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Viewing cable 08NAIROBI2041, KENYA HITS TURBULENCE ON APPROACH TO "SAFE SKIES"

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Reference ID Created Released Classification Origin
08NAIROBI2041 2008-08-28 06:38 2011-08-25 00:00 UNCLASSIFIED//FOR OFFICIAL USE ONLY Embassy Nairobi
VZCZCXYZ0000
RR RUEHWEB

DE RUEHNR #2041/01 2410638
ZNR UUUUU ZZH
R 280638Z AUG 08
FM AMEMBASSY NAIROBI
TO RUEHC/SECSTATE WASHDC 6890
INFO RUEHXR/RWANDA COLLECTIVE
RULSDMK/DOT WASHDC
RHMCSUU/FAA WASHDC
RUEAHLC/HOMELAND SECURITY CENTER WASHDC
UNCLAS NAIROBI 002041 
 
SENSITIVE 
 
DEPT FOR AF/E, AF/RSA, AND AF/EPS 
DEPT FOR EEB/TRA J EMERY 
DEPT ALSO PASS TO DOT FOR CORNELIA (CONNIE) HUNTER 
TSA FOR JILLENE MACCREERY, CARLOS DE LA TORRE, AND MIRIAM MOSES 
FAA FOR DONNA KRIMSKI 
FAA REPRESENTATIVE DAKAR 
 
SIPDIS 
 
E.O. 12958:  N/A 
TAGS: EAIR ECON ASEC PTER KCRM KE
SUBJECT: KENYA HITS TURBULENCE ON APPROACH TO "SAFE SKIES" 
 
REF: NAIROBI 1725 
 
1. (SBU) Summary: The Kenya Civil Aviation Authority (KCAA) must 
immediately hire at least three qualified aviation inspectors if 
Kenya is to potentially achieve FAA Category One status within 12-18 
months.  Despite the high salaries demanded by these inspectors, 
Prime Minister Odinga and Transport Minister Ali Mwakwere remain 
committed to the goal of achieving Category One to accrue the 
benefits of direct flights to the U.S. and take full advantage of 
the June 2008 Bilateral Open Skies Agreement.  Odinga and Mwakwere 
agree on how to fill the current vacancies: upgrade KCAA to a higher 
category para-statal, thereby permitting KCAA to pay higher salaries 
to recruit and retain qualified inspectors to certify Kenya Airway's 
diverse fleet.  As of August 27, the proposal to upgrade KCAA's 
para-statal status and add inspectors was pending approval before 
Cabinet.  Both physical and programmatic security upgrades to Jomo 
Kenyatta International Airport are also needed for Kenya to achieve 
Category One; the Prime Minister has instructed the Kenya Airport 
Authority to implement the upgrades.  Moreover, Odinga's task is to 
make -- in practice -- the Kenya Airports Authority (KAA) and Kenya 
Airways (KQ) subordinate to KCAA; this oversight is the pillar of 
FAA Category One for safety as well as International Civil Aviation 
Organization and Transportation Security Administration (TSA) 
requirements.  Even with the best of intentions, Kenya's achievement 
of Category One could take at least 12-18 months.  End Summary. 
 
2.  (SBU) Visiting DOT "Safe Skies for Africa" Program Manager 
Connie Hunter, accompanied by the DCM, A/ECON Counselor, and TSA 
Regional Advisor, met with Prime Minister Odinga August 18.  The 
purpose of the meeting was to inform Odinga of the immediate steps 
that Kenya must take to achieve FAA Category One status, a 
prerequisite for direct flights to the U.S.  Hunter made clear that 
the cash-strapped Kenya Civil Aviation Authority (KCAA) must 
immediately hire at least three qualified journeymen-level aviation 
inspectors (two covering flight operations, the other 
airworthiness). Hunter explained that KCAA needs these inspectors 
onboard now to certify Kenya Airways' (KQ) diverse fleet of 
aircraft, including Boeing 737s, 767s, and 777s, as part of the 
process of meeting international safety standards leading to 
achieving FAA Category One status.  Hunter emphasized that without 
these inspectors (and a plan to retain them), Kenya's pursuit of FAA 
Category One -- and the benefits of the June 2008 Bilateral Open 
Skies Agreement -- would stall.  On the other hand, if KCAA could 
hire the inspectors "today," Kenya could potentially obtain Category 
One status within 12-18 months.  Hunter noted a $1 million U.S. 
pledge to the East African Community's regional aviation safety and 
security oversight organization, which could help offset training 
costs for any new Kenyan inspectors, potentially including flight 
simulators training.  Hunter reiterated the requirement for 
sustainable safety and security oversight by KCAA. 
 
3.  (SBU) The Prime Minister thanked Hunter for continued U.S. 
assistance on civil aviation.  After briefly consulting with his 
staff, Odinga suggested that the solution would be to upgrade KCAA's 
para-statal status to provide it the authority and the budget to pay 
the high salaries needed to hire and retain these specialized 
inspectors.  (Note: In the past, Kenya Airways and Middle Eastern 
airlines have repeatedly poached U.S.-trained KCAA inspectors, 
luring them away with generous salaries and benefits.)  Odinga said 
he would discuss the para-statal upgrade with President Kibaki 
within the week, noting the benefits to tourism and trade that would 
accrue from KQ's access to the U.S. market.  He concluded the 
meeting by stating "we will do everything possible to make this 
happen." 
 
4.  (SBU) In a follow-on meeting with Minister of Transportation 
Mwakwere and the heads of KQ, KCAA, and the Kenya Airport Authority 
(KAA), Hunter delivered the same message regarding the need for KCAA 
to hire qualified inspectors to certify KQ's technically advanced 
fleet.  Hunter also noted that KAA had not yet implemented security 
upgrades required by TSA for the airport to serve as a last point of 
departure for flights to the United States.  The upgrades include 
enhancements to both the physical layout of the airport/terminal as 
well as to several key programs.  Without the inspectors and 
security upgrades, KQ would not be permitted to fly to the U.S., 
Hunter said.  Contrasting KQ with Delta, Hunter noted that Delta's 
fleet was already FAA certified and the only obstacles to Delta's 
providing direct U.S-Kenya-U.S. flights were relatively minor 
security upgrades in the terminal area of JKIA. 
 
5.  (SBU) In response, Minister Mwakwere said he had instructed KAA 
to expedite the required security enhancements at the airport.  The 
Minister responded that he was aware of the inspectors issue and 
that he was forwarding to Cabinet a proposal to upgrade the status 
of KCAA to provide it the authority and budget to hire and retain 
the specialized inspectors.  Note:  As of August 26, the proposal to 
upgrade KCAA (including the addition of ten new inspector positions) 
was still before Cabinet awaiting approval. End Note. 
 
6.  (SBU) Comment: The GOK ranks para-statals according to their 
"revenue importance." KAA, whose Managing Director, George Muhoho, 
is a close friend of President Kibaki, enjoys the highest ranking. 
On the other hand, KCAA, which theoretically oversees KAA, has had a 
lower ranking.  Not only has this imbalance made it impossible for 
cash-strapped KCAA to hire and retain qualified 
personnel/inspectors, it has also created a situation where KCAA 
cannot exercise oversight of the KAA -- or of Kenya Airways and 
other airlines. 
 
7.  (SBU) Comment continued: We have long championed KCAA and 
advised the GOK of the need to put more resources and authority into 
KCAA in order to make it a sovereign and well-equipped aviation 
oversight body.  DOT Hunter's visit was timely and useful in 
focusing high-level GOK attention on the obstacles to achieving 
Category One status, and precipitating actions to remove them. 
Clearly, the June 2008 Bilateral Open Skies Agreement (signed by 
Minister Mwakere and witnessed by the Prime Minister in Washington), 
which opens the possibility of direct flights by Kenya Airways to 
the U.S., has galvanized the Government of Kenya.  While 
disappointed to learn that the certification of KQ's fleet, along 
with other tasks, could delay achievement of that goal by another 
12-18 months -- even if the security upgrades to JKIA were complete 
and aviation inspectors hired "yesterday" -- both the Prime Minister 
and Minister of Transportation announced their intention to expedite 
the process and achieve Category One as quickly as possible.  End 
comment. 
 
 
RANNEBERGER