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Opinions of the State Council and the Central Military Commission on Deepening the Reform of China's Low-altitude Airspace Management
[Effective]
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国务院、中央军委关于深化我国低空空域管理改革的意见
[现行有效]
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【法宝引证码】
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Opinions of the State Council and the Central Military Commission on Deepening the Reform of China's Low-altitude Airspace Management
(No. 25 [2010] of the State Council)
The people's governments of all provinces, autonomous regions and municipalities directly under the Central Government; all ministries and commissions of the State Council and all institutions directly under the State Council; all military regions, all corps and all headquarters; and the Armed Police Forces,
Low-altitude airspace is the main area for general aviation activities, and deepening the reform of low-altitude airspace management is an important measure to vigorously develop general aviation and prosper China's aviation industry and an urgent need to promote China's economic and social development. The CPC Central Committee, the State Council and the Central Military Commission have attached great importance to developing the aviation industry and doing a good job in air traffic control, and through the joint efforts of the military organs and the local governments, China's airspace management has been continuously improved and airspace resources have been effectively used step by step, which has played an important role in the economic and social development and national defense construction. With the rapid development of China's aviation, especially general aviation, some new situations and problems have arisen in the airspace management, and need to be solved through deepening reform. We hereby put forward the following opinions on deepening the reform of China's low-altitude airspace management:
| | 国务院、中央军委关于深化我国低空空域管理改革的意见
（国发[2010]25号）
各省、自治区、直辖市人民政府，国务院各部委、各直属机构，各军区、各军兵种、各总部，武警部队：
低空空域是通用航空活动的主要区域，深化低空空域管理改革，是大力发展通用航空、繁荣我国航空业的重要举措，是促进我国经济社会发展的迫切需要。党中央、国务院、中央军委十分重视发展航空业和做好空管工作，在军地双方的共同努力下，我国空域管理不断改进，空域资源逐步得到有效利用，在经济社会发展和国防建设中发挥了重要作用。随着我国航空事业特别是通用航空事业的快速发展，空域管理工作出现了一些新情况、新问题，亟需通过深化改革加以解决。现就深化我国低空空域管理改革提出以下意见。
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I. Fully comprehending the great significance of deepening the reform of low-altitude airspace management
| | 一、充分认识深化低空空域管理改革的重大意义
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1. The reform of low-altitude airspace management is a necessary requirement for economic and social development. In recent years, China's general aviation has seen rapid development, the average annual growth of the total flight has reached over 10%, the industry scale has been on the rise, the application fields have continuously expanded, there have been more flight types, and flight demands have been increasingly stronger. With the sustained and rapid economic growth and continuous improvement of people's living standards, the average annual growth of China's general aviation is expected to reach 15% or higher in the next 10 years, and increasing demands for low-altitude airspace will put forward higher requirements for the management and services of low-altitude airspace. Deepening the reform of low-altitude airspace management in good time will be conducive to fully developing and utilizing low-altitude airspace resources and promoting the development of the general aviation, aviation manufacturing and integrated transport system; be conducive to stimulating domestic demands, increasing employment and fostering new economic growth points; be conducive to providing an aviation human resource reserve and basic environment support for the national defense construction; and be of great strategic significance for building a moderately prosperous society in all respects and accelerating the socialist modernization construction.
| | （一）低空空域管理改革是经济社会发展的必然要求。近年来，我国通用航空快速发展，飞行总量年均增长达10％以上，行业规模日益扩大，应用领域不断拓展，飞行种类日益增多，飞行需求渐趋旺盛。随着经济持续快速发展和人民生活水平的不断提高，预计今后10年间我国通用航空年均增长将达到15％以上，对低空空域的需求与日俱增，将对低空空域管理和服务提出更高的要求。适时深化低空空域管理改革，有利于充分开发利用低空空域资源，促进通用航空事业、航空制造业和综合交通运输体系的发展；有利于拉动内需、扩大就业，培育新的经济增长点；有利于为国防建设提供航空人力资源储备和基础环境支撑，对全面建设小康社会、加快推进社会主义现代化建设具有十分重要的战略意义。
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2. The reform of low-altitude airspace management is an urgent and important practical task. Since the reform and opening-up, China has done some explorations on reforming its low-altitude airspace management, policies and regulations on low-altitude airspace management have been enacted, operation and management have been improved, there have been better guarantee measures, and the pilot reform program has achieved initial success. However, we must also see the problems in the low-altitude airspace management. For example, the division of airspace is not reasonable enough, the management system is not scientific enough, the operating mechanism is not smooth enough, the regulations and rules are not sound enough, the related means are not all in place, the responsibility for security is not clear, and the service guarantee is not perfect. There is still a substantial distance to the expectations of general aviation users and the public. Currently, the reform of low-altitude airspace management is at an important stage, we must research and make more effective policies and measures, waste no time in solving contradictions between the current management modes and the growing needs for low-altitude airspace, and tangibly improve management and services, so as to promote the sustained, rapid and healthy development of aviation.
| | （二）低空空域管理改革是一项紧迫而重大的现实任务。改革开放以来，我国在低空空域管理改革方面进行了探索，低空空域管理政策法规相继出台，运行管理不断改进，保障手段得到改善，改革试点取得了初步成效。同时必须看到，低空空域管理还存在空域划分不够合理、管理体制不够科学、运行机制不够顺畅、法规制度不够健全、手段建设不够配套、安全责任不够明晰、服务保障不够完善等问题，与通用航空用户和社会公众期望还有较大差距。当前，低空空域管理改革正处于重要阶段，必须研究制定更加有力的政策措施，抓紧解决现行管理模式与不断增长的低空空域需求之间的矛盾，切实改进和完善管理与服务，推动航空事业持续快速健康发展。
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II. Overall thoughts on deepening the reform of low-altitude airspace management
| | 二、深化低空空域管理改革的总体思路
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3. Guiding ideas. We shall follow the guidance of Deng Xiaoping Theory and the important thought of “Three Represents”, thoroughly apply the Scientific Outlook on Development, take the fast-growing demands for general aviation as the driving force, focus on developing a management mode and operating mechanism featuring convenient services and efficient operation, firmly establish a concept of safe development, ensure the security and stability of air defense, actively and steadily promote the reform of low-altitude airspace management, maximally revive low-altitude airspace resources, promote the healthy and orderly development of the general aviation, and provide a strong support for the economic construction, national defense construction and social development.
| | （三）指导思想。以邓小平理论和“三个代表”重要思想为指导，深入贯彻落实科学发展观，以快速增长的通用航空需求为牵引，以构建服务便捷、运转高效的管理模式和运行机制为重点，牢固树立安全发展理念，确保空防安全稳定，积极稳妥推进低空空域管理改革，最大限度盘活低空空域资源，促进通用航空事业健康有序发展，为经济建设、国防建设和社会发展提供有力支撑。
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4. Basic principles
We shall adhere to overall planning with all factors being considered, and make scientific plans. We shall regard the reform of low-altitude airspace management as a key task of the state's reform and development of air traffic control for a certain period from now on, strengthen the designing of the overall plan, set reasonable goals and tasks, scientifically determine the methods and steps, and continuously explore and perfect the low-altitude airspace management system, operating mechanisms, system of policies and regulations and system of service guarantee with Chinese characteristics.
We shall conduct more in-depth theoretical research to provide much needed guidance. We shall further research and structure a theoretical system for China's low-altitude airspace management, conduct a comprehensive and systematic analysis of the basic problems in the reform of low-altitude airspace management, reach a further consensus, and unify our ideas to provide theoretical guidance for the reform.
We shall well organize and actively and solidly implement the pilot programs. We shall choose typical and representative areas for the pilot programs of further reform, carefully sum up experience, and improve the countermeasures, to lay the groundwork for extensively promoting the reform of low-altitude airspace management.
We shall strengthen scientific and technological innovation and improve the technical guarantee. We shall adhere to the national and military conditions, benefit from relevant international standards and criteria as well as advanced concepts, make more efforts to tackle key technological problems, strengthen technology import, absorption and innovation, and endeavor to improve our technical guarantee capability and level of independent control.
We shall stick to the concept of safety first, and effectively regulate the management. We shall firmly establish a concept of safe development, always put the air defense security, flight security and security of important ground targets in the first place, clarify responsibilities level by level, effectively strengthen management, underscore strict and standard operations, and resolutely prevent major security issues.
| | （四）基本原则。
坚持统筹兼顾，科学制定方案。把低空空域管理改革作为今后一个时期国家空管改革和建设的重点任务，加强整体方案设计，合理确定目标任务，科学制定方法步骤，不断探索和完善具有中国特色的低空空域管理体制、运行机制、政策法规和服务保障体系。
深化理论研究，发挥先导作用。深入研究和构建我国低空空域管理理论体系，全面系统分析低空空域管理改革的基本问题，进一步形成共识、统一思想，为改革提供理论指导。
精心组织试点，积极稳妥推进。选择具有典型代表意义的区域进行深化改革试点，认真总结经验，完善对策措施，为全面推开低空空域管理改革奠定基础。
加强科技创新，完善技术保障。坚持从国情军情出发，借鉴国际相关标准规范和先进理念，加大技术攻关力度，加强技术引进和消化吸收再创新，努力提高技术保障能力和自主可控水平。
坚持安全第一，切实规范管理。牢固树立安全发展理念，始终把确保空防安全、飞行安全和地面重要目标安全放在首位，层层落实责任，切实加强管理，严格规范操作，坚决防止引发重大安全问题。
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5. Goals of reform
| | （五）改革目标。
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(1) Overall goal
We shall, through five to ten years of comprehensive construction and deepened reform, establish a scientific theoretical system, system of regulations and standards, operation and management system and service guarantee system in the filed of low-altitude airspace management, and gradually form a complete set of arrangements on organizational model, rules and operating mode, which not only have Chinese characteristics but also conform to the management pattern of low-altitude airspace, so as to fully develop and effectively utilize the low-altitude airspace resources.
．．．．．． | | 1.总体目标。
通过5至10年的全面建设和深化改革，在低空空域管理领域建立起科学的理论体系、法规标准体系、运行管理体系和服务保障体系，逐步形成一整套既有中国特色又符合低空空域管理规律的组织模式、制度安排和运作方式、充分开发和有效利用低空空域资源。
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