Commission Implementing Regulation (EU) 2025/1144 of 3 June 2025 amending Regulation (EC) No 474/2006 as regards the list of air carriers banned from operating or subject to operational restrictions within the Union

THE EUROPEAN COMMISSION,

Having regard to the Treaty on the Functioning of the European Union,

Having regard to Regulation (EC) No 2111/2005 of the European Parliament and of the Council of 14 December 2005 on the establishment of a Community list of air carriers subject to an operating ban within the Community and on informing air transport passengers of the identity of the operating carrier, and repealing Article 9 of Directive 2004/36/CE (1), and in particular Article 4(2) thereof,

Whereas:

(1) Commission Regulation (EC) No 474/2006 (2) establishes the list of air carriers, which are subject to an operating ban within the Union.

(2) Certain Member States and the European Union Aviation Safety Agency (‘the Agency’) communicated to the Commission, pursuant to Article 4(3) of Regulation (EC) No 2111/2005, information that is relevant for updating that list. Third countries and international organisations also provided relevant information. Based on the information provided, the list should be updated.

(3) The Commission informed all air carriers concerned, either directly or through the authorities responsible for their regulatory oversight, about the essential facts and considerations, which would form the basis of a decision to impose an operating ban on them within the Union, or to modify the conditions of an operating ban imposed on an air carrier which is included in the list set out in Annex A or Annex B to Regulation (EC) No 474/2006.

(4) The Commission gave the air carriers concerned the opportunity to consult all relevant documentation, to submit written comments and to make an oral presentation to the Commission and to the EU Air Safety Committee.

(5) Within the framework of Regulation (EC) No 2111/2005 and Commission Delegated Regulation (EU) 2023/660 (3), the Commission informed the EU Air Safety Committee about the ongoing consultations with the competent authorities and air carriers of Armenia, Iraq, Kyrgyzstan, Libya, Suriname, and Tanzania. The Commission also informed the EU Air Safety Committee about the aviation safety situation in Angola, Egypt, Kazakhstan, Kenya, Nepal, Pakistan, and Sierra Leone.

(6) The Agency informed the Commission and the EU Air Safety Committee about the technical assessments conducted for the initial evaluation and the continuous monitoring of Third Country Operator (‘TCO’) authorisations, issued pursuant to Commission Regulation (EU) No 452/2014 (4).

(7) The Agency also informed the Commission and the EU Air Safety Committee about the results of the analysis of ramp inspections carried out under the Safety Assessment of Foreign Aircraft programme (‘SAFA’), in accordance with Commission Regulation (EU) No 965/2012 (5).

(8) In addition, the Agency informed the Commission and the EU Air Safety Committee about the technical assistance projects carried out in third countries affected by an operating ban pursuant to Regulation (EC) No 474/2006. Furthermore, the Agency provided information on the plans and requests for further technical assistance and cooperation to improve the administrative and technical capability of civil aviation authorities in third countries with a view to helping them assure compliance with applicable international civil aviation safety standards. Member States were invited to respond to such requests on a bilateral basis in coordination with the Commission and the Agency. In that regard, the Commission reiterated the usefulness of providing information to the international aviation community, particularly through the International Civil Aviation Organization's (‘ICAO’) Aviation Safety Implementation Assistance Partnership tool, on technical assistance to third countries provided by the Union and Member States to improve aviation safety around the world.

(9) Eurocontrol provided the Commission and the EU Air Safety Committee with an update on the status of the SAFA and TCO alarming functions, including statistics about alert messages for banned air carriers.

Union air carriers

(10) Following the Agency’s analysis of information resulting from ramp inspections carried out on the aircraft of Union air carriers, as well as standardisation inspections carried out by the Agency, and complemented with information stemming from specific inspections and audits carried out by national aviation authorities, Member States and the Agency, acting as competent authorities, took certain corrective and enforcement measures, and informed the Commission and the EU Air Safety Committee about those measures.

(11) Member States and the Agency, acting as competent authorities, reiterated their readiness to act, as necessary, in the event that pertinent safety information indicates imminent safety risks resulting from non-compliance by Union air carriers with relevant safety standards.

Air carriers from Armenia

(12) In June 2020, all air carriers certified in Armenia were included in Annex A to Regulation (EC) No 474/2006, by Commission Implementing Regulation (EU) 2020/736 (6).

(13) On 9 April 2025, as part of its ongoing monitoring activities regarding the overall safety situation in Armenia, including the safety oversight capacity and capabilities of the Civil Aviation Committee of Armenia (‘CAC’), a technical meeting took place involving the Commission, the Agency, Member States and CAC. During the meeting, the Commission informed CAC of the results of its assessment of the Corrective Action Plan (‘CAP’) submitted in December 2024. The CAP had been prepared by CAC in response to the observations from the Union's on-site assessment visit in Armenia in 2020.

(14) The CAP submitted by CAC is comprehensive and detailed and demonstrates a clear effort to align national aviation oversight with EU regulatory expectations in addressing the 2020 Union on-site assessment visit observations. Positive developments include the formal adoption of several national regulations in line with EU requirements, steps towards implementation of risk-based oversight principles, and the enhancement of training documentation and records for inspectors.

(15) While the CAP presents a comprehensive approach to dealing with the identified observations, several issues appear to remain unresolved or inadequately supported by evidence, such as the absence of classification of findings, insufficient proof of implementation of oversight plans, and deficiencies in documentation control and translation. Moreover, inconsistencies persist in the quality and completeness of training documentation, licensing procedures, and oversight mechanisms, which need to be assessed through additional on-site evaluations before a final decision on the CAP’s adequacy can be taken.

(16) In light of the remaining shortcomings and the need for a more thorough assessment of implementation on the ground, the Commission considers that further remote evaluation of the safety situation in Armenia would not provide sufficient additional clarity. Therefore, a Union on-site assessment visit is envisaged for the third quarter of 2025. This visit will aim to verify the effective application of the corrective measures submitted by CAC, including those discussed during the exchanges in 2024 and 2025.

(17) In accordance with the common criteria set out in the Annex to Regulation (EC) No 2111/2005, the Commission considers that at this time there are no grounds for amending the list of air carriers which are subject to an operating ban within the Union with respect to air carriers certified in Armenia.

(18) Member States should continue verifying the effective compliance of air carriers certified in Armenia with the relevant international safety standards through prioritisation of ramp inspections of those air carriers, pursuant to Regulation (EU) No 965/2012.

Air carriers from Iraq

(19) In December 2015 and November 2023, the air carriers Iraqi Airways and Fly Baghdad were included in Annex A to Regulation (EC) No 474/2006 by Commission Implementing Regulations (EU) 2015/2322 (7) and (EU) 2023/2691 (8), respectively.

(20) On 23 April 2025, as part of the Commission's continuous monitoring activities regarding the overall safety situation in Iraq, including the safety oversight capacity and capabilities of the Iraq Civil Aviation Authority (‘ICAA’), a technical meeting took place involving the Commission, the Agency, Member States and ICAA. During the meeting, ICAA presented updates on its efforts to enhance its legislative and regulatory framework, as well as its oversight performance.

(21) ICAA delivered a detailed presentation on its ongoing efforts to enhance aviation safety oversight through legislative amendments, regulatory development, capacity-building initiatives, and institutional reforms. While these efforts are recognised as important steps, they remain in early stages of implementation. Significant concerns persist regarding the timeliness of these measures, the consistency and quality of regulatory outputs, and their alignment with international safety standards.

(22) Some progress has been made, namely in areas such as personnel recruitment, training initiatives, and the drafting of updated national aviation regulations. Critical reforms, such as the adoption of a revised primary aviation law and the strengthening of the safety oversight system, remain incomplete or lack verifiable outcomes.

(23) It was therefore jointly acknowledged that conducting a Union on-site assessment visit in September 2025, as previously discussed, would be premature and potentially counterproductive, given the need for further tangible and demonstrable progress across core areas of Iraq’s aviation safety oversight system.

(24) In accordance with the common criteria set out in the Annex to Regulation (EC) No 2111/2005, the Commission considers that at this time there are no grounds for amending the list of air carriers which are subject to an operating ban within the Union with respect to air carriers from Iraq.

(25) Member States should continue verifying the effective compliance of air carriers certified in Iraq with the relevant international safety standards through prioritisation of ramp inspections of all those carriers, pursuant to Regulation (EU) No 965/2012.

(26) Further action by the Commission should be taken as necessary, in accordance with Regulation (EC) No 2111/2005, if any relevant safety information reveals imminent safety risks resulting from non-compliance with the relevant international safety standards.

Air carriers from Kyrgyzstan

(27) In October 2006, air carriers certified in Kyrgyzstan were included in Annex A to Regulation (EC) No 474/2006, by Commission Regulation (EC) No 1543/2006 (9).

(28) In the context of ongoing exchanges, resulting from renewed contacts between the Commission and the State Civil Aviation Agency under the Cabinet of Ministers of the Kyrgyz Republic (‘SCAA’) since 2023, the Commission launched a technical assistance initiative, implemented by the Agency, within the framework of Regulation (EC) No 2111/2005. That initiative aims to support SCAA efforts to enhance its oversight capacity.

(29) As part of that initiative, one remote activity and one on-site mission have already been conducted. The on-site mission provided an opportunity to gather firsthand information on how SCAA implements international safety standards. It also provided an opportunity to carry out a Union on-site assessment visit simulation. The simulation provided valuable insights into the organisational and regulatory framework of SCAA, with a determination that the overall structure of SCAA appears adequate for its size and responsibilities, albeit its operational effectiveness should be improved. The management manual, although approved, requires further development and consistency, and the responsibility for investigating serious incidents still needs to be sufficiently determined.

(30) The simulation also allowed for the identification of gaps in the transposition of ICAO Standards and Recommended Practices, particularly in ICAO Annexes 1, 6, 8, 18 and 19, which hinder full alignment with international safety standards. SCAA has acknowledged those gaps and initiated steps to amend relevant legislation, with several draft amendments undergoing inter-ministerial consultation. Furthermore, SCAA has taken steps to strengthen safety occurrence reporting, as well as staff training through partnerships with international training organisations. It is essential to continue making efforts in those areas in order to further improve aviation safety oversight in Kyrgyzstan.

(31) On 2 May 2025, as part of the Commission's continuous monitoring activities regarding the overall safety situation in Kyrgyzstan, including the safety oversight capacity and capabilities of SCAA, a technical meeting took place involving the Commission, the Agency, Member States and SCAA. During this meeting, SCAA delivered a detailed presentation outlining its ongoing initiatives to enhance aviation safety oversight, including legislative amendments, regulatory development, capacity-building measures, and institutional reforms.

(32) SCAA also described its organisational structure and staffing levels, including the development of a manpower calculation system with a direct link to individual training needs.

(33) SCAA also presented the progress made in aligning their regulations with international safety standards and their implementation across key oversight areas. It furthermore highlighted ongoing work to improve certification processes and enforcement mechanisms.

(34) SCAA shared a comprehensive action plan aimed at addressing identified regulatory gaps and supporting the development of a safe civil aviation system that is compliant with international safety standards.

(35) Currently there is, however, insufficient substantiated evidence to confirm that SCAA has effectively resolved all the safety deficiencies that led to the operating ban imposed by Regulation (EC) No 1543/2006.

(36) In accordance with the common criteria set out in the Annex to Regulation (EC) No 2111/2005, the Commission considers that at this time there are no grounds for amending the list of air carriers which are subject to an operating ban within the Union with respect to air carriers certified in Kyrgyzstan.

(37) Member States should continue verifying the effective compliance of air carriers certified in Kyrgyzstan with the relevant international safety standards through prioritisation of ramp inspections of those air carriers, pursuant to Regulation (EU) No 965/2012.

Air carriers from Libya

(38) In December 2014, air carriers from Libya were included in Annex A to Regulation (EC) No 474/2006, by Commission Implementing Regulation (EU) No 1318/2014 (10).

(39) On 25 March 2025, as part of the Commission's continuous monitoring activities with regard to the overall safety situation in Libya, including the safety oversight capacity and capabilities of the Libya Civil Aviation Authority (‘LYCAA’), a technical meeting was held involving the Commission, the Agency, Member States and LYCAA.

(40) The Commission presented the outcome of its assessment of the information submitted by LYCAA during 2023 and 2024. The assessment identified significant deficiencies, particularly in relation to staffing levels, consistency of corresponding training, and the effective implementation of oversight activities. The absence of key documentation requested by the Commission was also highlighted. The assessment concluded that substantial further improvements are required in both LYCAA’s regulatory framework and its oversight capacity. During the meeting, the Commission reiterated its expectations regarding the type and quality of documents and data necessary to ensure adequate assessment of the Libyan safety oversight system.

(41) LYCAA provided an update on administrative and technical initiatives aimed at strengthening safety oversight. The initiatives included revisions to aviation legislation and regulations, an increased frequency of inspections, and the introduction of digital oversight systems. The presentation of the Integrated Oversight Centre (‘IOC’), a digital platform designed to enhance the monitoring and management of aviation safety data, was a central element of those efforts. The digital platform is intended to support regulatory compliance and improve access to relevant safety information and documentation.

(42) The information and associated materials presented by LYCAA as a demonstration of IOC, including manuals and checklists used in certification and oversight processes, were based on Union regulations and adapted to the national context. LYCAA also presented selected audit results from the re-certification process, with data from IOC displayed in a clear and structured format.

(43) Nevertheless, it was noted that such documentation had not been shared with the Commission in previous exchanges during 2023 and 2024, despite multiple formal requests. Furthermore, it was noted that IOC’s long-term effectiveness depends on the consistency and quality of its application.

(44) LYCAA also informed the Commission of the ongoing re-certification process for all Libyan air carriers, covering the period from November 2023 to November 2024. LYCAA reported that over 100 audit missions had been conducted during that period. However, insufficient detail was provided regarding the outcome results of those audits, including the specific findings and any corresponding corrective actions. It was agreed that LYCAA will provide the relevant information and documentation at its earliest convenience.

(45) Currently there is, however, insufficient substantiated evidence to confirm that LYCAA has effectively resolved all the safety deficiencies that led to the operating ban imposed by Implementing Regulation (EU) No 1318/2014.

(46) In accordance with the common criteria set out in the Annex to Regulation (EC) No 2111/2005, the Commission considers that at this time there are no grounds for amending the list of air carriers which are subject to an operating ban within the Union with respect to air carriers certified in Libya.

(47) Member States should continue verifying the effective compliance of air carriers certified in Libya with the relevant international safety standards through prioritisation of ramp inspections of those air carriers, pursuant to Regulation (EU) No 965/2012.

Air carriers from Suriname

(48) In July 2010 Blue Wing Airlines was included in Annex A to Regulation (EC) No 474/2006 by Commission Regulation (EU) 590/2010 (11).

(49) As a follow-up to the EU Air Safety Committee deliberations in November 2024, experts from the Commission, the Agency and Member States conducted a Union on-site assessment visit in Suriname from 24 to 28 February 2025 at the Civil Aviation Safety Authority Suriname (‘CASAS’). The on-site visit included a sample assessment of three air carriers certified by CASAS, namely Blue Wing Airlines, Fly All Ways, and Gum Air.