From audit to action: Albania’s aviation oversight transformation

In July 2022, the Albania Civil Aviation Authority (CAA) was at a critical crossroad. The outcome of an ICAO Universal Safety Oversight Audit Programme (USOAP) assessment had just revealed a clear signal for change: an overall Effective Implementation (EI) score of 46%. While this number reflected longstanding structural and procedural gaps in our oversight system, it also served as a powerful catalyst. Rather than a setback, we saw it as the starting point of an ambitious, state-wide transformation in aviation safety oversight. By December 2024—just 29 months later—we had achieved a remarkable shift. A subsequent ICAO Coordinated Validation Mission (ICVM) recorded an Effective Implementation (EI) score of 89%, reflecting one of the most substantial recent improvements under the USOAP-CMA framework. This progress demonstrated how a focused national effort, aligned with ICAO’s strategic objectives, can lead to meaningful and lasting results. The country’s orientation toward tourism in 2024 led to a 3.2-fold increase in the number of passengers (PAX) compared to 2019, while the number of operations (ATM) increased by 2.6 times over the same period. This demand required an expansion of airport and Air Traffic Control (ATC) capacities, as well as strengthening the supervisory functions of the Albanian Civil Aviation Authority (AAC). The increase in airside capacity by 64.7% and terminal capacity by 78.6% enabled an overall airport capacity growth of 80% and an ATC capacity increase of 38.5%. Consequently, this ensured a quality service with minimal delays and no incidents of high-severity regarding safety concerns. Turning a Score into a Strategy The 2022 audit was not just a measurement of our level of compliance—it highlighted areas where our system needed strengthening and it provided us with a clear roadmap for change. We fully accepted ICAO’s findings and publicly committed to comprehensive improvements across all critical areas of our safety oversight system. Rather than treating the audit as an endpoint, we viewed it as the beginning of a strategic opportunity for institutional growth and closer alignment with international standards. Guided by ICAO’s Strategic Objective on Implementation Support and Capacity Building, our response became a focused, action-driven reform effort. As our Executive Director Mr. Maksim Et’hemaj put it at the time: “We took ownership of our future. Safety is not static. Oversight is not a report—it’s a responsibility. And we knew we had to rise to it.” Our three pillars of reform From the very beginning, our reform agenda centered on three mutually reinforcing priorities that would serve as the foundation for our transformation:

• Institutional restructuring and governance We introduced a more streamlined and clearly defined internal structure aligned with ICAO’s eight critical elements of safety oversight. We refined job roles, empowered our technical divisions, and strengthened our internal audit mechanisms to reinforce accountability. To maintain momentum, we established cross-functional teams tasked with tracking our progress and managing corrective action plans in real time.
• Regulatory modernization We carried out a comprehensive update of our national civil aviation legislation, with a strong focus on harmonizing our framework with ICAO Standards and Recommended Practices (SARPs). This effort also involved transposing applicable European standards, enhancing guidance materials for operators, and streamlining our procedures for certification, licensing, and surveillance.
• People, training, and tools

The human factor was central to reform. Over 70% of CAA staff completed new training programs—many supported through ICAO Implementation Packages (iPacks) and regional partnerships. Inspectors were equipped with digital tools and standardised checklists, significantly improving the consistency and traceability of oversight activities. We implemented these pillars through a structured performance management system, with our senior leadership meeting weekly to review progress, address challenges, and ensure accountability. Throughout the process, we welcomed ICAO’s support and aligned our action plans closely with the feedback and follow-up guidance we received. The December 2024 ICVM: Measuring progress, validating reform The 2024 ICAO Coordinated Validation Mission (ICVM) was more than just a technical re-assessment—it was a defining moment for our entire civil aviation system. ICAO’s experts carried out in-depth evaluations across all key audit areas: Legislation (LEG), Organization (ORG), Licensing (PEL), Operations (OPS), Airworthiness (AIR), Air Navigation Services (ANS), Aerodromes (AGA), and Accident Investigation (AIG). The results reflected how far we had come:

• Our overall Effective Implementation (EI) score rose from 46% to 89%
• We made substantial improvements in certification and surveillance (CE-6 and CE-7)
• We successfully implemented a risk-based oversight methodology
• We enhanced inspector training and introduced digital reporting tools
• We strengthened coordination with service providers and aviation stakeholders

While these numbers were significant, what truly stood out was the shift in our organizational culture. The ICVM team observed a more proactive approach to safety, deeper leadership engagement, and a renewed sense of purpose across our entire authority. A model for regional inspiration Our transformation in civil aviation oversight has not only marked a national milestone—it has also become a source of encouragement for our peers across the region. Like many small and medium-sized States, we have faced challenges such as limited human resources, complex regulatory changes, and the demands of aligning national policy with global standards. Our experience shows that meaningful progress is achievable—even in constrained environments—when ICAO frameworks are fully embraced and when strong political will drives technical ambition. This journey has also strengthened our role in regional aviation safety collaboration. As an active member of the European Civil Aviation Conference (ECAC) and a committed partner in ICAO’s EUR/NAT initiatives, we have begun sharing our lessons learned with neighboring States and contributing more actively to technical working groups. Sustainability, digitalization, and the future of oversight With a strong foundation now in place, we are focused on the next phase of our strategy—one that emphasizes sustainability, continuous improvement, and smarter, data-driven regulation. Several key initiatives are already underway:

• Digital Oversight Platform: We are developing a fully integrated platform for certification, surveillance, and reporting. This system will enable risk-based oversight, enhance transparency, and improve our ability to analyze safety data.
• Safety Promotion Campaigns: In collaboration with operators and airports, we are investing in outreach programmes to promote a strong reporting culture and encourage proactive hazard identification.
• Ongoing ICAO Collaboration: We remain deeply committed to ICAO’s capacity-building efforts and aspire to serve as a regional training hub in selected areas of technical expertise.

Above all, we recognize that effective implementation is not a one-time milestone—it is a dynamic, ongoing process. Oversight must continually evolve alongside technological advancements, emerging risks, and the broader global aviation landscape. A call to action Our journey from a 46% to an 89% Effective Implementation score is more than just an audit success—it is a story of leadership, resilience, and our alignment with ICAO’s global vision for aviation safety. It reflects a core truth: when States take full ownership of their responsibilities, and when international frameworks like USOAP are seen as catalysts for growth rather than critiques, extraordinary progress is possible. We encourage our fellow States—especially those in the early phases of USOAP or navigating complex reform efforts—not to fear the process but to embrace it. ICAO is more than a standard-setting body—it is a true partner in implementation. The tools are there. The support is real. And as our experience shows, the results can be transformative.

About the Author Maksim Et’hemaj is the Executive Director of the Albanian Civil Aviation Authority (ACAA), with more than three decades of distinguished experience in air traffic management, aviation regulation, and international cooperation. Since December 2021, he has led the strategic transformation of the Albanian CAA, driving the improvement of Albania’s EI score from 46% to 89% through the ICAO-CMA process, and advancing CAA of Albania recognition by NATO in airworthiness oversight. Prior to this role, Maksim served as Chief Technology Officer at Albcontrol, the Albanian Air Navigation Service Provider, where he led key modernization projects, including national airspace modernization program (NAMP), advanced radar implementation, and enhanced meteorological data visualization. His operational background includes serving as Director of Operations (ANS), ACC Watch Supervisor, ATS Inspector, and licensed ATCO from 1999 to 2021. He has also held international leadership positions, including Vice-Chair of the NewPENS Governance Group at EUROCONTROL (2018–2021), and President of the Albanian Air Traffic Controllers’ Association, representing Albania in IFATCA. Maksim holds an engineering degree in chemistry, an Associate Project Management Professional qualification from George Washington University, and completed executive training in cutting-edge economics at Harvard University.