ICAO – Leading Aviation Through Challenging
Times
国际民航组织：引导航空运输工业进入挑战性的时代
2
China Civil Aviation Development Forum 2007中国民航发展论坛
Dr.Ta?eb Chérif Secretary General
International Civil Aviation Association (ICAO)
Ta?eb Chérif 博士
秘书长
国际民航组织
塔耶布·谢里夫博士
1941年12月29日生于阿尔及利亚布海里堡
国籍：阿尔及利亚
婚姻状况：已婚，有三个子女
教育：航空运输经济学博士，论文题目：“多等式旅行需求模型—在大不列颠航空/铁路竞争中的应用”（1981）。联合王国克兰菲尔德技术学院航
空运输硕士，论文题目：“航空旅行需求预测模型”（1978）。法国
图卢兹市国家民航学院国家航空毕业文凭。阿尔及利亚阿尔及尔市阿
尔及尔大学的数学学士学位（1967）。
语言：主要受教育语言：阿拉伯文（母语），英语和法语
其他语言：德语（初级水平）
工作经历：自2003年8月1日起—国际民用航空组织（ICAO）秘书长
—阿尔及利亚驻国际民航组织理事会代表。担任过航空运输 1998–2003
委员会成员、副主席和主席以及财务委员会成员。
—民航顾问。对阿尔及利亚航空运输自由化和驾驶员培训方 1995-1997
面的项目做可行性研究和评估。
—阿尔及利亚高等教育国务秘书。担任负责在大学教育和科 1992-1994
研领域实施国家政策的部长级职位。
—航空建设项目主任。
1987-1992
—阿尔及利亚运输部航空运输司司长。
1985-1987
—民航顾问。为阿尔及利亚民航制定规划，包括重组阿尔及 1982-1985
利亚航空公司的机队和航线网络。
—在联合王国克兰菲尔德技术学院就运输问题做博士研究。 1977-1981
—阿尔及尔达尔贝达国际机场主任。负责机场和当地空域的 1975-1976
技术和运行管理以及人事和财务事务。
—阿尔及利亚运输部空中航行处副处长。他对地面助航设备 1974-1975
的飞行校验单位做出过贡献，随后中东地区的所有阿拉伯
国家和大多数海湾地区国家十多年来都已采用这一单位。
—阿尔及利亚运输部运输与专业航空处副处长。
1971-1974
—阿尔及利亚运输部民航局工程官员。负责阿尔及利亚航空 1970-1971
公司飞行设备研究。
—在阿尔及利亚阿尔及尔经济科学院为研究生教其他活动： 1984-1985
授航空运输经济学课程。
—在阿尔及利亚布里达国家航空技术员学校教授飞行机械 1973-1974
学、空气动力学和飞行运行。
1970-1971
—在阿尔及利亚阿尔及尔民航和气象学院教授航空运输法
规。
Dr. Ta?eb Chérif
Secretary General
International Civil Aviation Organisation
Born in Kasr El Boukhari, Algeria, on 29 December 1941
Nationality: Algerian
Marital Status:Married, with three children
Education: PhD in Air Transport Economics, Thesis title: “Multiequation Travel
Demand Models -- Application to the Air/Rail Competition in Great Britain”
(1981), Master of Science in Air Transport, Thesis title: “Air Travel Demand
Forecasting Models” (1978), Cranfield Institute of Technology, United
Kingdom. State Diploma in Aeronautics from the école nationale de
l’aviation civile in Toulouse, France. Bachelor’s Degree in Mathematics
from the Université d’Alger in Algiers, Algeria (1967).
Languages:Primary languages of instruction: Arabic (Mother-tongue), English and
French
Others: German (beginner)
Career: As of 1 August 2003 - Secretary General of the International Civil Aviation Organization (ICAO)
1998-2003 - Representative of Algeria on the Council of ICAO. Acted as
Member, Deputy Chairman and Chairman of the Air Transport Committee,
and Member of the Finance Committee.
1995-1997 - Civil Aviation Consultant. Conducted feasibility studies and
assessments of projects related to the liberalization of air transport and pilot
training in Algeria.
1992-1994 - State Secretary for Higher Education, Algeria. Ministerial post
responsible for the implementation of State policy in the fields of university-
level education and scientific research.
1987-1992 - Director of an aeronautical construction project.
1985-1987 - Director of Air Transport, Ministry of Transport, Algeria.
1982-1985 - Civil Aviation Advisor. Developed a plan for the Algerian civil
aviation including the re-configuration of Air Algerie fleet and network.
1977-1981 - Research studies on transport at doctoral level, Cranfield
Institute of Technology, United Kingdom.
1975-1976 - Director of Algiers International Airport “Dar El Beida”.
Responsible for the technical and operational management of an airport and
local airspace, as well as personnel and financial matters.
1974-1975 - Deputy Director of Air Navigation, Ministry of Transport,
Algeria. He contributed to an in-flight calibration unit for ground aids, later
adopted by all Arab countries in the Middle East and the majority of Gulf
countries for more than a decade.
1971-1974 - Deputy Director of Transport and Aerial Activities, Ministry of
Transport, Algeria.
1970-1971 - Engineering Officer, Civil Aviation Directorate, Ministry of
Transport, Algeria. Responsible for studies of on-flight equipment for Air
Algérie.
Other Activities:1984-1985 - Taught courses on air transport economics to post-graduate
students at the Economic Science Institute in Algiers, Algeria.
1973-1974 - Taught flight mechanics, aerodynamics and flight operations at
the école nationale des Techniciens de l’Aéronautique in Blida, Algeria.
1970-1971 - Taught air transport regulation at the Institute for Civil Aviation and Meteorology in Algiers, Algeria.
国际民航组织（ICAO）秘书长TA?EB CHéRIF博士
在中国民航发展论坛上的政策演讲
,
“国际民航组织--引领航空运输业进入挑战性的时代”
（2007年5月9-10日中国北京）
我很高兴能够回到中国参加这次非常重要而及时的中国民航发展论坛。我期待着就中国航空运输和全球航空运输均会遇到的问题所进行的讨论，并愿意与各位分享ICAO最近在各位地位尊贵的听众们感兴趣的问题上所做的努力。
目前，中国的航空运输业居世界第二位，而且未来的发展前景光明，与中国经济的持续发展保持一致。但是，中国同世界上其他国家一样面临着挑战，那就是在采用系统的和有序的方式管理国内和国际航空运输服务的同时还要确保快速发展环境下运行的安全、保安、持续发展和效率。
在发展过程中，中国与其他成员国一样，都可以依靠ICAO的指导和支持。正如在过去60年中一样，ICAO的职责就是带领航空业走过挑战性时代。
我要提出以下建议：任何关于航空发展模式的讨论都必须在仔细考虑了国家利益、消费者期待和确保一个健康的航空运输业的各种要求后得出一个和谐平衡的解决方案。
航空安全
一直以来，安全一定是我们的头号大事。几周前，ICAO公布了2006年初步的安全统计数据，这些数据表明全球航空运输系统与从前一样安全。我们可以、也应当为这样的结果感到骄傲。同时，运输量的增长和航空运行复杂性的增加命令我们要保持极度的警觉。
如《全球航空安全计划（GASP）》中所述，ICAO的安全战略关注那些安全水平提高回报最高的活动。作为全球航空安全计划的一个关键要素，ICAO普遍安全监督审计计划已经提高了全球航空安全水平，并通过ICAO于2006年3月召开的全球民航局长会议扩大了其影响力。那次会议达成了如下一致意见：到2008年3月，根据缔约国的同意，ICAO将在公众网站上公布审计结果。这将鼓励缔约国更迅速地纠正存在的明显不足、并让缔约国和援助者更容易向那些有需求的缔约国提供必要的财力和人力资源方面的援助。
信息的透明与共享是ICAO“解决安全不足的统一标准战略”另一个基本原则。该战略强调安全信息在与航空运输相关的各人、各级之间无障碍、自由流动。这是在各种不同利益相关方之间创立或加强合作伙伴关系来解决不足的基本条件。
我们战略的第三根支柱是安全管理体系。SMS是在人手较少的情况下按照绩效对人员和职责进行管理的最高效的方式。我们鼓励缔约国在标准、有关指导性材料以及规章模版的帮助下采用实施SMS，这些标准、指导性材料及规章模版使得SMS实施更加容易。
去年12月向ICAO所提交的行业全球航空安全路线图的第二部分、也是最后一部分是最新近在安全方面所做的努力。此路线图标志着政府部门和行业，尤其是发展中地区的政府部门和行业，第一次携起手来根据《全球航空安全计划》共同制订一个旨在降低事故发生率的统一而协调的解决方案。
确实，中国已经注意到了这些努力背后的意图，并且已经预先重整了其安全体系。我想在此称赞中国所做的努力并强调其所取得的成就，这些努力和成就包括：
?从1999年安全监督审计到2001年后续审计期间坚定不移地推进建议的实施；
?在航空系统中采纳多项SMS原则；
?培养安全文化，让航空组织和公司接受安全的责任；从完全依赖事故后处理向前瞻性的安全管理过渡。
?提高对国际安全标准的符合性；
?将新的重点放在训练上；以及
?鼓励更多地应用技术性解决方案。
我还要感谢中国确立的安全目标，这包括将2006-2010年期间的重大事故率降低到0.3次/百万飞行小时。预计到2010年，中国的旅客数量将达到 2.7亿、运输机队将达到1500架飞机、运行的民用机场将达到190个，这些衡量标准和目标恰得其时。
航空保安
航空保安是我们关注的另一件大事。同安全一样，全球航空运输系统保持着与以前同等的可靠性，但是诸如去年8月在英国发生的所谓恐怖分子策划液体炸弹等事件仍在提醒我们，航空系统是多么容易受到攻击。
利益攸关的是人—那些旅客和机组、以及在地面上的人们。同样利益攸关的是公众对航空旅行的信心、对旅客带来的不便、以及由于缺乏加强的保安措施导致航空公司和机场需付出的巨大成本。保安问题一定不能成为发展的绊脚石，但是必须认识到航空运输的基本目的是将人们从出发地安全地运送到其目的地。
我们必须理解政府部门在管理保安问题上所要克服的困难和承担的不值得羡慕的任务，他们要在维持和鼓励反恐警戒的同时、保证所用的有效保安措施不会影响到航空运输的效率。确保有效而一致的保安措施在国家层面和国际层面上都是一个持续而不断发展变化的挑战。
再一次，ICAO承诺了快速、有效和协同措施。例如，在前述事件发生的几天之内，ICAO就召集各缔约国、法律部门和行业代表们制订出有效的应对措施。我们发布了一系列关于此类新型爆炸物的临时措施，并要求缔约国必须在2007年3月1日之前实施这些措施。最近，我们制订了永久性指导方针，并修订了不得带上飞机的物品清单。我预计今年6月ICAO 会出版公布这些材料。
总的来说，2001年9.11事件后ICAO采纳的加强航空保安行动计划是为帮助缔约国解决任何形式的航空保安问题而制订。这包括一个普遍保安审计计划和一系列补充活动，例如存储有生物特征信息的电子护照的新标准。我们必须长期不懈地评估新出现的威胁、并持续监督和改进现有的保安流程，以确保他们与已识别的危险水平相当，同时加速所有机场旅客和行李的通行速度。
环境保护
航空对环境的影响是航空运输业发展中另一个潜在的障碍。在世界很多地区，压力集团正在游说减少飞行量或减少离大城市中心较近的机场的数量。同时，尽管今天的飞机与40年之前相比其燃油经济性已提高了70%，但是飞机发动机所排放的温室气体也在更多地影响当地空气的质量和全球的气候变化。当然，其原因是飞行流量的持续增加。这是我们所面临的最让人沮丧的挑战。
今年2月，ICAO航空环境保护委员会（CEAP）召开了第7次会议，采纳了几项解决飞机发动机排放对环境影响问题的建议措施。3月15日，ICAO理事会批准了这些建议措施。这些建议措施反映了ICAO就限制和减少排放问题提出的三个基本解决途径，这三个途径是：预先措施、减少排放的运行措施和以市场为基础的措施。这些建议措施将于今年9月提交给ICAO第36届大会。
关于噪音，ICAO在确保采纳平衡解决噪音方案方面做出了努力，包括预先减少、土地使用规划和管理、降噪运行程序和运行限制。
ICAO也通过CAEP将所有的利益相关方—缔约国、行业和服务提供商们—召集到一起，改进并实施措施来逐渐将航空活动对环境的影响最小化，为人类拥有一个更加健康的星球做出贡献。
自由化
我今天想要陈述的最后一个问题是航空运输管制问题。自由化是未来航空运输行业发展的基石。自由化进程已经发展了15年，趋势不可逆转。目前，自由化在全球广泛蔓延，各国之间签署了大约120多个开放天空双边协议。其势头也在向地区一级和地区更低一级扩张。
仅一周以前，欧盟和美国就欧美开放航空领域签署了划时代的协议。这个发展会对全球自由化进程以重大影响，因为此开放天空协议将会影响全球最重要的两个航空市场。目前，这两个市场的航空运输量之和大约占全球国际航空运输量的51%。
如自由化进程那样确定，我们必须确保根据国际惯例来开展自由化。这些惯例业已存在，并在芝加哥公约支持的指导性原则、以及分别于1994年和2003年召开的第四届和第十五届两届国际航空运输大会的10年期间由ICAO制订的自由化通用政策框架中得以具体表述。简单地说，其目标是要创造一个国际航空运输能够稳定、高效和经济地发展壮大而不妨碍到安全和保安的环境。
伴随着自由化的趋势，全球化和商业化的某些现象对行业产生明显的影响。航空公司已经进行了重大结构调整。传统的全面服务型航空公司商业模式已经面临着日益增加的挑战，这些挑战有的来自于国内、地区内甚至于地区外快速扩张的低成本航空公司。为了应对日益增长的竞争，航空公司战略和规划的焦点已经更加趋向于联盟、合并和跨国资本投资、以及开拓基于网络的经济规模和机会。另外，电子商务已经为行业广泛应用于市场营销及产品销售。
对于机场和航行服务提供商，由于自由化带来的旅客和货物量预期增长要求大量投入才能满足对高效、及时服务的需求。对于局方，这意味着要调整国际航空运输的管理规章架构和目标。国家在制订政策时需要更开阔的视野，要制订出考虑到了所有利益相关方的需求和利益的平衡解决方案。
合作能有效应对所有这些挑战。合作包括国家经济各部门与航空团体之间的合作，也包括国家与ICAO其他成员国及全球利益相关方之间的合作。
结束语
女士们、先生们：明年，中国将邀请世界各国的朋友们来北京参加第29届奥运会。这是一个令中国骄傲的时刻，也是向世界展示航空运输系统是各国联系纽带的时刻。我谨祝愿你们万事如意、一切顺利。
- 完 -
KEYNOTE ADDRESS BY THE SECRETARY GENERAL OF THE
INTERNATIONAL CIVIL AVIATION ORGANIZATION (ICAO),
DR. TA?EB CHéRIF,
TO THE CHINA CIVIL AVIATION DEVELOPMENT FORUM
“ICAO - Leading Aviation through Challenging Times”
(Beijing, China, 9-10 May 2007)
It is truly a pleasure for me to be back in China and to take part in this very important and timely forum on the development of Civil Aviation in this country. I look forward to discussing major issues facing both China and the world in matters of global air transport and to share recent ICAO initiatives on issues of interest to this prestigious audience.
China’s air transport industry is now recognized as the second largest in the world and prospects for future growth are excellent, in line with the sustained expansion of the economy. However, like many other countries around the world, China is faced with the challenge of managing the growth of its domestic and international air services in a systematic and orderly manner, while ensuring the safety, security, sustainability and efficiency of operations in a rapidly changing environment.
As it moves forward, China can count on ICAO for guidance and support, as can all other Member States. As it has done for the past 60 years, the role of ICAO is to lead aviation through challenging times.
I would suggest that any discussion on a development model for aviation today must reflect a balanced approach that takes into account national interests, consumer expectations and the requirements for ensuring a healthy air transport industry.
Aviation Safety
Our first priority, as always, must be safety. A few weeks ago, ICAO published its preliminary safety statistics for 2006 and they point to a global air transport system that is as safe as it has ever been. We can and we should be proud of these results. At the same time, growth in traffic and the increasing complexity of air operations dictate that we remain extremely vigilant.
ICAO’s strategy for safety is captured in our Global Aviation Safety plan – GASP – which focuses on activities that provide the highest return for improving safety. The ICAO Universal Safety Oversight Audit Programme, a key element of the Plan, has already improved aviation safety around the world and its impact was enhanced by the Conference of Directors General of Civil Aviation held at ICAO in March 2006. With a unanimous decision, the Conference agreed that ICAO should post the results of audits on our public website, with the consent of States, by March 2008. This should encourage States to correct outstanding deficiencies more quickly and make it easier for States and donors to provide those in need with the required financial or human resources.
Transparency and sharing of information is also a fundamental principle of the ICAO Unified strategy to resolve safety-related deficiencies. The Strategy emphasizes the free-flow of safety-related information by everyone involved in air transport, at every level, and across every discipline. This is an essential condition for creating or strengthening partnerships among various stakeholders to resolve deficiencies.
The third pillar of our strategy is Safety Management Systems, or SMS. SMS represent the most effective way of responding to the need for results-based supervision of personnel and functions with a relatively small workforce. We encourage the adoption of SMS by States with concrete assistance in the form of standards and related guidance material, and a model legislation to make it easier to implement SMS.
The most recent initiative regarding safety came last December with the presentation to ICAO of the second and final part of the industry Global Aviation Safety Roadmap. The Roadmap marks the first time that governments and industry have jointly developed a unified and coordinated approach to reducing accident rates, particularly in developing regions of the world, in accordance with the Global Aviation Safety Plan.
It is clear that China has taken good note of the intent behind these initiatives and has been proactive in reforming its safety system. I wish to commend China for its efforts and to highlight a few achievements, such as:
?steady progress in the implementation of recommendations made during the safety
oversight audit carried out in 1999 and followed up in 2001;
?adoption of many SMS principles within its aviation system;
?fostering of a safety culture whereby organizations and companies accept
responsibility for safety; a shift to a proactive safety management instead of reliance
entirely on post-accident action;
?promotion of compliance with international safety standards;
?placing a new emphasis on training programmes; and
?encouragement of greater utilization of technological solutions.
I also want to acknowledge the set of specific targets set by China, including a reduced accident rate for the period 2006-2010 to less that .300 hull losses for every million hours of flight time. With the number of passengers expected to reach 270 million in 2010 and the air transport fleet to 1,500 aircraft, with some 190 civil airports in operation, these measures and targets come at a most opportune time.
Aviation Security
Aviation security is another priority. As with safety, the global air transport system remains as secure as ever, yet events such as the alleged terrorist plot in the United Kingdom last August, potentially involving liquids used as explosives, reminds us of how vulnerable the system is.
What is at stake is lives, those of passengers and crews and those of people on the ground. Also at stake are public confidence in air travel, inconvenience for passengers and considerable costs to airlines and airport stakeholders due to poorly enforced security measures. Security must not become an impediment to growth, yet it must recognize the fundamental purpose of air travel, getting people from departure to destination safely.
We must understand that in managing security issues, governments have the difficult and unenviable task of balancing the need for maintaining and encouraging anti-terrorist vigilance while concurrently putting in place workable security measures that do not compromise the efficiency of the air transport sector. Ensuring effective and harmonized security measures, nationally and
Here again, ICAO is committed to rapid, effective and cooperative action. For example, within days of the event, ICAO brought together States, law enforcement agencies and industry representatives to develop an effective response. We issued a series of interim measures concerning this new kind of explosive for implementation no later than 1 March 2007. And we are currently developing permanent guidelines and a revised list of items which may not be brought on board aircraft. I expect this material to be ready for publication in June.
Overall, ICAO’s Plan of Action for Strengthening Aviation Security, adopted after the events of 11 September 2001, is designed to help States address all forms of aviation security issues. This includes a Universal Security Audit Programme and a series of complementary activities, including new standards for electronic passports with biometric identification. In the long term, we must diligently assess new and emerging threats and continually monitor and upgrade existing security processes, to ensure they are commensurate with the level of threat identified, while expediting the clearance of passengers and cargo at airports.
Environmental protection
The impact of aviation on the environment is another potential obstacle to the growth of air transport. In many parts of the world, pressure groups are lobbying to have flights reduced or curtailed at airports located near large urban centres. At the same time, greenhouse gas emissions from aircraft engines are increasingly affecting local air quality and global climate change, in spite of the fact that aircraft are 70 per cent more energy efficient than they were 40 years ago. The reason of course is the continued growth in traffic. This in one of the most daunting challenges we face.
In February of this year, ICAO’s Committee on Aviation Environmental Protection, CAEP, held its seventh meeting and adopted several recommendations that address environmental impacts of aircraft engine emissions. The recommendations, which were approved by the ICAO Council on 15 March reflect the three primary approaches promulgated by ICAO to limit or reduce emissions, namely: action at source, operational measures to reduce emissions and market-based measures. They will next be submitted to the 36th Session of the ICAO Assembly in September.
On the subject of noise, ICAO was instrumental in ensuring the adoption of a balanced approach for noise, which includes reduction at source, land-use planning and management, noise abatement operational procedures and operating restrictions.
ICAO is committed through CAEP to bringing together all stakeholders – States, the industry and service providers – to refine and implement measures that can cumulatively minimize the impact of aviation on the environment and contribute to a healthier planet for all.
Liberalization
The last point I would like to raise today is air transport regulation. Liberalization is the cornerstone upon which to build the future growth of the air transport industry. The process has been evolving for some 15 years and is now irreversible. Today, liberalization is wide spread, and there are more than 120 open skies bilateral agreements between countries. The momentum has also extended to the regional and sub-regional levels.
Just one week ago, the European Union and the United States formerly signed a landmark agreement for an EU-US Open Aviation Area. This development will have a significant impact on the global liberalization process, as this open skies agreement will affect the two most important aviation markets in the world which currently account for about 51 per cent of the world’s international traffic.
As positive as liberalization is, we must ensure that it unfolds according to universally accepted principles. These exist and are embodied in the guiding principles espoused in the Chicago Convention and the general policy framework for liberalization developed by ICAO through the fourth and fifth worldwide air transport conferences, in 1994 and 2003 respectively. In short, the aim is to create an environment in which international air transport may develop and flourish in a stable, efficient and economical manner without compromising safety and security.
Along with the trend towards liberalization, the related phenomena of globalization and commercialisation have had a significant impact on the industry. The airline sector has undergone a major structural transformation. The traditional business model of the full-service airline has been facing mounting challenges, including from low cost carriers, which have been expanding rapidly, not only at the national level but also regionally and even beyond. To cope with increasing competition, the focus of airline strategy and planning has become more directed towards alliances, consolidation and cross border equity investments so as to exploit network-based economies of scale and scope. In addition, e-commerce has been used extensively by the industry in marketing and selling its products.
For airports and air navigation services providers, the anticipated growth in passenger and cargo traffic generated in large part by liberalization will require significant investments to satisfy demand in an efficient and timely manner. And for regulators, it means adjusting regulatory structures and objectives of international air transport. A broader perspective of national interest may be needed in policy making, and a balanced approach required to take into account the needs and interests of all stakeholders.
These are all challenges that can be met most effectively through cooperation. Cooperation at home between all sectors of the national economic and aviation community and cooperation with other Member States of ICAO and global stakeholders.
Conclusion
Ladies and gentlemen, next year, China invites the world to the 29th Olympic Games in Beijing. This will be a proud moment for China and a time to showcase an air transport system that builds bridges with the rest of the world. I wish you every success in this endeavour.
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