Date: 201204
Local time of day: 1201-1800
Location: TNCA.Airport, FO
Flight conditions: VMC
Light: Daylight
Aircraft: B757-200
Operator: Air Carrier
Operating under: Part 121
Flight plan: IFR
Mission: Passenger
Flight phase: Descent
ATC / advisory: TRACON TNCA
Second aircraft: Rockwell North American Undifferentiated or Other Model
Reporter organization: Air Carrier
Reporter function: Pilot Not Flying; Captain
Reporter qualification: Flight Crew Air Transport Pilot (ATP)
Human factors: Workload; Situational Awareness; Confusion; Communication Breakdown; Distraction
Second reporter function: First Officer; Pilot Flying
Anomaly: ATC Issue All Types; Conflict Airborne Conflict; Deviation / Discrepancy - Procedural Published Material / Policy
Detector: Automation Aircraft RA; Person Flight Crew
When detected: In-flight
Result: Flight Crew Took Evasive Action; Flight Crew Requested ATC Assistance / Clarification
Contributing factors: Environment - Non Weather Related; ATC Equipment / Nav Facility / Buildings; Airspace Structure; Staffing; Procedure
Primary problem: Ambiguous

Narrative: We were approaching TNCA from the north; at FL080; going directly to the 10 mile final approach fix for Runway 11 and talking to TNCA Approach Control. TNCA is a non-radar environment. The Controller was working Approach Control; Tower; Ground Control and Clearance Deliver all on the same frequency. He was very busy and overloaded with inbound; outbound; and taxing aircraft. Many transmissions were being blocked and it was almost impossible to get a break in the transmission to talk to the Controller. More than 50% of the transmissions to and from aircraft were in Spanish; therefore we had no idea where other aircraft may be. It is very important when you are in a non-radar environment that you are aware of the location of other aircraft. We were later given a clearance to descend to FL060. About 6 miles from the 10 mile fix and after trying to get a transmission in to TNCA; the frequency was so busy; we finally made contact with them. They told us to descend to FL040; report the 10 mile fix; and hold at the fix. I asked them; if they wanted us to make right turns. They said yes. As we started our right turn at the 10 mile fix; we received a TCAS TA and observed a target slightly left of our course; 800 FT above us and descending. We then received a RA and a command to climb at just over 2;000 FPM. We immediately received an 'Altitude Crossover' announcement followed by an immediate descend command to a rate of just over 2;000 FPM. At about 3;600 FT MSL we received a 'Clear for Conflict' advisory. We saw the other aircraft pass less than 1 mile off our left side and just slightly above us. The aircraft was an Aero Commander. He was inbound for landing in TNCA. We then contacted TNCA ATC; told them our current position and asked if we were cleared for the approach. We did not mention the traffic conflict to them at this point in time. We were cleared for the approach. Approach and landing was normal. Once on the ground; I contacted the TNCA ATC by phone. I told them what had occurred and that the entire flight crew considered the ATC operation completely unsafe. Controller was overloaded; working too many aircraft; and trying to handle too many different ATC duties. Install radar at TNCA divide the ATC responsibility/duties between different controllers. We need to use a language that all pilots understand; if at all possible.


Second narrative: [Narrative #2 contained no additional information]


Synopsis: A B757 approaching TNCA in holding had an airborne conflict with another aircraft after a single Controller; working all ATC positions; was overloaded and not communicating adequately in the non radar environment.