Order 2010-6-11

 UNITED STATES OF AMERICA

 DEPARTMENT OF TRANSPORTATION

 OFFICE OF THE SECRETARY

 WASHINGTON, D.C.

Issued by the Department of Transportation

 on the 7

th day of June, 2010

Served: June 7, 2010

Application of

OPEN JOINT STOCK COMPANY TRANSAERO 

AIRLINES

Docket DOT-OST-2010-0093 

 

for an exemption under 49 U.S.C. §40109 and

a foreign air carrier permit under 49 U.S.C. §41301 

ORDER GRANTING EXEMPTION AND TO SHOW CAUSE

Summary

By this order we grant the application of Open Joint Stock Company Transaero Airlines 

(Transaero) for an exemption, under 49 U.S.C. §40109, subject to conditions.1 We also 

tentatively find that it is in the public interest to grant the applicant the foreign air carrier permit 

attached as Appendix B to this order.

Background

On August 23, 2005, the Department issued a Notice, in Docket OST-2005-22228, announcing 

several steps designed to streamline our regulatory procedures for licensing U.S. and foreign air 

carriers. Among other things, the Notice stated that:

Assuming, based on the record and on the public interest/public convenience and 

necessity elements germane to our licensing decisions, that we were in a position to act 

favorably, we would proceed to issue a single order (1) granting the exemption request 

for whatever duration we would normally have imposed, or until certificate/permit 

authority becomes effective, whichever is shorter, and (2) tentatively deciding (i.e., 

show-cause) to award a corresponding certificate (or permit), again for the standard 

duration we would normally have imposed (such as, in the case of certificates, five years 

 

1 The conditions are attached at Appendix A.
2

for limited-entry markets, indefinite for open-entry markets, and in the case of permits, 

five years for comity and reciprocity regimes, indefinite for agreement regimes).

Our action in this Order serves to implement these streamlined regulatory procedures for the 

application involved in this proceeding.

Application

By application filed April 13, 2010, Transaero, a foreign air carrier of the Russian Federation,

requests an initial exemption under 49 U.S.C. § 40109, and a foreign air carrier permit under 

49 U.S.C. § 41301, to engage in (i) scheduled foreign transportation of persons, property, and 

mail between Moscow, Russian Federation, on the one hand, and New York, New York, and 

Miami, Florida, on the other hand; (ii) charter foreign transportation of persons, property, and 

mail between points in the Russian Federation and points in the United States; and (iii) other

charters pursuant to the prior approval requirements set forth in the Department’s regulations 

governing charters.

The applicant provided evidentiary materials required by 14 CFR Part 211 of our regulations to 

support its request for a foreign air carrier permit.

No answers were filed to the application.

Decision

We have decided, under assigned authority and consistent with our August 23, 2005 Notice 

referenced above, to grant the applicant’s request for exemption authority, as described below 

and subject to conditions, and tentatively to grant, subject to show-cause procedures, its request 

for a foreign air carrier permit, also subject to conditions.

With respect to the applicant’s request for exemption authority, we find that grant of this 

authority is consistent with the public interest; and that the applicant has demonstrated, based on 

the record, that it is financially and operationally qualified to perform the services authorized. 

With respect to the ownership and control of the applicant, we note that Transaero states that it is 

privately owned and that the company’s shares are openly traded and registered with the Russian 

Federal Securities Market Commission. The applicant further states that 73.3% of the shares of 

the company can be identified as being held by citizens of the Russian Federation, through 

(a) direct ownership of shares, (b) LCC “Transaero-Finance,” and (c) Sky Stream Corporation.

The record shows that the remaining shares are held (a) by Prosperity Voskhod Fund Limited, an 

investment fund domiciled in the Channel Islands (5%) and (b) by individuals holding less than 

5% interest in the company (16.43%). 

In the circumstances presented, to the extent that a question may exist as to whether the applicant 

is substantially owned and effectively controlled by citizens of the Russian Federation, we find 

that a waiver of the control and ownership requirement is warranted, as there is no evidence on 
3

the record which would suggest that the ownership and control of the carrier would be inimical to 

U.S. aviation policy or interests.

In addition, the authority sought by the applicant is encompassed by the 1994 U.S.-Russia Air 

Transport Agreement.2 We therefore find that grant of the requested exemption authority for a 

one year term, or until the requested permit becomes effective, whichever occurs earlier, is 

warranted.

We also note that the applicant is properly licensed by its homeland to perform the proposed 

services. In addition, the Federal Aviation Administration advised us that it knew of no reason 

why we should act unfavorably on the applicant’s request. We have verified the applicant’s 

compliance with 14 CFR Parts 203 (Warsaw liability waiver), and 205 (insurance requirements).

Finally, in the conduct of the charter services authorized and tentatively authorized herein, 

Transaero must adhere to (1) the conditions attached to this order; (2) FAA-approved flight 

routings; and (3) the Air Transport Agreement between the United States and the Russian 

Federation, including its Annexes. In accordance with 14 CFR §212.9(d) and (e) of the 

Department’s rules Transaero shall not perform any charter(s) unless specific authority in the 

form of a statement of authorization for such charter(s) has been granted by the Department. 

Applications for the statements of authorization required above shall be filed in accordance with 

the procedures set forth in 14 CFR §212.10.

Tentative Findings and Conclusions--Foreign Air Carrier Permit Application

We tentatively find and conclude that the public interest warrants granting the applicant a foreign 

air carrier permit, in the form attached as Appendix B and subject to the conditions attached.3 In 

particular, we tentatively find and conclude that the factors which support our grant of exemption 

authority to the applicant also warrant granting the applicant the foreign air carrier permit it 

seeks. 

In view of the foregoing and all facts of record, we tentatively find and conclude that:

1. It is in the public interest to issue the applicant a foreign air carrier permit in the form 

attached;

2. The applicant is fit, willing and able properly to perform the foreign air transportation 

described in the attached permit and to conform to the provisions of Title 49 of the U.S. Code, 

and to our rules, regulations, and requirements;

 

2 On February 13, 2009, the United States and the Russian Federation agreed, ad referendum, to revised Annexes to 

the U.S.-Russia Air Transport Agreement and stated that, pending their entry into force, their respective aeronautical 

authorities intend to implement the provisions of those Annexes on the basis of comity and reciprocity. 

3 The applicant’s request for a foreign air carrier permit was summarized in the Department’s published weekly list 

of applications filed. This notice described the authority sought and gave interested persons an opportunity to submit 

evidence and objections to the award of this foreign air carrier permit authority. 
4

3. Waiver of our ownership and control requirement, to the extent necessary, is warranted in the 

circumstances presented, as there is no evidence on the record which would suggest that the 

ownership and control of the carrier would be inimical to U.S. aviation policy or interests; 

4. The public interest requires that the exercise of the privileges granted by the permit should be 

subject to the terms, conditions, and limitations contained in the attached permit, and to such 

other reasonable terms, conditions, and limitations required by the public interest as we may 

prescribe;

5. The issuance of this foreign air carrier permit will not constitute a major regulatory action 

under the Energy Policy and Conservation Act of 1975, as defined in 14 CFR §313.4(a)(1) of our 

regulations;4

6. The public interest does not require an oral evidentiary hearing on the application; and

7. Our action with respect to this foreign air carrier permit should, unless disapproved by the 

President of the United States under § 41307 of Title 49 of the U.S. Code, become effective on 

the 61st day after its submission for § 41307 review, or upon the date of receipt of advice from 

the President or his designee under Executive Order 12597 and implementing regulations that he 

or she does not intend to disapprove this portion of the Department’s decision under that section, 

whichever occurs earlier.

In view of the above, and acting under authority assigned by the Department in its regulations, 

14 CFR Part 385, we find that (1) our actions are consistent with Department policy; and (2) with 

respect to the exemption authority we are conferring on the applicant, the applicant is qualified to 

perform those operations; and that grant of the exemption authority is consistent with the public 

interest and would not constitute a major regulatory action under the Energy Policy and 

Conservation Act of 1975. 

ACCORDINGLY,

1. We grant the request of Open Joint Stock Company Transaero Airlines for an exemption 

under 49 U.S.C. §40109 to permit it to engage in (i) scheduled foreign transportation of persons, 

property, and mail between Moscow, Russian Federation, on the one hand, and New York, New 

York, and Miami, Florida, on the other hand; (ii) charter foreign transportation of persons, 

property, and mail between points in the Russian Federation and points in the United States; and 

(iii) other charters subject to the provisions of 14 CFR Part 212;

2. The exercise of the privileges granted above is subject to compliance by Open Joint Stock 

Company Transaero Airlines with the conditions listed in Appendix A, and to the conditions that, 

in the conduct of the charter services authorized herein, Open Joint Stock Company Transaero 

Airlines must adhere to (1) FAA-approved flight routings; and (2) the Air Transport Agreement 

between the United States and the Russian Federation, including its Annexes. In accordance with 

 

4

 This finding is based on the fact that the grant of this permit will not result in a near-term net annual change in 

aircraft fuel consumption of 10 million gallons or more.
5

14 CFR § 212.9(d) and (e) of the Department’s rules, Open Joint Stock Company Transaero 

Airlines shall not perform any charter(s) unless specific authority in the form of a statement of 

authorization for such charter(s) has been granted by the Department. Applications for 

statements of authorization required above shall be filed in accordance with the procedures set 

forth in 14 CFR § 212.10;

3. Our action granting the exemption authority described herein is effective immediately, for a 

period of one year from the issue date of this order, or until the attached permit becomes 

effective, whichever is earlier;

4. We may amend, modify, or revoke our action regarding the exemption authority set forth in 

ordering paragraph 1 at our discretion at any time and without hearing;

5. To the extent not acted upon above, we dismiss the applicant’s request for exemption 

authority in Docket DOT-OST-2010-0093;

6. With respect to the applicant’s request for a foreign air carrier permit in this proceeding, we 

direct all interested persons to show cause why our tentative decision on that application, set 

forth above, should not be made final;

7. Any interested person objecting to the issuance of an order making final our tentative findings 

and conclusions with respect to the applicant’s request for a foreign air carrier permit shall, no 

later than twenty-one (21) calendar days after the date of service of this order, file with the 

Department and serve on the parties to this proceeding, a statement of objections specifying the 

part or parts of the tentative findings and conclusions objected to, together with a summary of 

testimony, statistical data, and concrete evidence to be relied upon in support of the objections; if 

objections are filed, answers to objections are due no later than seven (7) calendar days 

thereafter;

8. If timely and properly supported objections are filed, we will give further consideration to the 

matters and issues raised by the objections before we take further action;

9. In the event no objections are filed, all further procedural steps shall be deemed waived, and 

the Department will enter an order which will (subject to Presidential review under § 41307 of 

Title 49 of the U.S. Code) make final our tentative findings and conclusions set forth in this 

order; and

10. We will serve a copy of this order on Open Joint Stock Company Transaero Airlines; the 

Embassy of the Russian Federation in Washington, D.C.; the Department of State; and the 

Federal Aviation Administration.
6

Persons entitled to petition the Department for review of this order under the Department’s 

regulations, 14 CFR § 385.30, may file their petitions within seven (7) days after the date of 

issuance of this order. Our action with respect to the applicant’s request for exemption authority 

under 49 U.S.C. § 40109 is effective immediately, and the filing of a petition for review will not 

alter such effectiveness.

By:

PAUL L. GRETCH

Director

Office of International Aviation

(SEAL)

Appendices

An electronic version of this document is available on the World Wide Web at:

http://www.regulations.gov
Foreign Air Carrier Exemption Conditions Appendix A

In the conduct of the operations authorized, the foreign carrier applicant shall:

(1) Not conduct any operations unless it holds a currently effective authorization from its homeland for 

such operations, and it has filed a copy of such authorization with the Department;

(2) Comply with all applicable requirements of the Federal Aviation Administration, the Transportation 

Security Administration, and with all applicable U.S. Government requirements concerning security, 

including, but not limited to, 14 CFR Parts 129, 91, and 36 and 49 CFR Part 1546 or 1550, as applicable. 

To assure compliance with all applicable U.S. Government requirements concerning security, the holder 

shall, before commencing any new service (including charter flights) from a foreign airport that would be 

the holder’s last point of departure for the United States, contact its International Industry Representative 

(IIR) (formerly referred to as International Principal Security Inspector) to advise the IIR of its plans and 

to find out whether the Transportation Security Administration has determined that security is adequate 

to allow such airport(s) to be served;

(3) Comply with the requirements for minimum insurance coverage contained in 14 CFR Part 205, and, 

prior to the commencement of any operations under this authority, file evidence of such coverage, in the 

form of a completed OST Form 6411, with the Federal Aviation Administration’s Program Management 

Branch (AFS-260), Flight Standards Service (any changes to, or termination of, insurance also shall be 

filed with that office);

(4) Not operate aircraft under this authority unless it complies with operational safety requirements at 

least equivalent to Annex 6 of the Chicago Convention;

(5) Conform to the airworthiness and airman competency requirements of its Government for 

international air services;

(6) Except as specifically exempted or otherwise provided for in a Department Order, comply with the 

requirements of 14 CFR Part 203, concerning waiver of Warsaw Convention liability limits and defenses;

(7) Agree that operations under this authority constitute a waiver of sovereign immunity, for the 

purposes of 28 U.S.C. 1605(a), but only with respect to those actions or proceedings instituted against it 

in any court or other tribunal in the United States that are: (a) based on its operations in international air 

transportation that, according to the contract of carriage, include a point in the United States as a point of 

origin, point of destination, or agreed stopping place, or for which the contract of carriage was purchased 

in the United States; or (b) based on a claim under any international agreement or treaty cognizable in 

any court or other tribunal of the United States. In this condition, the term "international air 

transportation" means "international transportation" as defined by the Warsaw Convention, except that 

all States shall be considered to be High Contracting Parties for the purpose of this definition;

(8) Except as specifically authorized by the Department, originate or terminate all flights to/from the 

United States in its homeland;

(9) Comply with the requirements of 14 CFR Part 217, concerning the reporting of scheduled, 

nonscheduled, and charter data;

(10) If charter operations are authorized, except as otherwise provided in the applicable aviation 

agreement, comply with the Department's rules governing charters (including 14 CFR Parts 212 and 

380); and

(11) Comply with such other reasonable terms, conditions, and limitations required by the public interest 

as may be prescribed by the Department, with all applicable orders or regulations of other U.S. agencies 

and courts, and with all applicable laws of the United States.

This authority shall not be effective during any period when the holder is not in compliance with the 

conditions imposed above. Moreover, this authority cannot be sold or otherwise transferred without 

explicit Department approval under Title 49 of the U.S. Code.

1/2008
Appendix B

Issued by

Order 2010-X-X

 UNITED STATES OF AMERICA 

 DEPARTMENT OF TRANSPORTATION 

 OFFICE OF THE SECRETARY

 WASHINGTON, D.C.

----------------------------------------------------------------------------

PERMIT TO FOREIGN AIR CARRIER

-----------------------------------------------------------------------------

OPEN JOINT STOCK COMPANY TRANSAERO AIRLINES

A Foreign Air Carrier of the Russian Federation

is authorized, subject to the following provisions, the provisions of Title 49 of the U.S. Code, 

and the orders, rules, and regulations of the Department of Transportation, to engage in the 

following:

scheduled foreign transportation of persons, property, and mail between Moscow, Russian 

Federation, on the one hand, and New York, New York, and Miami, Florida, on the other 

hand; and charter foreign transportation of persons, property, and mail between points in 

the Russian Federation and points in the United States.

The holder shall also be authorized to engage in other cargo charter trips in foreign air 

transportation, subject to the terms, conditions, and limitations of the Department’s regulations 

governing charters.

This permit and the exercise of the privileges granted in it shall be subject to the terms, 

conditions and limitations in both the order issuing this permit and the attachment to this order, 

and to all applicable provisions of any treaty, convention or agreement affecting international air 

transportation now in effect, or that may become effective during the period this permit remains 

in effect, to which the United States and the holder’s homeland are or shall become parties.

This permit shall be effective on Month XX, 2010. Unless otherwise terminated at an earlier 

date pursuant to the terms of any applicable treaty, convention or agreement, this permit shall 

terminate (1) upon the dissolution or liquidation of the holder to whom it was issued; (2) upon 

the effective date of any treaty, convention, or agreement or amendment, which shall have the 

effect of eliminating the bilateral right for the service authorized by this permit from the service 

which may be operated by airlines designated by the Government of the Russian Federation (or, 

if the right is partially eliminated, then the authority of this permit shall terminate in like part); 

(3) upon the effective date of any permit granted by the Department to any other carrier 

designated by the Government of the Russian Federation in lieu of the holder; or (4) upon the 

termination or expiration of the applicable air services agreement between the United States and 

the Russian Federation. However, clause (4) of this paragraph shall not apply if prior to such 

termination or expiration, the foreign air transportation authorized herein becomes the subject of 
another treaty, convention or agreement to which the United States and the Russian Federation

become parties.

The Department of Transportation has executed this permit and affixed its seal on 

Month XX, 2010.

By:

PAUL L. GRETCH

Director

Office of International Aviation

(SEAL)
Foreign Air Carrier Permit Conditions

In the conduct of the operations authorized, the foreign carrier applicant shall:

(1) Not conduct any operations unless it holds a currently effective authorization from its homeland for 

such operations, and it has filed a copy of such authorization with the Department;

(2) Comply with all applicable requirements of the Federal Aviation Administration, the Transportation 

Security Administration, and with all applicable U.S. Government requirements concerning security, 

including, but not limited to, 14 CFR Parts 129, 91, and 36 and 49 CFR Part 1546 or 1550, as applicable. 

To assure compliance with all applicable U.S. Government requirements concerning security, the holder 

shall, before commencing any new service (including charter flights) from a foreign airport that would be 

the holder’s last point of departure for the United States, contact its International Industry Representative 

(IIR) (formerly referred to as International Principal Security Inspector) to advise the IIR of its plans and 

to find out whether the Transportation Security Administration has determined that security is adequate 

to allow such airport(s) to be served;

(3) Comply with the requirements for minimum insurance coverage contained in 14 CFR Part 205, and, 

prior to the commencement of any operations under this authority, file evidence of such coverage, in the 

form of a completed OST Form 6411, with the Federal Aviation Administration’s Program Management 

Branch (AFS-260), Flight Standards Service (any changes to, or termination of, insurance also shall be 

filed with that office);

(4) Not operate aircraft under this authority unless it complies with operational safety requirements at 

least equivalent to Annex 6 of the Chicago Convention;

(5) Conform to the airworthiness and airman competency requirements of its Government for 

international air services;

(6) Except as specifically exempted or otherwise provided for in a Department Order, comply with the 

requirements of 14 CFR Part 203, concerning waiver of Warsaw Convention liability limits and defenses;

(7) Agree that operations under this authority constitute a waiver of sovereign immunity, for the 

purposes of 28 U.S.C. 1605(a), but only with respect to those actions or proceedings instituted against it 

in any court or other tribunal in the United States that are: (a) based on its operations in international air 

transportation that, according to the contract of carriage, include a point in the United States as a point of 

origin, point of destination, or agreed stopping place, or for which the contract of carriage was purchased 

in the United States; or (b) based on a claim under any international agreement or treaty cognizable in 

any court or other tribunal of the United States. In this condition, the term "international air 

transportation" means "international transportation" as defined by the Warsaw Convention, except that 

all States shall be considered to be High Contracting Parties for the purpose of this definition;

(8) Except as specifically authorized by the Department, originate or terminate all flights to/from the 

United States in its homeland;

(9) Comply with the requirements of 14 CFR Part 217, concerning the reporting of scheduled, 

nonscheduled, and charter data;

(10) If charter operations are authorized, except as otherwise provided in the applicable aviation 

agreement, comply with the Department's rules governing charters (including 14 CFR Parts 212 and 

380); and

(11) Comply with such other reasonable terms, conditions, and limitations required by the public interest 

as may be prescribed by the Department, with all applicable orders or regulations of other U.S. agencies 

and courts, and with all applicable laws of the United States.

This authority shall not be effective during any period when the holder is not in compliance with the 

conditions imposed above. Moreover, this authority cannot be sold or otherwise transferred without 

explicit Department approval under Title 49 of the U.S. Code.

1/2008