让私人飞机“买得起 用得起 飞得起”
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2011年被誉为通用航空“元年”，从国家“十二五”规划纲要到各地发力通用航空产业，呈现出政策信号强劲，地方政府热情高涨，产业资本、投资基金高度关注，各路力量蓄势待发的蓬勃局面，通航产业甚至被一些地方视为继汽车、房地产等之后最重要的经济增长推动力。
为此，本刊专访了中国民航局副局长夏兴华，聆听他对中国通用航空产业主要矛盾的真知灼见，解读在国家政策扶持、资金支持的大背景下，如何推动中国的通用航空产业健康持续发展。
2011 is tabbed as the first year for general aviation (GA hereafter). The central government includes GA in the 12th five-year program, sending strong signals of the way to go. Local governments react enthusiastically, and investments have been poured in. In many regions, GA is expected as the next engine for economic growth after automobile and real estate have run their show.
U-Jet talked with Xia Xinghua, vice director-general of Civil Aviation Administration of China (CAAC) to hear his insight into the key tension in the industry, and how the industry can be promoted on the back of policy and capital.
《私人飞机》：目前我国通用航空发展正处于关键时期，您认为通用航空发展中最根本的矛盾是什么？
夏兴华：目前，我国已有近126家通用航空企业，在册通用航空器达到1124架。全国共有70个通用机场和329个起降点。去年新成立的通用航空企业有20家，净增通用航空器114架，公务飞行、空中游览、体育休闲等高层次个性化的通用航空需求不断增长，购买私用、自用飞行的越来越多。
我认为现阶段主要是国家经济社会发展的需求与通用航空作业服务能力和当前通用航空发展环境不相适应的矛盾。
《私人飞机》：如何去解决这一矛盾？
夏兴华：站在民航局的角度就是充分发挥行业规划、行业政策的战略引领作用，发挥通用航空试点的示范作用，积极改善通用航空发展环境，全面提升通用航空作业服务能力。
目前通用航空的发展环境涉及到政策环境、法规环境、基础保障环境、运营环境以及支持服务环境等五个方面，通用航空的服务能力又包括社会公共服务保障能力、经济建设服务能力、航空消费服务能力以及民航发展服务能力等四大领域，需要我们以专项发展规划为龙头，以行业政策为助力，以通用航空试点为切入点，加以统筹解决。
──规划低空空域服务保障体系建设。协调、推进低空空域管理改革进程，加大低空空域开放力度。2012年1月起，放开低空空域将从原先的长春、广州、海口“两区一岛”扩大至整个东北和中南地区，以及唐山、西安、青岛、杭州、宁波和昆明6个分区，试点地区面积占全国陆地空域面积的31.6%。在2015年以前，实现在全国范围内推开低空空域改革，初步形成全国一体化的低空空域运行管理和服务保障体系。整合现行民航空管系统、通航企业以及中小机场的空管资源，引入社会力量和民间资本，探索建立面向通用航空的民航空管服务保障体系。
──规划通用航空机场保障体系建设。有计划的选择我国江浙、东北、西部以及其他应急救援基础薄弱的地区，规划、建设具备相应保障能力的通用航空机场（起降场），并将其纳入到民用机场中长期建设规划中，统筹解决建设、运营所需资金。
──规划通用航空油料保障体系建设。支持民航航空油料保障单位构建通用航空油料保障服务体系，并予以相应的政策扶持。支持国内油料生产、加工企业保障航空汽油供应。
──规划通用航空社会公共服务能力建设。统筹规划通用航空应急救援机队、专业人员队伍、专业设备设施和救援基地的建设布局，大力推进通用航空应急救援体系建设，并制定和完善应急救援的征用补偿办法。
──规划通用航空短途运输体系建设。支持有条件的通用航空企业在我国东北、西部、偏远及经济欠发达地区，使用小型航空器从事短途客、货、邮运输业务，鼓励有条件的地区开展通勤航空试点工作。
《私人飞机》：民航局作为通用航空发展政策的制定管理部门，将在政策引导，加大扶持力度等方面有什么目标并采取哪些办法？
夏兴华：民航局已经出台了《加快通用航空发展的措施》15条，今后的重点就是把政策措施落到实处，首先要促进通用航空行业整体实力的提升：
──推进专业人才队伍建设。以通用航空飞行员培训费用补贴为引导，促进通用航空企业等用人单位增强飞行员等专业人才储备；鼓励民航院校根据通用航空发展需要调整学科布局和专业设置，增加教学人员以及设施设备的投入；支持通用航空企业、民航院校以及社会力量实行资源互补，投资设立通用航空专业人员培训单位和机构。
──扩大通用航空机队规模。民航局将对通用航空企业引进社会公益性作业项目以及应急救援所需的机型予以补贴。同时改革通用航空飞机引进管理模式，简化飞机引进管理程序，以此支持、帮助通用航空企业引进适用机型，扩大机队规模。
──提升作业服务能力。民航局对通用航空的补贴重点是对通用航空企业开展农林作业、应急救援以及其他社会公益项目的作业飞行补贴。
其次是改善通用航空运营环境：
──建立以市场调节为主导的通用航空作业收费管理模式，定期由行业组织对外公布作业收费参考价格。
──探索建立将民航机场建设、空管建设与保障通用航空运营相挂钩的投资模式，制定与通用航空发展水平相适应的民用机场收费标准。
──建立统一开放的通用航空市场以及符合自身发展规律的运营机制。民航局支持通用航空企业在同类经营的基础上实施联合、并购、重组，在专业服务领域内做大做强，通过证券市场实现资源优化配置和制度创新。
三是进一步满足消费市场需求。鼓励有条件的通用航空企业针对市场需求开展航空旅游观光、广播影视服务、休闲娱乐等项目。简化私用、自用航空器的引进及适航管理程序，简化非经营性通用航空登记程序，支持社会力量购买私用、自用航空器，确保“买得起、用得起、飞得起”。
在十二五末实现通用航空机队规模增加到2000架，其中私人飞机、公务机达到600架；规范通用航空短途运输、公务航空、固定基地运营商（FBO）、飞行服务站 (FSS)的运营管理和服务保障，在我国东部、东北和西部构建公益性航空服务网络；明确通用航空责任事故赔偿标准，保障通用航空用户的合法权益。
《私人飞机》：当前中国公务机市场潜力巨大，中国公务机发展目前存在的主要困难是哪些，民航局将采取哪些措施来推动公务机市场的发展？
夏兴华：据统计，各主要机场的公务航空飞行架次和飞行时间均保持了快速增长势头。首都机场2010年完成5042架次（含国外公务机来华），比2009年增长60%，2011年同比增长又在40%以上。目前，国内共有9家以公务飞行作为主营业务的通用航空企业，年飞行小时约2.2万小时，乘客3.2万人左右。截至去年底，国内公务机队规模已达79架， 2011年共批准引进喷气式公务机41架。
公务航空发展主要面临行业内、外两个方面的制约因素。一方面，行业外部制约日益凸显。在使用军用机场、军民合用机场以及新辟航线时，审批层级过高、周期过长、程序复杂；边防、海关、检疫等联检部门的工作程序、管理方式尚不能适应公务航空特点，影响运行效率；引进公务机税负较高等；另一方面，公务航空的管理法规规章不够健全，标准体系尚待完善；公务飞行活动快速增长与起降时刻不足的矛盾日益突出；FBO等基础保障单位、基础设施建设有待加强；公务航空专业人员和管理人才缺乏，培训教育渠道不足等。
民航局正在研究拟定《关于加强公务航空运营管理和保障工作的意见》，通过严格市场准入、强化市场监管、规范运行管理、加强时刻资源保障、优化地面保障服务、健全安保规则、规范和调控公务机引进、推进基础设施建设等措施，积极提升公务航空服务能力，逐步改善保障环境。此外，民航局还将积极协调边防、海关、检验检疫等联检部门以及军方有关部门，优化公务航空发展环境，促进我国公务航空的健康、有序发展。
U-Jet: GA is in a crucial stage of development right now. What are the fundamental conflicts? How to resolve these issues from a strategic level?
Xia: China has 126 GA enterprises, 1,124 registered GA aircrafts, 70 GA airports and 329 landing facilities. Last year, 20 GA enterprises were incorporated and 114 new aircrafts were registered. There has been increasing demand for business aviation, air sightseeing, and sports and recreational activities enabled by GA. More and more people are buying and using private planes.
The key tension as I see is rapid demand on the one hand, and limited capability and underdeveloped general environment of GA.
How to resolve the issues? The CAAC should play the role of overall planning and policy guidance, using pilot programs as show cases, actively improving the ecosystem and capability of the entire industry.
When we talk about the overall ecosystem, we refer to policy, regulations, infrastructure, operations, services and support. Services and support encompass a wide variety of areas. In short, GA needs to provide public services, contribute to economic development, enable consumption and support civil aviation. We should introduce policies, organize projects and pilot programs, and plan in a holistic way.
Plan for services and support system for low-altitude airspace. Coordinate and drive for low-altitude airspace reforms and opening. From January 2012, more low-altitude airspace will be opened in addition to Changchun, Guangzhou and Haikou -- the entire northeast, central south and the 6 zones Tangshan, Xi’an, Qingdao, Hangzhou, Ningbo and Kunming. In total, the opened airspace accounts for 31.6% of the entire terrestrial airspace in China. Before 2015, all low-altitude airspace shall have been opened. A nationally-integrated low-altitude airspace operations and service system will then take shape. We also plan to consolidate the airspace administrative systems of the CAAC, GA enterprises and small-to-medium airports. We will bring in private investments and explore an airspace management system within the CAAC to serve GA.
Plan for GA airports. In Jiangsu, Zhejiang, northeast and western regions with underdeveloped emergency rescue infrastructure, we will plan and construct GA airports and landing facilities. This will be integrated into the long-term planning of civil aviation airports, so that we can allocate financing and implement construction in a holistic way.
Plan for fuel supply. Support civil aviation fuel suppliers to establish facilities to supply fuel to GA with relevant policies. Support fuel production and processing enterprises to supply gasoline to GA.
Plan for GA public service capability. Plan for GA emergency response fleet, professional teams, and specialist equipment and rescue bases. Formulate and refine a mechanism to compensate for requisitions.
Plan for short-haul GA transportation. Support qualified GA enterprises to use small aircrafts to engage in short-haul passenger, cargo and mail transportation, as well as providing commuting services.
U-Jet: As the regulator of GA, how will the CAAC strengthen policy guidance and support? Are there specific targets and measures?
Xia: The CAAC has promulgated “Measures to Accelerate General Aviation” with 15 key points. Our focus going forward is to implement these policies and measures. But first, we need to promote the overall capability of GA.
Train professionals. Subsidize pilot training to encourage GA enterprises to build up their talent pools. Encourage civil aviation educational institutes to add GA programs, to increase faculty and teaching facilities. Support GA enterprises, educational institutes and other organizations to combine forces and invest in training.
Increase the GA fleet. The CAAC will subsidize GA enterprises that can offer public services and aircrafts for emergency rescue. We will also simplify aircraft acquisition procedures to support and help GA enterprises to enlarge their fleet.
Enhance capability. The CAAC subsidizes GA enterprises to fly for agriculture, forestry, emergency rescue and other public-service purposes.
Secondly, improve operating environment.
Establish a market-oriented GA fee system. Industry associations will announce reference fees regularly.
Explore an investment model to link civil aviation airport construction, air traffic control and service operations. Formulate airport fee standards commensurate with GA development level.
Establish a unified open GA market and an operating model commensurate with its development stage. The CAAC supports GA enterprises to combine forces, merge and restructure to grow bigger and stronger in particular segments. Enterprises can make use of the securities markets to achieve optimal allocations of resources and come up with institutional innovations.
Thirdly, better satisfy market demand. Encourage qualified GA enterprises to offer air sightseeing, services for the broadcasting, TV and film industry, leisure and recreational activities. Simplify procedures to acquire private aircrafts, to get air-worthiness certificates, and to register non-commercial aircrafts. Support private individuals and organizations to buy aircrafts for their own usages, making sure aircrafts are affordable and convenient to use.
The goal is to increase GA fleet to 2,000 by the end of the 12th five-year program, including 600 private and corporate jets. Regulate GA for short-haul transportation, operations of business aviation, FBOs and FSSs. Build public-service GA network in east, northeast and western China, specify compensation standards for accidents and safeguard the rights and interests of GA users.
U-Jet: There is huge potential for business aviation in China. What are the main difficulties though? And what will the CAAC do to drive for its development?
Xia: We have observed rapid increase in flying frequencies and hours for business aviation. In 2010, the Beijing Capital Airport facilitated 5,042 landings (including overseas aircrafts), that was 60% more than 2009. It grew by over 40% in 2011. Today, there are 9 business aviation operators in China accounting for 22,000 flying hours and carrying 32,000 passengers. By the end of 2011, there were 79 China-based corporate jets and 41 new jets were approved in 2011.
There are internal as well as external constraints on business aviation. On the one hand, the approval procedure for using military airports and dual-purpose airports happens at too high a level. It is long and burdensome. So is applying for new routes. Procedures involving border control, customs and quarantine are not efficient, putting additional strain on business aviation. Moreover, tariffs on corporate jet imports are very high. On the other hand, regulations and rules governing business aviation are underdeveloped and standards are still pending. Tension has been building up between demand for business aviation and constraints on flying. In addition, FBOs and other infrastructure still need to catch up. There is a shortage of business aviation professionals and management talents. Training lags behind.
The CAAC is studying and formulating “Opinions on Strengthening Business Aviation Operations Management and Services Support”. The aim is to strengthen regulations and standards, enhance capability and improve ecosystem through strict market access, good practices in ground service support, security guarantee, infrastructure development and managed acquisition of aircrafts. In addition, the CAAC shall actively coordinate with border control, customs, inspection and quarantine and relevant military authorities to optimize the environment for business aviation and drive for its healthy, orderly development.