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改革开放以后,我国航空运输业先后进行过1987和2002年两次重要的管理体制和市场化改革,对高度集中统一和完全垄断的“大民航”进行了静态的、动态的、横向的和纵向的市场结构重组1,通过这些重组把整个航空运输业分割为空中交通管制服务、机场服务、航空运输服务、航空保障服务、航空延伸服务、航空维修服务与飞行员培训六个主要业务和部门。由于各部门的民航业务具有不同的技术经济性质和市场结构特征,因此,必须对其实施分类管制政策,并统筹协调好各种业务与部门之间的关系,才能促进其快速健康发展。政府对航空运输业进行分类管制改革的目标就是要建立规模经济与竞争活力兼容的市场结构,最大限度地提高生产效率和社会分配效率,管制的重点是在市场准入和价格上。在本期和下一期,我们以各种民航业务垄断性的强弱为序,分别讨论它们进入与价格分类管制政策,并对下一步改革提出有关政策建议。在后面的一期,我们重点讨论在分类管制的制度安排和市场化进程不断深化的条件下,我国航空运输业各部门之间的协调政策,以及对管制机构未来改革的建议。
After the reform and opening up, China’s air transport industry has successively carried out two major management systems and marketization reforms in 1987 and 2002, and conducted a static, dynamic, horizontal and vertical “civil aviation” highly centralized and completely monopolized Restructuring of the market structure. Through these reorganizations, the entire air transport industry is divided into six major businesses and departments: air traffic control services, airport services, air transport services, aviation security services, aviation extension services, aviation maintenance services and pilot training. Due to different technical and economic properties and market structure characteristics of civil aviation services in various departments, it is necessary to implement classification control policies and coordinate the various business and departmental relations in an all-round way to promote their rapid and healthy development. The objective of the government to classify the air transport regulatory reform is to establish a market structure compatible with economies of scale and competitiveness so as to maximize production efficiency and social distribution efficiency. The focus of regulation is on market access and prices. In this issue and the next issue, we discuss the monopoly nature of various civil aviation businesses separately, discuss their entry and price control policies, and make policy recommendations on the next reform. In the latter period, we will focus on the coordinated policies among all sectors of China’s air transport industry and the proposals for the future reform of the regulatory agencies under the conditions of the institutional arrangements and the marketization of classified controls.