全球航空业在安全、开放和绿色的运营环境中稳步发展

航空

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航空

国际民用航空组织秘书长塔耶布·谢里夫博士
在2009 年中国民航发展论坛上的致词
（2009 年5 月14 日至15 日，北京）
“全球航空业在安全、开放和绿色的运营环境中稳步发展”
我深感荣幸地向各位享有盛名的来宾致词，探讨航空运输业面临的总体挑战，即如何在举步维艰的
经济和运营环境下确保可持续增长。
增长的概念本身似乎格外不合时宜，因为整个世界正在与有史以来最严重的一次衰退奋力抗争。大
部分市场的业务量都在下降，许多航空公司要么消失无迹，要么申请破产，而大部分航空公司面临收入
和盈利节节下跌，不得不减少运营。航空旅行的需求日益疲软，也对所有利害攸关方引起了重大的连锁
反应，无论是航空器制造商还是服务提供者，亦或是旅行和旅游部门，都受到波及。
然而，航空运输业从来都是韧性十足。在明年预期恢复增长之后，我们对中国和亚太地区预测的长
期前景是，该地区总体客运业务量每年将按5.5%的平均比率增长，直至2025 年。这意味着届时每年将
有近2.9 亿旅客。
中国航空业务市场的增长速度之快，在世界上名列前茅。过去几年，客运业务量的平均年度增长率
超过了15%。中国在货运业务领域也领导群雄。中国还在快马加鞭地发展航空运输的运力、新机场、空
中航行服务和空中交通管理的基础设施。
在中国庆祝其民航诞生六十周年之际，既会对其成就感到自豪，也会对未来充满信心；如同世界其
他各国，未来始于今日，始于采取切实有效的措施，改进航空运输系统的总体效率和可持续性。
对于我们所有人而言，安全必须始终是至高无上的优先。2008 年，世界各地的定期航班发生了11
起旅客死亡的航空器事故，与2007 年的事故数目相同，但死亡人数较低。事实上，鉴于每年有超过2500
万次定期航班飞行，做到这一点实属不易。
这一成就归功于航空业界所有成员的一致奉献与合作。国际民航组织普遍安全监督审计计划大力推
动了各国和各利害攸关方进一步提高其设施和流程的总体安全水平。普遍安全监督审计计划问世已达十
年之久，明年将逐步退出舞台。我们现在必须考虑如何推出连续监测做法，即CMA。这将要求各国进
一步参与收集数据和采取后续行动，但该做法将显著提高我们集体进行实时监督和提高安全水平的能
力。
提高航空安全的另一相关做法就是加强每个成员国的监管框架，促进全面实施和执行国际民航组织
的标准、程序和指导材料，并迅速解决出现的安全问题。安全文化必须贯穿于航空运输业务的方方面面，
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植根于民航局、航空公司、机场和其他每一个有关的利害攸关方。我们深感鼓舞地看到，国家安全方案
正在得到发展，类似安全管理体系的举措在政府机构和业界都在获得成功。
任重而道远，我们仍须开展更多的工作。我们必须特别强调诸如保护安全数据收集和处理系统等领
域。我们必须减少跑道侵入，这是阻碍我们显著改进总体安全的一大障碍。我们还必须应对今后的岁月
里我们将面临的一大挑战，这就是技能人员的匮乏。国际民航组织已经就此制定了一项四点行动计划，
以协助各成员国保持培训高标准，明年还将主持一个关于下一代航空专业人员的专题讨论会。
我还非常高兴地宣布，明年将在国际民航组织召开一次独特的高级别安全会议，这将是一次良机，
让我们全面审查对安全的种种挑战，以及我们必须设想的解决之道。我们始终如一的目标就是要为实施
全球航空安全计划及其各项要素营造合作氛围，如能将其付诸实施，将大大增强世界范围的安全。我强
烈鼓励大家出席这一会议，并为这一会议作出贡献。
提高航空器运行效率的必要性，是这些活动以及其他活动的核心所在。最新的一项举措就是及早实
施基于性能的导航。基于性能的导航，即PBN，涉及到从常规的陆基导航设备和程序到星基导航设备和
区域导航程序的重大转变。基于性能的导航更加精确，便于制定明确的性能要求，进而可在两个特定点
之间实现更短、更直达的航路，以及更高效的起降。这就减少燃油消耗、机场和空域的拥挤以及航空器
的温室气体排放。总而言之，基于性能的导航有助于进一步改进全球航空运输系统的安全、效率和可持
续性。
我们越早实施基于性能的导航，我们将越早得到其巨大益处。这一点已经得到2007 年国际民航组
织大会第36 届会议的认可，大会督促本组织所有成员国在2009 年前要有基于性能导航的实施计划。
我们已经在国际民航组织基于性能的导航手册当中明确阐述了基于性能导航的概念，现可提供一份
经协调的行动计划，以协助各国按照国际民航组织的标准实施基于性能的导航。国际民航组织各地区办
事处，包括驻曼谷地区办事处，都已经建立了由各国参与的基于性能导航的工作队；由各国和业界伙伴
组成的全球基于性能导航的工作队正在处理有关实施基于性能导航的许多事项。
美国的“下一代航空运输系统（NextGen）”和欧洲的“单一欧洲天空空中交通管理研究（SESAR）”
之未来的空中航行系统，都是以应用基于性能的导航为基础的，并且支持国际民航组织全球空中航行计
划，以确保全球协调统一和标准化。但是我们必须雷厉风行、果断行事。因此，我们已督促国际民航组
织在本地区以及世界各地的所有成员国勤奋努力，大力实施基于性能的导航计划。
在此方面，我谨祝贺并感谢中国在亚太地区应用基于性能导航的概念方面发挥了领导作用。4 月26
日，国际民航组织和中国签署了一份意向书，在北京建立飞行程序项目。之所以选择这一地区实施第一
个飞行程序项目，是因为该地区的业务量增长颇为可观。这一项目的特点之一就是帮助实施基于性能的
导航。正式的签字仪式可能将在10 月召开的民航局长会议上举行，我鼓励所有国家加入这一方案。
我到目前为止一直在谈如何以安全有效的方式应对增长问题。我们还必须以一种对环境可持续的方
式来处理这一问题。航空业面临着与日俱增的压力，要求其减少碳足迹，成为更绿色化的行业。在座的
各位都了解我们在过去30 年中为提高航空运输业务的能源效益所取得的长足进展。我们也知道，由于
在这一领域增长的速度超过了进展的步伐、我们的进展是不够的。
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大会第36 届会议设立的国际航空与气候变化组正在制定一项雄心勃勃的行动计划，以处理温室气
体排放问题，并将在两周后举行的其第四次也是最后一次会议上提交讨论。国际民航组织理事会将在6
月份审查有关报告。此后定于10 月举行的一次高级别会议将重点讨论这一计划，由此形成的结论和建
议将构成12 月在哥本哈根举行的联合国气候变化框架公约缔约方大会上航空业立场的基础。
我们和各国以及航空业界一起辛勤工作，提出了我们的共同观点，即国际航空排放应该继续通过国
际民航组织予以管理。过去，这一进程是行之有效的，今后，这一进程也将产生更多的益处。这是一项
屡经考验的方法，反映了航空部门与众不同的特点。
归根结底，在迎接所有挑战时，我们成功的最佳保障就是顺应国际航空的固有性质，并肩工作。我
们必须协调合作，向前迈进。对于许多国家而言，这就意味着通过地区组织和地区一体化进行协作。
这一战略的明智之处已在一年前在蒙特利尔国际民航组织总部举行的地区组织专题讨论会上得到
了阐述。专题讨论会得出的结论是，地区组织是一个积极的现实，朝着进一步的地区管理迈进，正是大
势所趋。
地区组织便于集中资源、降低成本，而在我们面临的困难条件下，此乃一项关键因素。地区组织的
优势在安全监督领域最为明显，但也可在其他领域，例如提供空中航行服务、保安或环境政策等领域发
挥其优势。
此外，地区组织还通过支持合并现有规则，制定通用规则，或者建立地区监管框架，来推动自由化
进程。地区一体化可以为处理各种事项，例如所有权和控制权这一妨碍全球民用航空发展的因素，提供
更大的灵活性。
女士们，先生们，勿庸置疑，今后的岁月里我们将面临着众多挑战。这一论坛将触及其中许多项挑
战，我本人期待着主持一个专家组讨论，探讨如何以最佳方式确保航空业的可持续增长。
— 完 —
Address by the Secretary General of the
International Civil Aviation Organization (ICAO),
Dr. Taïeb Chérif,
to the 2009 China Civil Aviation Development Forum
(Beijing, 14-15 May 2009)
“Stable Development with a Safe, Open, and Green Operational Environment
for the Global Aviation Industry”
It is a great honour for me to address such a prestigious audience on the overall challenge
facing air transport – ensuring sustainable growth in an extraordinarily demanding economic and
operating context.
The very idea of growth seems strangely out of place as the world struggles with one of
the worst recessions ever. Traffic is down in most markets and many airlines have disappeared or filed for
bankruptcy, while most have had to curtail operations in the face of diminishing revenues and yields. The
weakening demand for air travel has also had a formidable ripple effect on all stakeholders, from aircraft
manufacturers to service providers, as well as the travel and tourism sector.
The air transport industry, however, has always been resilient. Following the anticipated
recovery next year, our long-term prospect for China and the Asia Pacific Region is for overall passenger
traffic within the region to grow at an average annual rate of 5.5 percent until the year 2025. This would
mean almost 290 million passengers a year at that time.
China’s air traffic market is among the fastest growing in the world. The average annual
rate of growth for passenger traffic has exceeded 15% over the last several years. China is the leading
player in freight traffic. And China is moving fast in terms of capacity for air transportation, new airports,
air navigation services and air traffic management infrastructure.
As China celebrates the 60th anniversary of its civil aviation, it can be proud of its
accomplishments and confident in its future, a future that begins today, as it does for the rest of the world,
by effective measures to improve the overall efficiency and sustainability of the air transport system.
For all of us, safety must remain the top priority. In 2008, there were 11 aircraft accidents
worldwide involving passenger fatalities on scheduled air services worldwide, the same as in 2007, but
with fewer fatalities. This is indeed remarkable given the more than 25 million scheduled flight operations
annually.
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This achievement is the result of commitment and cooperation on the part of all members
of the aviation community. The ICAO Universal Safety Oversight Audit Programme (USOAP) has been a
great incentive for States and stakeholders alike to further improve the overall safety level of facilities and
processes. USOAP is now ten years old and will be phased out next year. We must now anticipate the
introduction of the Continuous Monitoring Approach – the CMA. This will require increased involvement
from States for the collection of data and follow-up activities, but it will significantly enhance our
collective ability to oversee and improve the level of safety, on a real-time basis.
A related approach to increasing aviation safety is to strengthen the regulatory framework
in each Member State, so as to promote the full implementation and enforcement of ICAO standards,
procedures and guidance material, as well as rapid resolution of safety issues as they arise. A culture of
safety must permeate every element of air transport operations, within civil aviation administrations,
airlines, airports and every other stakeholder concerned. We have been very encouraged by the
development of State Safety Programmes and the success of initiatives like Safety Management in both
government agencies and industry.
Yet we must do more. We must put special emphasis in such areas as the protection of
safety data collection and processing systems. We must reduce runway incursions, one of our major
obstacles to considerably improving overall safety. And we must surely address one of the greatest
challenges we will face in the coming years, the lack of skilled personnel. In this regard, ICAO has
developed a four point plan of action to assist Member States in maintaining high standards of training
and will host a Symposium next year on the next generation of aviation professionals.
I am also pleased to announce a unique high-level safety conference to be held next year
at ICAO. It will be an opportunity for a comprehensive view of safety challenges and the solutions we
must envisage to resolve them. Our objective, as always, is to foster a climate of cooperation around the
implementation of the Global Aviation Safety Plan and its myriad elements that, if pursued, can greatly
enhance safety around the world. I strongly encourage everyone to attend and to contribute.
At the heart of these and other activities is the need to increase the efficiency of aircraft
operations. One of the most recent initiatives is the early implementation of Performance-based
Navigation. Performance-based Navigation, or PBN, involves a major shift from conventional groundbased
navigation aids and procedures to satellite-based navigation aids and area navigation procedures.
Performance-based Navigation is more accurate and makes it possible to establish clear performance
requirements, leading to shorter, more direct routes between two given points, as well as more efficient
take-offs and landings. This reduces fuel burn, airport and airspace congestion, and aircraft emissions of
greenhouse gases. In short, PBN contributes to further improving the safety, efficiency and sustainability
of the global air transport system.
The sooner we implement PBN, the sooner we will reap its enormous benefits. This was
recognized by the 36th Session of the ICAO Assembly in 2007 when it urged all Member States of the
Organization to have PBN implementation plans ready by 2009.
We have clearly outlined the PBN concept in the ICAO Performance-based Navigation
Manual and a coordinated action plan to assist States in the implementation of PBN according to ICAO
criteria is now available. All ICAO Regional Offices, including our office in Bangkok, have established
PBN task forces with participation from States and a Global PBN Task Force, made up of States and
industry partners, is addressing many of the issues associated with PBN implementation.
The Next Generation Air Transportation System (NextGen) of the United States and the
European SESAR future air navigation systems are both based on the application of PBN and support the
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ICAO Global Air Navigation Plan to ensure global harmonization and standardization. But we must act
quickly and decisively. We have therefore urged all ICAO Member States in this Region and around the
world to move with diligence in their PBN implementation plans.
In this regard, I would like to congratulate and thank China for taking a leadership role in
the application of the PBN concept in the Asia-Pacific Region. On 26 April, ICAO and China signed a
letter of intent to establish a Flight Procedures Project, located in Beijing. The Region was chosen for the
first FPP because of the tremendous growth in traffic here. One of the features is that it will help in the
implementation of PBN. The formal signing will probably take place at the DGCA conference to be held
in October and I encourage all States to join the programme.
Thus far, I have spoken of ways to address growth in a safe and efficient manner. We
must also do so in an environmentally sustainable manner. There is increasing pressure for aviation to
reduce its carbon footprint, to become greener. All of us in this room know the progress we have made
over the past 30 years or so in increasing the energy efficiency of air transport operations. We also know
that it is not enough because growth outpaces progress in this area.
The Group on International Aviation and Climate Change created by the 36th Session of
the Assembly is formulating an aggressive plan of action to address the issue of greenhouse gas emissions
and will table it at its fourth and final meeting in two weeks time. The Council of ICAO will review the
report in June. It will then be the focus of a high-level meeting in October and the resulting conclusions
and recommendations will form the basis for aviation’s position at the Conference of the Parties of the
UNFCCC in Copenhagen, in December.
We have worked very hard with all States and industry in putting forth our common view
that emissions from international aviation should continue to be managed through ICAO. This process has
worked well in the past and can lead to more gains in the future. It is a tried and tested methodology that
reflects the unique characteristics of the sector.
Having said all of this, our best guarantee of success in meeting all of challenges is to
work together, in keeping with the very nature of international aviation. We must move ahead in a
concerted and cooperative manner. For many States, this means collaboration through regional
organizations and regional integration.
The wisdom of this strategy was outlined at a Symposium on Regional Organizations
held one year ago at ICAO in Montreal. The Symposium concluded that regional organizations are a
positive reality and that there is a trend towards more regional governance.
Regional organizations allow for the pooling of resources and the reduction of costs, a
crucial factor now given the demanding conditions we are facing. Their advantages are most evident in
the area of safety oversight, but can also be achieved in other areas, such as the provision of air navigation
services, security or environmental policy.
Regional organizations also facilitate the process of liberalization by favouring the
converging of existing rules, the development of common rules, or even the creation of a regional
regulatory framework. Regional integration can provide more flexibility in dealing with issues such as
ownership and control, a factor hampering the development of civil aviation on a global scale.
Ladies and gentlemen, there is no doubt that many challenges await us in the years ahead.
This forum will touch upon many of them and I personally look forward to moderating the panel that will
look at how best to ensure sustainable growth of the aviation industry.
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