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2.4.5 Accordingly, the 35th Session of the ICAO Assembly considered the recommendation of the Council and adopted Assembly Resolution A35-6, which requested the USOAP to be further expanded to include the safety-related provisions contained in all safety-related Annexes to the Convention on International Civil Aviation as of 2005. The resolution further requested the Secretary General to restructure USOAP to implement the comprehensive systems approach and also restructure the safety oversight audit reports to reflect the critical elements of a safety oversight system, as presented in Doc 9734 — Safety Oversight Manual, Part A . The Establishment and Management of a State’s Safety Oversight System. As a result, Assembly Resolution A33-8 was superseded by Assembly Resolution A35-6.

2.5 TRANSITION TO A COMPREHENSIVE SYSTEMS APPROACH
2.5.1 The ICAO Universal Safety Oversight Audit Programme (USOAP) has enjoyed a high degree of acceptance on the part of States, which have, for the most part, committed themselves to enhancing their safety oversight capability and implementing their corrective action plans. The success of the Programme, reflected through the increased commitment of States, has led to demands coming from all corners of the industry for its expansion to cover all safety-related areas of aviation.
2.5.2 Safety oversight audits performed initially have been planned and conducted on an Annex-by-Annex basis, starting with Annex 1 — Personnel Licensing, Annex 6 — Operation of Aircraft, and Annex 8
— Airworthiness of Aircraft, and with a view to progressively introducing other Annexes. While this approach served its purpose and proved effective for the establishment of the Programme and the initial audits, it became clear that continuing along the same line to assess the capabilities of Contracting States for safety oversight and the implementation of safety-related provisions would be both lengthy and expensive.
2.5.3 The challenge faced by the Organization was to firmly establish and maintain an effective and efficient safety oversight audit programme, while keeping the overall operating expenses at an acceptable level. On the basis of the experience gained, the Council decided that it was time for USOAP to evolve from an Annex-by-Annex approach to a comprehensive systems approach, which would cover all safety-related Annexes and focus on the States’ overall capability for safety oversight. This was believed to result in an improved and cost-effective ICAO safety oversight audit programme.
2.5.4 The comprehensive systems approach for the conduct of safety oversight audits consists of three phases.
a)  In the first phase, the State organization and establishment for safety oversight and the implementation of Annex provisions, including the identification of differences, are determined through a review of duly completed State Aviation Activity Questionnaire and Compliance Checklists for all relevant Annexes, and through a review of documents developed by a State to assist it in the implementation of SARPs as well as in maintaining an effective safety oversight system.
　
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