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란상 ( Luan Shuang ) 한국항공우주정책·법학회(구 한국항공우주법학회) 2016 한국항공우주정책·법학회지 Vol.31 No.2
通用航空與運輸航空是民航業的兩翼。中國運輸航空發展迅速,2005 年已成爲僅次于美國的世界第二大航空運輸系統,而通用航空却遠遠落后于世界平均水平,不能适應經濟建設和社會發展的需要。中國經濟轉型和結構調整使通用航空獲得了前所未有的廣闊市場空間,通用航空的發展前景令人期待。通航産業的發展需要法律的支持,中國通用航空法律現狀遠遠落后于現實需求。加快中國通用航空立法,需要有科學的立法理念。首先,立法必?促進通航産業發展。通用航空將會成爲中國擴大內需與促進就業、推動國內經濟發展的新興産業。立足于促進通用航空産業發展的觀念,根据國家的産業規劃,制定修改相關的法律、法規。理順空防安全與産業發展的關系,全面推進低空空域管理改革,以求提高空域資源利用率,分類劃設空域,簡化審批程序,加强運行管理。推進基礎設施布局建設,引導各地通用航空産業差異化協同發展。建立通用航空聯合監管机制,重新劃分中國空中管理机構的職責,構建机構明確、定位淸晳、職責分明的立法、執法、司法體系,開啓中國通用航空産業法制化管理新常態。其次,從管制向管制與服務幷重。借鑒美國的做法,考慮通用航空業的特殊性,立法應兼顧管制與服務功能。例如,淡化行政許可與市場監管,對通用航空實行“准則制”和“審批制”兩種不同的管理制度。復次,注重社會利益。通過立法完善社會救援机制。立法中需要明確通用航空活動的實施者對保護環境和生態平衡的義務,保證環境保護及生態平衡的社會利益的實現。最后,與國際航空准則接軌。修改與與國際准則不一致的地方,掃除國際合作的障碍。明確通航立法的基本原則。一是協調性原則。實現民用航空與通用航空的協調,軍用與民用之間的協調,各部門之間的協調。二是針對性原則。通用航空具有自身的規律和特殊性,需要專門性的法律法規加以規范。三是效率性原則。爲實現通用航空具的時間价値和空間价値,應完善空域開放、通用机場修建、通航運營、法規執行等方面規定。四是安全性原則。平衡中國空域資源得到最大化利用和由此給中國的國家利益和社會安全帶來的潛在威脅,建立完善的保險制度作爲安全性的防范和保障性措施。構建統一的法律體系。當前中國通用航空法律體系主要由國家立法、行政法規、民航規章三個層次構成,這三個層次都存在着一定的問題,主要是內容過于?統,保障措施不明確、實施細則有待完善,缺乏針對性和靈活性,運行管理的嚴密性和運行標准的統一性方面有較大欠缺等。應建立一套以法律爲核心、行政法規、行業規章、實施細則、産業政策和地方法規共同組成的法律法規體系。建議修改《民航法》,完善通用航空法律;制定法規《通用航空産業發展條例》;加快我國通用航空規章立改廢工作,增强規章協調性和統一性。 General aviation and air transport are two wings of the civil aviation industry. Chinese air transport is developing rapidly, and has become the world second air transport system only second to US since 2005. However, Chinese civil aviation is far behind the world average level, and cannot meet requirements of economic construction and social development. The transition and structural adjustment of Chinese economy provide the general aviation with a unprecedented broad market. The prospect of general aviation is promising and anticipated. The development of general aviation industry needs the legislative supports, and the current legislative conditions of Chinese general aviation are undoubtedly far behind the realistic requirements. Accelerating the legislation in Chinese general aviation industry requires scientific legislation concept. First, Legislation must promote development of general aviation industry. The general aviation will serves as a Chinese emerging industry that boosts domestic demand, promotes employment and expedite domestic economic development. We should, based on both the concept of promoting the industrial development of general aviation and national industrial planning, enact and rectify relative laws and regulations. And we should also straighten out the relationship between aviation security and industrial development and promote the revolution of low-altitude airspace management in an all-round way, in order to improve the utilization rate of airspace resources, classify and establish airspace, simplify examination and approval procedure and intensify operation management. In addition, what we should do is to expedite the infrastructure layout construction, guide the differentiated but coordinated development of general aviation industries in various areas, establish a united supervision mechanism of general aviation, redistrict the responsibilities of Chinese Air Control Agency and set up legislation, law enforcement and judicial systems with clarified institutions, clear positioning and classified responsibilities, so as to usher in a new era of the legislative management of Chinese general aviation industry. Second, shift the focus from regulations to both regulations and services. Considering the particularity of the general aviation, we should use American practices for reference and take into account both regulation and service functions when enacting general aviation laws. For example, we should reduce administrative licensing and market supervision, and adopt “criteria” and “approval” management systems for non-commercial and commercial aviation. Furthermore, pay attention to social benefits. Complete social rescuing mechanism through legislation. It should be clarified in legislation that general aviation operators should take the responsibilities of, and ensure to realize social benefits of environmental protection and ecological balance .Finally, rise in line with international standards. Modify Chinese regulations which is inconsistent with international ones to remove barriers to international cooperation. Specify basic legislative principles. One is the principle of coordination. Realize coordination between the civil aviation and general aviation, between military aviation and civil aviation, and among departments. Two is the principle of pertinence. The general aviation has its own rules and specialties, needing to be standardized using specialized laws and regulations. Three is the principle of efficiency. To realize time and space values of general aviation, we should complete rules in aerospace openness, general aviation airport construction, general aviation operations, and regulation enforcement. Four is the principle of security. Balance the maximum use of resources of Chinese airspace and the according potential threats to Chinese national interests and social security, and establish a complete insurance system which functions as security defense and indemnificatory measure. Establish a unified legal system. Currently, the system of Chinese general aviation laws consists of national legislation, administrative laws and regulations and civil aviation regulations (CAR). Some problems exist in three components of the system, including too general content, unclear guarantee measures, incomplete implementation details, and lacking corresponding pertinence and flexibility required by general aviation regulations, stringency of operation management and standards, and uniformity of standards. A law and regulation system, centered on laws and consisting of administrative laws regulations, industrial regulations, implementation details, industrial policies and local laws and regulations, should be established. It is suggested to modify the Civil Aviation Law to make general aviation laws complete, enact the Regulations of General Aviation Development, and accelerate the establishment, modification and abolition of Chinese general aviation laws to intensify the coordination and uniformity of regulations.
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