworthiness and Registration Division, Air Navigation Service Division, the Legal
    Office. On-the job training should be a key part of the Twinning project.
3.7 Study tours of 10 key inspectors for on the job visit of approximately 2 weeks in the
    administration of a Member State. The study tours should be addressed in the context of
    issuing a specific approval and auditing an approved organisation in the following fields:
        - Air Operator Certification and Supervision (Regulation (EC) 1008/2008, EU-OPS
        and JAR-OPS 3); 216/2008
        - Maintenance Organisations (Parts-M,-145 and -66);
        - Maintenance Training Organisations (Part-147);
        - Flight Training/type rating Organisations (JAR-FCL 1, 2, 3 and 4);
        - Certification of aerodromes (ICAO manual of aerodrome certification);
        - Auditing of quality systems (Quality Assurance);
         Security Measures (study tour of the personnel of the security office to the EC
        Commission and the administration of the selected EU MS);
        - Rulemaking techniques (study tour of the personnel of the legal office to EASA and
        the Commission (DG TREN) and the administration of the selected EU MS.


The above (sections 3.3, 3.4, 3.5, 3.6) training programme is exceptional in that Georgia is
changing its aviation safety requirements from one system to another. This requires all EU
legislation listed in Annex 3 to be correctly applied by CAD through the use of developed
guidance tools (certification specifications, including airworthiness codes and acceptable
means of compliance, as well as any guidance material) as required in the mandatory results
(chapter 3.3.1) of the project. Consequently, extensive professionally structured and
recognised training programmes are necessary at a theoretical and practical level. In order to
guarantee for utmost effectiveness of the advice on creating a new basis and implementing
the new rules it is highly recommended to have these courses completed at the very
beginning of the project.
This module has a strong “Training of Trainers” approach in order to ensure the sustainability
of the project. TOT is very important section of the project, as it gives the possibility to
increase the capacity of the CAD and can offer trainings locally. After the end of the project
trained trainers should be able to train new staff locally.
The selected EU MS must specify the selection procedures and criteria (e.g. technical and
language competences) for each course, training and work placement. The lists of persons to
be trained shall be approved by CAD.



Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   24
At the end of each course, training and work placement, the selected EU MS should also be
able to assess the course, the participation of the trainee and the benefits for the trainee, as
well as for the Project and the CAD. A written statement shall be produced which clearly
addresses these points.
The attendees should write a report for the Project Leader and the RTA describing the
benefits gained and proposing a number of changes in procedures or processes of his/her job
with adequate arguments for supporting the ideas.
When several reports (at least 5) for a division have been received the RTA should organize a
small workshop where each person gives a short presentation of the report. A reporter should
be appointed to record the questions and answers raised after each presentation.


Component 4: Recommendations for Organisational and Institutional Changes and
Schedule of Activities
4.1 Make a proposal for a revision of the Air Transport System organisational chart (clear
      definition of tasks and relationships).
4.2 Make a recommendation for a revision of CAD organisational structure, role and
      responsibilities.
4.3 Produce a schedule with well defined milestones for the project activities.


Component 5: Actions for the Future
In order to meet the overall objective of contributing to the harmonisation of Georgia‟s civil
aviation sector with EU standards so as to establish Georgia as an associated member of
EASA as a non-EU state and, this way, to be prepared to achieving mutual recognition of
licences and certificates with the EC, the selected EU MS should identify actions to be taken
by the appropriate Georgian authorities for:
5.1      Joining the European Common Aviation Area (ECAA), including:
5.1.1     Harmonising the Georgian legislation with the complete EU Acquis Communautaire
          in aviation (economic regulation, air transport policy, passengers‟ rights, air safety,
          Air Traffic Management/Single European Sky, etc.).
5.1.2     Georgia becoming a fully associate member of EASA through the Common Aviation
          Agreement and, if required, by concluding necessary working arrangements with
          EASA.
5.2      Renewing Georgian civil aviation equipment (e.g. navigation equipment, navigation
         radio beacons, special transports and so on).



Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   25
3.5      Means/ Input from the MS Partner Administration:
3.5.1. Profile and tasks of the MS Project Leader
The MS PL will be expected to devote a minimum of 3 days per month to the project in their
home administration. In addition, he/she will coordinate, from the Member State side, the
Project Steering Committee (PSC), which will meet in Georgia at least every three months.


The main tasks of the Member State Project Leader are to ensure:
     the overall coordination of the Project;
     leading activities of the Project;
     the achievement of the mandatory results.


The MS Project leader shall:
     be a long-term civil servant from the Member State Civil Aviation Administration with
      necessary experience in a leading position in civil aviation;
     have education and experience in the field of project management, institutional issues and
      organisation of regulatory & safety oversight works in civil aviation;
     have a good understanding of safety oversight systems, including the eight critical
      elements as defined by ICAO
     have a good command of written and spoken English;
     have an excellent knowledge of EU aviation legislation;
     have a good knowledge of aviation legislation.


3.5.2 Profile and tasks of the RTA
The Resident Twinning Adviser (RTA) will provide 18 months input on site (including
leave), and the main tasks are:
     manage the day-to-day coordination and progress of the activities of the project in
      Georgia (office accommodation in the CAD premises);
     liaise with the BC Project Leader;
     report to the MS Project Leader;
     follow up progress action plans of CAD staff on their return from work placements;
     deliver practical and theoretical consultancy to the beneficiary throughout the entire
      project.




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   26
The RTA will be supported by an assistant and a language assistant with suitable academic
and language formation for all 18 months, experience in EU affairs, computer literate,
organisational talents and if possible experienced in aviation or administration. These two
assistants are responsible to the RTA and hired by the RTA.


The RTA shall:
    be a civil servant from the Member State Civil Aviation Administration with more than
     10 years experience in civil aviation;
    have an education and experience in the field of project management, institutional issues
     and aviation safety oversight activities;
    have an excellent command of written and spoken English. A spoken capability in
     Russian or Georgian would be an advantage.


3.5.3 Profile and tasks of the short-term experts (STE)
To achieve the mandatory results and to carry out the activities as per section 3.4 (activities)
the short-term experts‟ assistance as defined by Table 1 is needed (with office
accommodation in the CAD premises). Total STE support amounts to 97 weeks. Details are
also given of each expert‟s respective involvement in the other activities and the suggested
activity leader. Since the subject of the project is legal harmonisation, the Legal Expert (STE
1) plays a significant role. They have not only their own separate tasks but are also the focal
point for the other (technical) experts and their special duties. Apart from that, all experts
assist the PL and RTA. Full details are presented in matrix form in Table 1.


Table 1: Profiles for the Twinning STE’s. 1 mission is assumed to last 1 week in all cases except STE 1.
No. & Type         Tasks                                    Profile                             Input
STE 1              Legal review of implementation           Expert in European law,             19 weeks
Legal and          of JARs/EASA Parts, EU-OPS 1             aviation law, legal and             in 10
Administrative     and Reg. (EC) 1008/2008                  institutional issues.               missions (1
Expert             (Activity 1.2 and 1.7).                  University degree.                  mission = 2
                   Coherence review between the             Excellent command of                weeks for
                   Georgian Air Code and CAD                written and spoken English.         STE 1),
                   orders and assessments of the
                   ICAO Audits (leads Activity 1.3                                              including 8
                   and 1.4).                                                                    weeks of
                   Developing organisational and                                                training
                   institutional changes (leads                                                 courses56

56
  namely 2 training courses with 2 weeks on EU and EASA + 1 training course with 2 weeks on Reg.
1008/2008 + 1 training course with 2 weeks on bilateral and horizontal air service agreements


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation     27
              activities 1.5, 3.1, 3.2, 4.1 - 4.3).
              Courses on basic EU and EASA
              structure and rulemaking
              (Activity 3.3) as well as on Reg.
              (EC) 1008/2008. Bilateral and
              horizontal air service
              agreements. Access to the
              aviation market to the Air
              Transportation Division (3.4).
              Assistance to Project Leader &
              RTA (Activities 1.1, 5.1 to 5.7).
STE 2         Development and                                 Excellent knowledge of              10 weeks
Certification implementation of a regulation                  EASA Parts, expert in               in 10
Expert        and respective CAD CS,                          aircraft certification, design      missions,
              including airworthiness codes                   and production.
              and AMC, as well as GM against                  Experience of at least 10           including 3
              EASA Part-21 requirements in                    years in (JARs 21) EASA             weeks of
              aircraft type certification, design             Part-21 application.                training
              and manufacturing organisations                 Ability to develop guidance         courses57
              approval (leads Activity 1.6 and                tools (certification
              Component 2 in his field of                     specifications, including
              competence).                                    airworthiness codes and
              Courses and OJT training of                     acceptable means of
              CAD certification experts                       compliance, as well as
              (Activities 3.4, 3.5 and 3.6 in his             guidance material).
              field of competence).                           Excellent command of
              Assistance to the RTA                           written and spoken English,
              (Activities 1.2, 1.4; 4.3, 5.3) and             University degree or
              to STE 1 (1.3, 3.1, 3.2, 4.1 - 4.3).            equivalent.
STE 3         Assessment, revision &                          Excellent knowledge of              11 weeks
Airworthiness development of a regulation and                 EASA Part –M and Part-              in 11
Expert        respective CAD airworthiness                    145, expert in                      missions,
              codes, AMC, GM etc. against                     Airworthiness.
              ICAO & EASA Parts-M and -                       Experience of at least 10           including 3
              145 requirements in the field of                years in safety oversight.          weeks of
              aircraft airworthiness and                      Ability to develop guidance         training
              maintenance approved                            tools (certification                courses57
              organisation (leads Activity 1.6                specifications, including
              and Component 2 in his field of                 airworthiness codes and
              competence).                                    acceptable means of
              Courses and OJT training of                     compliance, as well as
              CAD airworthiness inspectors                    guidance material).
              (Activities 3.4, 3.5 and 3.6 in his             Excellent command of
              field of competence).                           written and spoken English.
              Assistance to the RTA                           University degree or
              (Activities 1.2, 1.4, 4.3, 5.3) and             equivalent
              to STE 1 (1.3, 3.1, 3.2, 4.1 - 4.3).
STE 4         Assessment, revision &                          Excellent knowledge of              9 weeks in

57
   namely 1 training course with 1 week (see chapter 3.4) + 1 training course with 1 week (see chapter 3.5) + 1
training course with 1 week (see chapter 3.6).


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation            28
Certifying         development of a regulation and          JARs/EASA parts, expert in          9 missions,
Staff Expert       respective CAD AMC, GM etc               certifying staff.
                   against EASA Part-66                     Experience of JAR-                  including 3
                   requirements for certifying staff        66/EASA Part-66,                    weeks of
                   (leads Activity 1.6 and                  implementation &                    training
                   Component 2 in his field of              application.                        courses57
                   competence)                              Ability to develop guidance
                   Courses and OJT training of              tools (procedures, manuals,
                   CAD certifying staff inspectors          etc …).
                   (Activities 3.4, 3.5 and 3.6 in his      Excellent command of
                   field of competence).                    written and spoken English.
                   Assistance to the RTA                    University degree or
                   (Activities 1.2, 1.4, 4.3, 5.3) and      equivalent.
                   to STE 1 (1.3, 3.1, 3.2, 4.1 - 4.3).
STE 5              Assessment, revision &                   Excellent knowledge of              10 weeks
Maintenance        development of a regulation and          JARs/EASA parts, expert in          in 10
training           respective CAD AMC, GM etc.              approval of Flight training         missions,
Expert             against EASA Part-147                    organisation.
                   requirements in maintenance              Experience of JAR                   including 3
                   training organisation approval           147/EASA part 147                   weeks of
                   (leads Activity 1.6 and                  implementation &                    training
                   Component 2 in its field of              application.                        courses57
                   competence).                             Ability to develop guidance
                   Courses and OJT training of              tools (procedures, manuals,
                   CAD maintenance training                 etc.).
                   organisations experts (Activities        Excellent command of
                   3.4, 3.5 and 3.6 in its field of         written and spoken English.
                   competence).                             University degree or
                   Assistance to the RTA                    equivalent.
                   (Activities 1.2, 1.4, 4.3, 5.3) and
                   to STE 1 (1.3, 3.1, 3.2, 4.1 - 4.3).
STE 6              Assessment, revision &                   Excellent knowledge of              13 weeks
Flight             development of a licensing               Reg. (EC) 1008/2008 and of          in 13
Operations         regulation and respective CAD            EU OPS 1, JAR OPS 3,                missions,
Expert             working procedures, and                  expert in Flight Operations.
                   inspection manuals against EU            Experience of at least 10           including 3
                   OPS 1, JAR OPS 3 requirements            years in safety oversight.          weeks of
                   in the field of flight operations        Ability to develop guidance         training
                   (leads Activity 1.6 and                  tools (procedures, manuals,         courses57
                   Component 2 in its field of              etc).
                   competence)                              Excellent command of
                   Courses and OJT training of              written and spoken English.
                   CAD flight operations experts            University degree or
                   (Activities 2.8 and 2.10 in its          equivalent.
                   field of competence).
                   Assistance to the RTA
                   (Activities 1.2, 1.4, 4.3, 5.3) and
                   to STE 1 (1.3, 3.1, 3.2, 4.1 - 4.3).
STE 7              Assessment, revision &                   Excellent knowledge of              10 weeks
Flight crew        development of a regulation and          JARs, Expert in flight crew         in 10
licensing          respective CAD working                   licensing                           missions,


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation      29
expert             procedures, and inspection               Experience of at least 10
                   manuals against ICAO &                   years in JAR FCL                    including 3
                   JARs/EASA parts-requirements             application                         weeks of
                   in flight crew licensing, flight         Ability to develop guidance         training
                   training/type rating organisations       tools (procedures, manuals,         courses57
                   (leads Activity 1.6 and                  etc …).
                   Component 3 in its field of              Excellent command of
                   competence)                              written and spoken English.
                   Courses and OJT training of              University degree or
                   CAD FCL experts (Activities              equivalent.
                   3.4, 3.5 and 3.6 in its field of
                   competence).
                   Assistance to the RTA
                   (Activities 1.2, 1.4, 4.3, 5.3) and
                   to STE 1 (1.3, 3.1, 3.2, 4.1 - 4.3).
STE 8              Assessment, revision &                   Excellent knowledge of and          4 weeks in
Aerodrome          development of a regulation and          experience in aerodrome             4 missions,
certification      respective CAD working                   certification.
Expert             procedures, and inspection               Ability to develop guidance         including 3
                   manuals against ICAO                     tools (procedures, manuals,         weeks of
                   requirements in aerodrome                etc …).                             training
                   certification and a possibly             Excellent command of                courses57
                   existing EASA Part (leads                written and spoken English.
                   Activity 1.6 and Component 2 in          University degree or
                   its field of competence).                equivalent.
                   Courses and OJT training of
                   CAD aerodrome experts
                   (Activities 3.4, 3.5 and 3.6 in its
                   field of competence).
                   Assistance to the RTA
                   (Activities 1.2, 1.4, 4.3, 5.3) and
                   to STE 1 (1.3, 3.1, 3.2, 4.1 - 4.3).
STE 9              Assessment, revision &                   Excellent knowledge of and          4 weeks in
Air                development of a regulation and          experience in air navigation.       4 missions,
Navigation         respective CAD working                   Ability to develop guidance
Expert             procedures, and inspection               tools (procedures, manuals,         including 3
                   manuals against ICAO and                 etc …).                             weeks of
                   Eurocontrol requirements and             Must be familiar with the           training
                   procedures in air navigation             Single European Sky                 courses57
                   certification and licensing              Concept.
                   (organisation and personnel) and         Excellent command of
                   a possibly existing EASA Part,           written and spoken English.
                   (leads Activity 1.6 and                  University degree or
                   Component 2 in its field of              equivalent.
                   competence).
                   Courses and OJT training of
                   CAD air navigation experts
                   (Activities 3.4, 3.5 and 3.6 in its
                   field of competence).
                   Assistance to the RTA
                   (Activities 1.2, 1.4, 4.3, 5.3) and


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation    30
                   to STE 1 (1.3, 3.1, 3.2, 4.1 - 4.3).

An expert for the Directive 94/56/EC and the Directive 2003/42 will be also needed.


Study tours:
It is planned that one study tour will be undertaken pertaining to each of the thematic areas of
Table 1, i.e. the thematic areas allocated to the ten STEs. Such study tours have been
identified as very valuable components 58 ensuring a consistent cultural change in
administration. Long-standing experience with approximation procedures and with
Twinnings suggests that personal experience with on-site procedures in EU countries cannot
be replaced by pure office work in the beneficiary country. The Twinning philosophy (with
required permanent presence of an RTA in the beneficiary country) itself is grounded in the
insight that true implementation requires deep personal understanding of a country‟s culture
of communication and responsibilities – the same hold true also in the other direction from
beneficiary country towards the EU.
10 study tours are envisioned with a duration of 10 days each (i.e. 100 person-days for
Georgian staff in EU countries). UTA/CAD staff will undertake these study tours after having
undergone sufficient training in Georgia.


3.5.4 The Responsibilities of Experts with respect to the various Activities
Many of the activities listed in section 3.4 require inputs from several of the specialist experts
that have been described in sections 3.5.1 to 3.5.3 above.
The balance and amount of input from each expert may need to be revised during the
inception phase if there have been recent changes in the CAD.


4.      INSTITUTIONAL FRAMEWORK
4.1     Beneficiary Institution
The beneficiary institution will be CAD of UTA (Ministry of Regional Development and
Infrastructure). All divisions of CAD and several other offices of UTA (at least the Law
Office) will be involved in the project. Also, as mentioned in section 3.1 above, some of the
functional responsibilities are split across several divisions.




58
  Emphasis on the necessity of study tours was made among others by the TAIEX mission report (9 to 13 June
2008, INFRA IND/EXP 30149) preceding this Twinning initiative, namely in chapters 6.6, 6.7 and 6.8.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   31
Unless the new organisational structure meets requirements of the EU legislation listed in
annex 3 it is envisaged that the results of the project will lead to a change of the institutional
framework. Activity 3.4 (Component 4) under the direction of the Project Leader and the
RTA, assisted by the STE 1, is specifically tasked with this requirement.


4.2        Georgian Project Leader
The Georgian Project Leader (PL) will act as the counterpart to the Member State PL. In
close cooperation with him/her, the Georgian PL ensures the overall steering and
co-ordination of the project, the operational dialogue and the backing at political level. The
PL's seniority will ensure his ability to mobilise the necessary staff in support of the efficient
implementation of the project. He will also coordinate the Project Steering Committee (PSC)
from the Georgian side.


4.3        RTA Counterpart
The RTA Counterpart will work with the RTA on a daily basis to ensure proper coordination
and implementation of all the activities of the project and achieve an efficient transfer of
knowledge. He/She will be responsible, together with the RTA, for finalising the reports to be
submitted to the PLs for the Project Steering Committee.
The RTA Counterpart
    ensures close cooperation in the day-to-day implementation of the twinning project
          is sufficiently experienced on the subject of the twinning project
          is to be nominated as early as possible during the preparation of the project.


5.         BUDGET
One million two hundred fifty thousand Euro (€ 1,250,000).


6.         IMPLEMENTATION ARRANGEMENTS
6.1        Implementing Agency
The Implementing Agency responsible for tendering, contracting and accounting is the
European Commission (its Delegation to Georgia) 59.
The person in charge is:

Mr Per Eklund
Head of Delegation
Delegation of the European Union to Georgia
59
     http://www.delgeo.ec.europa.eu


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   32
38 Nino Chkheidze St.
0102 Tbilisi, Georgia
Tel: + (995 32) 943 763
Fax: + (995 32) 943 768
e-mail: delegation-georgia@ec.europa.eu

The person in charge of this project is the Project Manager for Transport - ad interim:

Mr Juan Echanove
Project Manager
Delegation of the European Commission to Georgia
38 Nino Chkheidze St.
0102 Tbilisi, Georgia
Tel: +995 32 943763
Fax: +995 32 943768
e-mail: juan.echanove@ec.europa.eu

PAO will support the TWG project implementation process together with the Delegation of
the European Union to Georgia

Twinning Programme Administration Office (PAO)
Mr. Roman Kakulia
Office of the State Minister of Georgia on European and Euro-Atlantic Integration
#7, Ingorokva Street, Tbilisi 0134, Georgia
Office tel/fax: (995 32) 93 14 02
E-mail: pao@eu-nato.gov.ge


6.2     Counterparts in the Beneficiary Country (BC)
The main counterpart in Georgia will be the UTA.
6.2.1. Project Leader
Mr. Archil Khojelani (Head of CAD of UTA)
Alexander Kazbegi Avenue № 12
0160 Tbilisi, Georgia
Tel: +995 (32) 36 42 53
Fax: +995 (32) 36 43 01
E-Mail: info@uta.gov.ge, a.khojelani@uta.gov.ge

6.2.2. Counterpart to the RTA
Ms. Tamuna Khitarishvili (Main Specialist on International Relations of CAD, UTA)
Alexander Kazbegi Avenue, 12
0160 Tbilisi, Georgia
Tel: +995 (32) 36 42 29
Fax: +995 (32) 36 42 29
E-Mail: t.khitarishvili@uta.gov.ge

6.2.3. Contact Person
Mr. Giorgi Mzhavanadze (Adviser of UTA)


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   33
Alexander Kazbegi Avenue, 12
0160 Tbilisi, Georgia
Tel: +995 (32) 36 43 07
Fax: +995 (32) 36 42 34
E-Mail: g.mzhavanadze@uta.gov.ge

6.2.4. Focal point
Ms. Tamuna Khitarishvili (Main Specialist on International Relations of CAD, UTA)
Alexander Kazbegi Avenue, 12
0160 Tbilisi, Georgia
Tel: +995 (32) 36 42 29
Fax: +995 (32) 36 42 29
E-Mail: t.khitarishvili@uta.gov.ge

6.3     Contracts
Only one twinning contract is foreseen for this project.


7.      IMPLEMENTATION SCHEDULE (INDICATIVE)
7.1     Launching of the call for proposals
March 2010.
7.2     Start of project activities
January 2011.
7.3     Action’s implementation period
18 months60 until November 2012.


8.      Sustainability
The project will have an impact on aviation in Georgia. Georgia will be accepted by EASA as
associated member and take an important step towards the acquis communautaire in aviation.
Georgian airlines will be deemed tom be safe and will have easier access to the market, in
particular to the European market.
At the end of the action the Georgian CAD will be in a position to master the necessary tasks
on their own. Since the project focuses very much on OJT the members of the CAD will
“own” the results of the project. At policy level, the project will not only lead to improved
legislation and methods but also in a professional understanding of the Georgian CAD
experts to implement the new laws.



60
   This mentioned period represents the activities implementation period (18 months) extended by three months
for the starting up and closure of the action.


Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation     34
9. CROSSCUTTING ISSUES (equal opportunity, environment, sustainability, etc…)
Each Twinning partner is required to comply with the equal opportunities requirements of the
EU. Whilst environmental requirements are not immediately applicable to the
implementation of the project, if any such situation does arise both partners are required to
comply with the environmental requirements of the EU.


10.       CONDITIONALITY AND SEQUENCING
The success of the project will be conditional on Georgia in general and the CAD in
particular (for this project) continuing their present excellent co-operation with the EU (see
Assumptions in the Log Frame). This includes:
     CAD accepts the binding conditions of making a Twinning agreement with the EU. This
      includes such aspects as:
      -   the provision of a permanent office for the RTA on the CAD premises, equipped with
          full office facilities (e.g. telephone, internet connection, printer etc.).
      -   the provision of a large open plan office (equipped with full office facilities such as
          telephone, internet connection, printer etc.) for the visiting experts whenever they are
          present.
      -   Georgian staff will be fluent in English (as much as possible) in order to allow for
          quick daily work and cooperation that necessitates no interpreter.
      -   The complete translation of all the required EC legislation into Georgian. This is a
          project requirement even though whilst the MS and CAD might complete the
          translation of all the required legal tools into Georgian (financed under the present
          Twinning Project) and submit the appropriate documents to the Ministry of Regional
          Development and Infrastructure within the period of the Twinning Project, actual
          promulgation of the documents into Georgian Law is conditional on when the
          Ministry of Economic Development actually „confirms‟ the documents as satisfactory.
     CAD continues the Georgian commitment to the specific aviation aspects of the EU-
      Georgian ENP Action Plan.
     Sufficient data, co-operation and communication (possibly hindered by a language
      barrier) is made available by CAD to the MS experts.
     Sufficient aspects of all necessary legal tools have been addressed in the Twinning
      Project.




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   35
   The culture of CAD and the overseen aviation organisations easily fits to the
    requirements of a new safety culture.
   The good cooperation on safety matters continues between all the organisations involved
    in the aviation sector.
   All necessary activities can be achieved within the duration of the project and within the
    allocated budget.
   Addressing possible difficulties caused by the language barrier, CAD will provide the MS
    experts with sufficient data, co-operation and communication.
   CAD encourages its staff to master fluent daily co-operation in English language.
   CAD encourages its staff to acquire sufficient basic knowledge on EU institutions and
    procedures.


Annex 2a presents a very provisional schedule for implementing the project‟s activities. This
should be carefully reviewed in the inception phase of the Twinning Project and revised in
accordance with the project requirements at the time of the inception phase.


ANNEXES TO PROJECT FICHE


Annex 1.         Logical Framework Matrix for Twinning Project
Annex 2a.        Provisional Activities Schedule
Annex 2b.        Implementation allocation of activities to experts
Annex 3.         List of relevant Laws and Regulations.




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   36
                                                                         Annex 1: TF log frame

LOGFRAME PLANNING MATRIX FOR                                                                         Programme name and                 Date of drafting this fiche:
Project                                                                                              number:                            December 2008
                                                                                                                                        Date of updating this fiche:
                                                                                                     GE09/ENP-PCA/TP/03                 May 2009
Harmonisation with EU norms of the legislation and standards of Georgia in                           Contracting period expires         Disbursement period
the field of Civil Aviation                                                                                                             expires
                                                                                                                   31/09/2011
                                                                                                                                              31/09/2012
                                                                                                         Total budget:   1,250,000 €    TF budget:  1,250,000 €


Overall objective                                       Objectively verifiable indicators            Sources of Verification
Ensuring that all Georgian aviation                        Georgia has prepared all                      COM and EASA on the
regulations in civil aviation safety and                    necessary legal texts and other                one hand
licensing of air carriers are harmonised with               documents and acquired                        to be checked against this
those of the European Union and                             sufficient expertise in order to               twinning‟s proposals,
implemented by the aviation authorities and                 join EASA as a non-EU state                    assessment reports,
industry in Georgia with the aim to                         and to achieve mutual                          guidelines, working
 - increase safety standards in Georgia                     recognition of licences and                    manuals,
 - support negotiations between the EU and                  certificates with the EC                       recommendations
Georgia in this area.


Project purpose                                         Objectively verifiable indicators            Sources of Verification            Assumptions




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation        37
(a) Specific Objective                                      Georgia as a state and especially          COM and EASA on the        
At the end of the project all the regulations of the         UTA has implemented the                     one hand
Georgian Civil Aviation are fully complying with the
requirements of the EC Regulation 216/2008 and
                                                             relevant norms from the EU                 to be checked against this
implementing Rules thereto the remaining JARs as                                                         twinning‟s proposals,
they stand on the 30 June 2009 (in the areas not                                                         assessment reports,
covered by the Implementing Rules), the EU OPS                                                           guidelines, working
(Regulation EC 3922/91 and following legislation),                                                       manuals,
Directive 94/45 and Directive 2003/42 and Regulation
(EC) 1008/2008, to the extent it concerns licensing of
                                                                                                         recommendations
air carriers. Operators, CAD and the Ministry should
fully understand, apply and implement these
requirements.

(b) Scope of the Twinning project:
Community legislation specified in Annex 3
The project‟s purpose is to be achieved through the
four following components (see chapter 2.2):
a) The legal objective
b) The technical objective
c) The training objective
d) The institutional building objective.




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation     38
Results                                                  Objectively verifiable indicators : Sources of Verification   Assumptions
(see chapter 3.3.1. above) At the completion of the
project:                                                 The project should build up a strong  RTA reports             Consent of relevant
The CAD shall be ready for the EASA standardisation working relationship with EASA such
visit(s). For this the following conditions shall apply:
                                                                                                EASA implementation     significant aviation
1. All European aviation safety regulations listed in    that Georgia will be able to become     reports                 stakeholders for
Annex 3 are transposed into the Georgian legal system .full member of EASA. Further, the                                 participation in the
2. All EU legislation listed in Annex 3 can be           project activities should enable the                            project
correctly applied by the CAD and commercial              country to progressively adopt the EU                          Commitment for
operators through the use of developed technical         Acquis with respect to aviation.
guidance and tools (certification specifications,                                                                        labour input into the
including airworthiness codes and acceptable means of                                                                    project by the
compliance, as well as any guidance material). All the                                                                   UTA/CAD and other
tools (internal procedures, inspectors‟ guidance                                                                         concerned bodies or
materials, check-lists, data bases and other) necessary                                                                  ministries.
for the implementation of European aviation safety
regulations specified in Annex 3 are developed. .
3. Courses, training and work experience placements
for selected CAD staff and industry are completed                                                                       (above items are
according to components 3.3, 3.4, 3.5 and 3.6 (see                                                                       applying to all
below).                                                                                                                  components)
4. Proposals regarding effective implementation and
enforcement safety oversight mechanisms will be
made. The proposed institutional structure shall show
clear responsibilities and authority for safety oversight.




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   39
Activities                                            Means                                                   Assumptions
See chapter 3.4 for details of the following                                                                    Co-operation with UTA
components:                                            Twinning contract                                        and with other relevant
                                                        (Short Term Experts + RTA + 2                            administrative bodies in
Component 0:                                            assistants to the RTA)                                   Georgia is ongoing and
  General activities                                   National experts coming from                             successful
Component 1:                                            the UTA                                                Co-operation with EASA is
  Assessment and analysis of the current                                                                         ongoing and successful
  situation
Component 2:
  Harmonization of Georgian Civil Aviation
  standards with the European standards                                                                        (above items are applying
Component 3:                                                                                                    to all components)
  Implementation and Training
Component 4:
  Recommendations for Organizational
  Changes and Schedule of Activities
Component 5:
  Actions for the future




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   40
 Annex 2: Provisional Activities Schedule

Annex 2a.         `
Table 2: Tentative timeline for the Twinning components (The position of the X can be changed during the contracting phase according to specific needs).


month                           1       2       3       4        5       6        7       8       9       10        11     12      13      14       15     16   17   18
C0                              X      X        X       X        X       X       X        X       X       X         X      X       X        X       X      X    X     X
     General Activities
C1                              X      X        X
     Assessment and
analysis of the current
situation
C2
                                                        X        X       X       X        X       X       X         X      X       X        X       X      X    X     X
    Harmonization    of
Georgian Civil Aviation
standards    with   the
European standards
C3
                                X      X        X       X        X       X       X        X       X       X         X      X       X        X       X      X
    Implementation        and
Training
C4
                                                        X        X       X       X        X       X       X         X      X       X
    Recommendations for
Organizational Changes
and Schedule of Activities
C5
                                                                                                                                            X       X      X    X     X
    Actions for the future



Annex 2b.         Implementation allocation of activities to experts


This allocation is already covered by Table 1.




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation         41
 Annex 3.        List of relevant Laws and Regulations

Regulation (EC) No 1008/2008 of the European Parliament and of the Council of 24 September
2008 on common rules for the operation of air services in the Community (Recast)

Council Regulation (EEC) No 3922/91 of 16 December 1991 on the harmonisation of technical
requirements and administrative procedures in the field of civil aviation as amended

Regulation (EC) No 216/2008 of the European Parliament and of the Council of 20 February 2008
on common rules in the field of civil aviation and establishing a European Aviation Safety Agency,
and repealing Council Directive 91/670/EEC, Regulation (EC) No 1592/2002 and Directive
2004/36/EC

Commission Regulation (EC) No 1702/2003 of 24 September 2003 laying down implementing
rules for the airworthiness and environmental certification of aircraft and related products, parts and
appliances, as well as for the certification of design and production organisations as amended

Commission Regulation (EC) No 2042/2003 of 20 November 2003 on the continuing air worthiness
of aircraft and aeronautical products, parts and appliances, and on the approval of organisations and
personnel involved in these tasks as amended

Council Directive 94/56/EC of 21 November 1994 establishing the fundamental principles
governing the investigations of civil aviation accidents and incidents

Directive 2003/42/EC of the European Parliament and of the Council of 13 June 2003 on
occurrence reporting in civil Aviation

CS-22 (Sailplanes and Powered Sailplanes)
CS-23 (Normal, Utility, Aerobatic and Commuter Aeroplanes)
CS-25 (Large Aeroplanes)
CS-27 (Small Rotorcraft)
CS-29 (Large Rotorcraft)
CS-34 (Aircraft Engine Emissions and Fuel Venting)
CS-36 (Aircraft Noise)
CS-APU (Auxiliary Power Units)
CS-AWO (All Weather Operations)
CS-E (Engines)
CS-ETSO (European Technical Standard Orders)
CS-Definitions (Definitions and Abbreviations)
CS-P (Propellers)
CS-VLA (Very Light Aeroplanes)
CS-VLR (Very Light Rotorcraft)


Acceptable Means of Compliance and Guidance Material related to Part 21, Part M, Part 66, Part
145, Part 66 and Part 147

JAR OPS 3 amendment 5
JAR 26 amendment 3
JAR MMEL/MEL amendment 1




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   42
JAR-FSTD A (Aeroplanes) – First issue, 01.05.2008
JAR FSTD H (Helicopters) – First issue, 01.05.2008
JAR-FCL 1 (Aeroplane) amendment 7, published 1/12/2006
JAR-FCL 2 (Helicopter) amendment 6, published 1/2/2007
JAR-FCL 3 (Medical) amendment 5, published 1/12/2006
JAR-FCL 4 (Flight Engineers) amendment 3, published 1/9/2005
JAA Administrative & Guidance Material, Section 4: Operations, Part 2, Procedures – revision
01/10/2008
JAA Administrative & Guidance Material, Section 6: Synthetic Training Devices, Part 2,
Procedures – revision 01/02/2008
JAA Administrative & Guidance Material, Section 5, Personnel Licensing, Part 2, Procedures –
published 01/10/2008



                                       * * * end of Twinning Fiche * * *




Harmonisation with EU norms of the legislation and standards of Georgia in the field of Civil Aviation   43

				
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