"Inadequate" continues to describe "flight management" even though it is not in quotes, it's not correct to read it as modifying "NTSB." All that's going on here is that the NTSB used the words "flight management" but did not specifically use the word "inadequate," although that is how they characterized it. Therefore I can't write "inadequate flight management" because this is not word-for-word what the NTSB wrote.