中国国际航空运输自由化进程
Progress of International Air Transport Liberalization
of China
内容 /Contents
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第一部分:中国国际航空运输政策演进
Part I: Overview of China’s International Air
Policy Evolution
Transport
第二部分:中国的双边航权安排的现状
Part II: China’s Bilateral Air Traffic Rights Arrangements
第三部分:对中国国际航空运输发展的挑战
Part III: Challenges to China’s International Air Transport
Development
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民航局国际司
第一部分 (Part I)
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中国国际航空运输政策的演进/CAAC’s Policy Evolution
2003年以前/Before 2003
-- 点对点的运输模式
point-to-point route structure
-- 在市场准入、运力、运价等方面事实高度管制
industry highly regulated both for domestic and
international air services (market access, capacity &
frequency, pricing, etc.)
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民航局国际司
第一部分 (Part I)
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2003年以来/Since 2003
中国国内航空运输依然处于严格管制状态。近年来已试验有限度的放松管
制，但由于条件所限，远不彻底。
China’s domestic air transport market is still subject to strict
regulation. Although CAAC has begun the process of experimenting
with limited deregulation, it is far from finished yet.
2003年，中国民航在国际民航组织第五次全球航空运输大会上首次表明
以 “积极、渐进、有序、有保障”的方式开放我国国际航空运输市场的
立场。从那时起，中国国际航空运输政策开始做出重大调整。
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CAAC announced at the 5 ICAO Air Transport Conference in
2003 that China was to pursue international air transport
liberalization in an “active, progressive, orderly and secured
manner”, which marked CAAC’s major adjustment of its
international air transport policy.
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民航局国际司
第一部分 （Part I）
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八项政策要点
CAAC’s international air transport policy adjustment is
characterized by eight guidelines：
● 主动顺应全球国际航空运输市场开放的发展趋势
CAAC shall actively follow the international trend of air transport
liberalization.
● 配合国家总体外交政策，支持国家对外开放和经济社会发展目标
CAAC’s international air transport policy is to support China’s overall
foreign policy and is meant to promote the nation’s open up initiative
as well as its economic and social development goals
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民航局国际司
第一部分 （Part I）
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兼顾国家利益、公众利益和行业利益
CAAC’s international air transport policy shall take into account
national interest, public interest and interest of the general public or
consumers at the same time.
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特别注意满足国家外贸和旅游业发展对国际航空运输的需要
CAAC’s international air transport policy is supposed to meet the
ever increasing need of trade and tourism in particular.
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发展中国西部、东北部和中部对外航空联系
CAAC’s policy design should help develop international air links in
China’s west, northeast and central parts.
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民航局国际司
第一部分 （Part I）
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促进中国航空枢纽建设
CAAC’s international air transport policy should facilitate China’s air
hub capacity building.
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提升航空运输行业整体实力和竞争力
Such policy should be helpful to enhance international
competitiveness of China’s airline industry.
● 追求合作共赢，不以中方航空公司的市场利益为政策的唯一考量
Such policy aims to achieve a win-win situation, and shall not take
only Chinese airlines market interest as the sole consideration.
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民航局国际司
第二部分 （Part II）
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按照“积极、渐进、有序、有保障”的原则，2003年以来，
中国与绝大多数航空伙伴国家重签或修订了双边航空运输
协定，更新了双边航权安排。截止目前，中国与112个国
家和1个地区（东盟）签署或草签了政府间航空运输协定，
其中执行62个协定。
China has worked with its aviation partners in re-signing
or amending ASAs and updating the bilateral traffic rights
arrangements. So far, China has signed or initialed ASAs
with 112 countries and one region（ASEAN), among
which 62 ASAs are being executed.
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民航局国际司
第二部分 （Part II）
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中国希望与世界各国普遍建立航空关系，不以中方航空公
司的市场考量作为考虑的唯一出发点
China is keen on establishing aviation relations with as
many countries as possible, Chinese airlines market
interest should not be the sole factor in CAAC’s
consideration
有13个国家的外航单飞中国航线，中国的航空公司单飞10
个国家的航线
Currently, airlines of 13 countries unilaterally operate to
China，and Chinese airlines unilaterally operates to 10
countries.
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民航局国际司
第二部分 （Part II）
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在113个航空运输协定中，包含独家指定条款的有28个，
包含多家指定条款的有85个，其余采用单家指定空运企业
的标准，越来越多的协定采用无限制的指定标准
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85 ASAs with multiple airlines designation
28 ASAs with single designation
More and more newly signed ASAs with unlimited
designations
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民航局国际司
第二部分 (Part II)
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在指定承运人标准方面，中国仍坚持主要所有权和有效控制
权的原则。但与个别欧盟成员国的ASAs中已引入欧盟承运
人概念，扩大了标准范围。
In terms of criteria of designation, China still holds to
the substantial ownership and effective control
principle, except with a few EU member states,
where the concept of EU community carrier is
introduced.
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民航局国际司
第二部分 （Part II）
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中国与26个国家开放了航线表，多数协定中的货运航线表
相对更加开放灵活。
26 ASAs contain liberalized route schedules including unlimited
points of origin, intermediate points, destination points and beyond
points. Most route schedules for cargo services are more liberalized
relatively speaking.
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近几年签署的ASAs中，大多采用开放的航线安排。
Open route schedule is increasingly adopted in newly signed ASAs
and particularly for cargo operations.
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民航局国际司
第二部分 (Part II)
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目前，中国对外开放的航空口岸达51个，其中25
个可起降747机型。51个地点均可作为潜在的国
际航空运输通航地点。
Now up to 51 Chinese airports are open to international
and regional air services as potential international air
service points. Among them 25 are capable of
accommodating B747 aircraft or aircraft of equivalent
category.
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民航局国际司
第二部分 (Part II)
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在市场准入方面，航空客运以逐步开放第三、四种业务权
为主，航空货运在开放第三、四、五种业务权的同时，也
在个别双边航权安排中引入货运包机第七业务权。
In terms of market access, CAAC undertakes to
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gradually liberalize the 3 , 4 freedom traffic rights
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for passenger service and the 3 , 4 and 5 freedom
traffic rights for cargo service. In certain
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circumstances, the 7 freedom traffic right for
charter cargo service was granted.
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民航局国际司
第二部分 （Part II）
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中国与11个国家解除了第三、四种客运和货运业务权运力额度限制
11 ASAs have introduced unlimited capacity entitlements for 3rd and 4th
freedom traffic rights for both passenger and cargo services.
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中国与6个国家解除了第三、四种货运业务权运力额度限制，与7个国
家开放货运第五种业务权
6 ASAs contain
unlimited capacity entitlements for all cargo services. Have
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liberalized 5 freedom traffic rights for all cargo services with 7 aviation
partners.
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在与大多数国家的协议中，运力额度都远远多于航空公司要求并实际
使用的运力
It is important to note that capacity entitlements in most agreements and
arrangements far exceed the capacity required and utilized by airlines of
both sides.
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民航局国际司
第二部分 (Part II)
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2003年，中国宣布单方面开放海南省第3、4、5种航权，
促进海南的对外开放
In 2003, China announced its pilot program to unilaterally
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and fully liberalize 3 , 4 and 5 freedom traffic rights
for international air services to China’s Hainan province.
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民航局国际司
第二部分 (Part II)
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在运价管理方面，中方采取灵活开放的态度，可以应对方
要求采用始发国原则或双不批准原则
In terms of tariff regulation, China holds a open and
flexible attitude, and may adopt the principle of country
of origin or double disapproval at the request of other
side.
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民航局国际司
第二部分 （Part II）
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在航空公司商务合作方面，民航局鼓励中外航空公司在公
平竞争和维护消费者权益的前提下开展包括代号共享、包
仓、联营等在内的多种方式的合作。
With regard to airlines market cooperation, CAAC
encourages Chinese carriers and their partners to enter
into business cooperation of various forms including
code sharing, block space, joint ventures, etc., provided
that such cooperation comply with competition
regulations and benefit consumers' rights.
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民航局国际司
第二部分 （Part II）
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在外方承运人设立办事处、汇兑及雇用人员等商务权利方
面，中方采取符合国际惯例的普遍做法。
With regard to doing business rights of foreign airlines,
China follows the international practice terms of setting
up representative offices, employing third country
personnel, converting and remitting revenues.
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民航局国际司
第三部分 （Part III）
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中国民航在发展国际航空运输方面面临三方面挑战
Three major challenges face the international air
transport liberalization of China.
●. 中国国内航空运输尚未完成放松管制。中国对于支持国际
航空运输发展的配套政策尚未完全到位（自身政策和管理
方面的因素）
Deregulation of domestic air services is far from
completed, affecting the progress of international air
services liberalization. Supporting policies to facilitate
China’s international air transport are not fully in place
yet.
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民航局国际司
第三部分 （Part III）
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基础设施的短缺不能满足国际航空运输快速发展的需要。
目前约20个一线和二线机场容量已饱和。其中以北京、上
海、广州三大国际机场的问题最为凸出。（自身资源方面
的因素）
Infrastructure constraint has become major impediment
to the rapid growth of both domestic and international air
services. So far about 20 primary and secondary airports
in China have become saturated in terms of capacity and
landing slots. PEK, PVG and CAN are most severely
affected.
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民航局国际司
第三部分 （Part III）
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行业和学术界对航空运输自由化提出若干强烈反对意见
Some strong arguments from the industry and academic circle go against
liberalization.
1. Chinese airlines’s share in international air services market of
China has kept declining, presently 44% for passenger and 24%
for cargo, affecting fleet acquisition planning .
2. In such a case, China’s cross-border air movement of
people and goods could not be secured if hit by
possible economic downs, just like the circumstance in
2009, when quite a number of services to China suspended by
foreign airlines .
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民航局国际司
Conclusion
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Nevertheless, CAAC still concludes:
international air transport liberalization is regarded as an
integral part of China’s overall open up policy. Air
transport liberalization has not only brought about
enormous social and economic benefit, but has also
injected vitality and efficiency to the development of
China’s airline industry itself. CAAC is determined to
continue to pursue international air services liberalization
in a progressive and orderly manner.
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民航局国际司
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谢谢
THANK YOU
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民航局国际司