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当亚洲公务航空会议暨展览会（ABACE2013）本月在上海举行之际，一份《关于加强公务航空管理和保障工作的若干意见》（简称《意见》）已在一个月前摆在了国内民航管理机构、机场以及公务航空公司管理人士的办公桌上。“这是国内第一个公务航空专门的发展意见，对行业发展是一重大利好，下一步就看怎么落实了。”一位公务航空公司人士如此评价。
民航局相关人士告诉本刊，该《意见》由民航局局长李家祥亲自布置，主管副局长夏兴华对相关政策思路做了具体指示和要求。而《意见》的最大亮点就在于把公务航空从普通的民航管理体系中独立出来，从行业进入、资源配置、市场监管、软硬件配套、法规体系等方面做出了专门的规定和规划，并要求将相关工作纳入民航局和民航地区管理局航空运输（通用航空）委员会的议事内容，完善具体措施。
公务飞行审批更便捷
对于公务航空运营企业最为关注的飞行审批和航班时刻安排，《意见》要求细化、完善公务飞行计划审批管理办法，明确报送材料要求，简化审批程序，缩短审批时限；特别要求在审批国外（境外）公务机进、出我国国境飞行计划时，明确自入境至离境期间在中国境内飞行的航段数量。
而在公务航空时刻资源保障上，《意见》要求运输机场应充分利用航空运输公司航线航班所分配未使用且已交回时刻，优先保障公务飞行使用。在繁忙协调时段，北京首都国际机场国外（境外）公务飞行起降总量每天保证不少于15个（含），上海虹桥和上海浦东机场均保证不少于10个（含）。在北京、上海、广州、深圳等繁忙运输机场，同一架公务机一天内不能占用同一个机场的2个繁忙协调时段时刻。保障执行紧急、重要政务和医疗救助任务的公务飞行的时刻资源。
“以往公务机的时刻安排只能在民航航班里‘加塞’，但今后这一块的时刻资源将列入正式的运输计划，让我们在运营方面有了很大空间，且有了制度保障，这对公务航空企业来说是一针稳定剂。”金鹿公务机相关负责人表示。
鼓励社会资本投资公务机机场
《意见》首次提出，在国内建设一批适度超前、具有公务机保障服务能力的通用机场；支持社会力量依据市场需求，投资兴建具备公务机保障服务能力的通用机场；降低通用机场建设审批层级，简化审批程序。细化公务航空地面保障设施的建设标准，新建及改扩建的运输机场应统筹考虑设置公务飞行功能区域。
同时，《意见》支持公务机运营者以及其他企业投资兴建机库、候机楼等服务公务航空的地面保障设施。鼓励社会力量依据市场需求，投资设立固定基地运营者（FBO）。研究制定FBO运营规范，明确服务标准，为公务机乘客提供个性化服务。此外，运输机场应建立公务机地面保障协调机制，统筹协调空管保障、航油供应、飞机停放等服务；推进单独设置的公务航空功能区域建设。
民生租赁负责人告诉本刊，一旦允许社会资本投资公务机硬件设施，公司将大力支持各方资本合作。
规范准入分类管理
《意见》还将经营性公务包机飞行、公务机代管飞行和非经营性自用公务机飞行的运营者行业准入条件，分类实施行政许可；将研究制定从事经营性公务包机飞行、公务机代管飞行的通用航空企业的运营管理规定，完善经营许可实施程序和审核标准。“以前除了飞机以外，公务航空的管理基本都纳入普通民航体系中，而《意见》将其进行了专门分类。”业内人士指出。
《意见》要求明确《小型航空器商业运输运营人运行合格审定规则》（CCAR135部）、《一般运行和审定规则》（CCAR91部）适用于公务航空运行的条款；明确对公务机运营者运行合格审定和持续监督检查的标准，区分公务飞行与航空运输飞行所适用的规章条款，避免混用、套用。鼓励公务机运营者适时引入国际公务航空安全运行标准（IS-BAO），加强安全运行管理。
民航通用航空行业管理部门将持续检查企业使其各方面符合规章要求，依法合规运行。公务航空企业应履行责任保险的投保义务，机上乘客人身意外保险金额应不低于《国内航空承运人赔偿责任限额规定》的标准；制定公务机乘客服务投诉处理办法，维护乘客合法权益。
简化公务机引进程序
民航地区管理局今后将按照《引进通用航空器管理暂行办法》的规定，对引进喷气公务机管理的职责分工，针对引进大型喷气公务机的审核、引进其他喷气公务机的核准工作，结合辖区内公务航空发展需求，制定具体的实施细则和程序，改进管理方式，提高审批效率。
对于公务航空企业的壮大，《意见》要求简化行政许可程序、下放审批层级、放宽市场准入条件；支持公务机领先企业实施联合、兼并、重组，形成骨干示范企业。
《意见》最后要求，规范机场保障和空管服务收费，取消不符合国际惯例的收费项目。遵循国际惯例，划设公务机乘客联检区域，规范通行流程，提高验放效率。
ABACE is held in Shanghai this month. One month ago， “The Opinion on Strengthening Business Aviation Administration and Services” was presented to civil aviation authorities， airports and business aviation executives. “This is the first official opinion on business aviation， very advantageous to the industry. Let’s see how it is implemented，” commented a practitioner.
Relevant CAAC people told us that Mr. Li Jiaxiang， the director-general of CAAC had requested the drafting of the Opinion and Mr. Xia Xinghua， vice director-general had provided very detailed guidance. The highlight of the opinion is to separate business aviation from civil aviation， and there will be very detailed planning and guidance on access， resources allocation， market supervision， software and hardware， and regulations. Follow-on tasks will be on the agenda of General Aviation Commission， CAAC and regional administrations. More convenient approval of business aviation missions
The Opinions request detailed and comprehensive review method for flight approval and timetable， to be specific about documents submission， to simplify approval procedure and shorten time required. The Opinions especially request specific number of legs within Chinese territories.
The Opinions require that airports utilize route resources and give priority to business aviation. Over busy hours， Beijing Capital Airport should guarantee no fewer than 15 movements a day for business aviation and 10 in Shanghai Hongqiao and Pudong. In busy cargo airports such as Beijing， Shanghai， Guangzhou and Shenzhen， the same aircraft cannot use two time slots over busy hours at the same airport. The Opinions give priority to emergency， important government affairs and medical rescue missions.
“In the past， business aviation could only squeeze between commercial flights. In the future， there will be proper planning， and we will have more room in operations. This is really great for business aviation，” commented Jinlu Jets.
Encourage
investment in
airports
The Opinions propose for the first time to build forward-looking general aviation airports， utilizing private capital. The procedure to build GA airports will be simplified， with more detailed guidance on standards. In newly-built and expanded cargo airports， the need of business aviation will be considered.
The Opinions encourage operators and other private capital to invest in hangars and FBOs， which will have detailed standard， while accommodating personalized needs of passengers. In addition， cargo airports will be equipped with ground services for business aviation， capable off fuel supply， coordination and aircraft parking. Separate business aviation zones will be planned.
The responsible person from Minsheng Leasing told U-Jet that Minsheng would support investors to invest in facilities once regulations allow.
Access and classification
management
Permits would be given for services in different categories， charter， operations and non-operational flying missions. Further regulations will be developed to govern operators， with a license-based system and standards. “In the past， all were under the big umbrella of civil aviation. Now we have a clearer category，” pointed out a practitioner.
The Opinions make it clear that “Small Aircraft Operators Qualification Review Rules” （CCAR135）” and “General Operations and Review Rules” （CCAR91） apply to business aviation. Operators will be reviewed and approved， and monitored and audited on a continuous basis. Rules governing business aviation and cargo transportation will be separated to avoid confusion. Operators are encouraged to conform to IS-BAO （international business aviation safety standards） to strengthen safety. General aviation administrative departments under civil aviation will continue to check enterprises’ conformance with rules and regulations. Business aviation operators should fulfill insurance obligations. Accident premiums for passengers should not be lower than required in “Domestic Carrier Liability Provisions”. There will be complaint handling procedures to safeguard passengers’ legal rights.
Simply procedure to acquire
business aircraft
Regional civil aviation administrators will follow “Temporary Methods on General Aviation Aircraft Procurement”， and develop detailed implementation rules and procedures regarding approval of large jets and other jets. Regional administrators should improve management and efficiency.
As enterprises expand， the Opinions ask for simpler administrative procedure， wider market access and delegation of authorities， to encourage leading enterprises to build alliance and restructure.
Finally， the Opinions request cancellation of fees not in conformance with international practices. International practices should also be followed to set a security zone for passengers， standardize clearance procedure and improve efficiency.
民航局相关人士告诉本刊，该《意见》由民航局局长李家祥亲自布置，主管副局长夏兴华对相关政策思路做了具体指示和要求。而《意见》的最大亮点就在于把公务航空从普通的民航管理体系中独立出来，从行业进入、资源配置、市场监管、软硬件配套、法规体系等方面做出了专门的规定和规划，并要求将相关工作纳入民航局和民航地区管理局航空运输（通用航空）委员会的议事内容，完善具体措施。
公务飞行审批更便捷
对于公务航空运营企业最为关注的飞行审批和航班时刻安排，《意见》要求细化、完善公务飞行计划审批管理办法，明确报送材料要求，简化审批程序，缩短审批时限；特别要求在审批国外（境外）公务机进、出我国国境飞行计划时，明确自入境至离境期间在中国境内飞行的航段数量。
而在公务航空时刻资源保障上，《意见》要求运输机场应充分利用航空运输公司航线航班所分配未使用且已交回时刻，优先保障公务飞行使用。在繁忙协调时段，北京首都国际机场国外（境外）公务飞行起降总量每天保证不少于15个（含），上海虹桥和上海浦东机场均保证不少于10个（含）。在北京、上海、广州、深圳等繁忙运输机场，同一架公务机一天内不能占用同一个机场的2个繁忙协调时段时刻。保障执行紧急、重要政务和医疗救助任务的公务飞行的时刻资源。
“以往公务机的时刻安排只能在民航航班里‘加塞’，但今后这一块的时刻资源将列入正式的运输计划，让我们在运营方面有了很大空间，且有了制度保障，这对公务航空企业来说是一针稳定剂。”金鹿公务机相关负责人表示。
鼓励社会资本投资公务机机场
《意见》首次提出，在国内建设一批适度超前、具有公务机保障服务能力的通用机场；支持社会力量依据市场需求，投资兴建具备公务机保障服务能力的通用机场；降低通用机场建设审批层级，简化审批程序。细化公务航空地面保障设施的建设标准，新建及改扩建的运输机场应统筹考虑设置公务飞行功能区域。
同时，《意见》支持公务机运营者以及其他企业投资兴建机库、候机楼等服务公务航空的地面保障设施。鼓励社会力量依据市场需求，投资设立固定基地运营者（FBO）。研究制定FBO运营规范，明确服务标准，为公务机乘客提供个性化服务。此外，运输机场应建立公务机地面保障协调机制，统筹协调空管保障、航油供应、飞机停放等服务；推进单独设置的公务航空功能区域建设。
民生租赁负责人告诉本刊，一旦允许社会资本投资公务机硬件设施，公司将大力支持各方资本合作。
规范准入分类管理
《意见》还将经营性公务包机飞行、公务机代管飞行和非经营性自用公务机飞行的运营者行业准入条件，分类实施行政许可；将研究制定从事经营性公务包机飞行、公务机代管飞行的通用航空企业的运营管理规定，完善经营许可实施程序和审核标准。“以前除了飞机以外，公务航空的管理基本都纳入普通民航体系中，而《意见》将其进行了专门分类。”业内人士指出。
《意见》要求明确《小型航空器商业运输运营人运行合格审定规则》（CCAR135部）、《一般运行和审定规则》（CCAR91部）适用于公务航空运行的条款；明确对公务机运营者运行合格审定和持续监督检查的标准，区分公务飞行与航空运输飞行所适用的规章条款，避免混用、套用。鼓励公务机运营者适时引入国际公务航空安全运行标准（IS-BAO），加强安全运行管理。
民航通用航空行业管理部门将持续检查企业使其各方面符合规章要求，依法合规运行。公务航空企业应履行责任保险的投保义务，机上乘客人身意外保险金额应不低于《国内航空承运人赔偿责任限额规定》的标准；制定公务机乘客服务投诉处理办法，维护乘客合法权益。
简化公务机引进程序
民航地区管理局今后将按照《引进通用航空器管理暂行办法》的规定，对引进喷气公务机管理的职责分工，针对引进大型喷气公务机的审核、引进其他喷气公务机的核准工作，结合辖区内公务航空发展需求，制定具体的实施细则和程序，改进管理方式，提高审批效率。
对于公务航空企业的壮大，《意见》要求简化行政许可程序、下放审批层级、放宽市场准入条件；支持公务机领先企业实施联合、兼并、重组，形成骨干示范企业。
《意见》最后要求，规范机场保障和空管服务收费，取消不符合国际惯例的收费项目。遵循国际惯例，划设公务机乘客联检区域，规范通行流程，提高验放效率。
ABACE is held in Shanghai this month. One month ago， “The Opinion on Strengthening Business Aviation Administration and Services” was presented to civil aviation authorities， airports and business aviation executives. “This is the first official opinion on business aviation， very advantageous to the industry. Let’s see how it is implemented，” commented a practitioner.
Relevant CAAC people told us that Mr. Li Jiaxiang， the director-general of CAAC had requested the drafting of the Opinion and Mr. Xia Xinghua， vice director-general had provided very detailed guidance. The highlight of the opinion is to separate business aviation from civil aviation， and there will be very detailed planning and guidance on access， resources allocation， market supervision， software and hardware， and regulations. Follow-on tasks will be on the agenda of General Aviation Commission， CAAC and regional administrations. More convenient approval of business aviation missions
The Opinions request detailed and comprehensive review method for flight approval and timetable， to be specific about documents submission， to simplify approval procedure and shorten time required. The Opinions especially request specific number of legs within Chinese territories.
The Opinions require that airports utilize route resources and give priority to business aviation. Over busy hours， Beijing Capital Airport should guarantee no fewer than 15 movements a day for business aviation and 10 in Shanghai Hongqiao and Pudong. In busy cargo airports such as Beijing， Shanghai， Guangzhou and Shenzhen， the same aircraft cannot use two time slots over busy hours at the same airport. The Opinions give priority to emergency， important government affairs and medical rescue missions.
“In the past， business aviation could only squeeze between commercial flights. In the future， there will be proper planning， and we will have more room in operations. This is really great for business aviation，” commented Jinlu Jets.
Encourage
investment in
airports
The Opinions propose for the first time to build forward-looking general aviation airports， utilizing private capital. The procedure to build GA airports will be simplified， with more detailed guidance on standards. In newly-built and expanded cargo airports， the need of business aviation will be considered.
The Opinions encourage operators and other private capital to invest in hangars and FBOs， which will have detailed standard， while accommodating personalized needs of passengers. In addition， cargo airports will be equipped with ground services for business aviation， capable off fuel supply， coordination and aircraft parking. Separate business aviation zones will be planned.
The responsible person from Minsheng Leasing told U-Jet that Minsheng would support investors to invest in facilities once regulations allow.
Access and classification
management
Permits would be given for services in different categories， charter， operations and non-operational flying missions. Further regulations will be developed to govern operators， with a license-based system and standards. “In the past， all were under the big umbrella of civil aviation. Now we have a clearer category，” pointed out a practitioner.
The Opinions make it clear that “Small Aircraft Operators Qualification Review Rules” （CCAR135）” and “General Operations and Review Rules” （CCAR91） apply to business aviation. Operators will be reviewed and approved， and monitored and audited on a continuous basis. Rules governing business aviation and cargo transportation will be separated to avoid confusion. Operators are encouraged to conform to IS-BAO （international business aviation safety standards） to strengthen safety. General aviation administrative departments under civil aviation will continue to check enterprises’ conformance with rules and regulations. Business aviation operators should fulfill insurance obligations. Accident premiums for passengers should not be lower than required in “Domestic Carrier Liability Provisions”. There will be complaint handling procedures to safeguard passengers’ legal rights.
Simply procedure to acquire
business aircraft
Regional civil aviation administrators will follow “Temporary Methods on General Aviation Aircraft Procurement”， and develop detailed implementation rules and procedures regarding approval of large jets and other jets. Regional administrators should improve management and efficiency.
As enterprises expand， the Opinions ask for simpler administrative procedure， wider market access and delegation of authorities， to encourage leading enterprises to build alliance and restructure.
Finally， the Opinions request cancellation of fees not in conformance with international practices. International practices should also be followed to set a security zone for passengers， standardize clearance procedure and improve efficiency.