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charges are not allocated, either directly or indirectly, to those other users not benefiting from them;
and that, if the purpose is to attract and/or retain new air services, they are offered only on a
temporary basis.
vi) Any charging system should take into account the cost of providing air navigation services and the
effectiveness of the services rendered. The charging system should be introduced in such fashion as
to take account of the economic and financial situation of the users directly affected, on one hand, and
that of the provider State or States, on the other.
vii) Charges should be levied in such a way that no facility or service is charged for twice with respect to
the same utilization. In cases where certain facilities or services have a dual utilization (for example,
approach and aerodrome control as well as en-route air traffic control), their cost should be equitably
distributed in the charges concerned.
viii) The charges levied on international general aviation, including business aviation, should be assessed
in a reasonable manner, having regard to the cost of the facilities needed and used and the goal of
promoting the sound development of international civil aviation as a whole.
ix) States should refrain from segmenting Flight Information Regions (FIRs) solely for the purpose of
generating revenue where this would not be related to the costs of service provision.
Pre-funding of projects
48. The Council considers, notwithstanding the principles of cost-relatedness for charges and of the protection
of users from being charged for facilities that do not exist or are not provided (currently or in the future) that, after having
allowed for possible contributions from non-aeronautical revenues, pre-funding of projects may be accepted in specific
circumstances where this is the most appropriate means of financing long-term, large-scale investment, provided that
strict safeguards are in place, including the following:
i) Effective and transparent economic oversight of user charges and the related provision of services,
including performance auditing and “benchmarking” (comparison of productivity criteria against other
similar enterprises);
ii) Comprehensive and transparent accounting, with assurances that all aviation user charges are, and
will remain, earmarked for civil aviation services or projects;
iii) Advance, transparent and substantive consultation by ANSPs and, to the greatest extent possible,
agreement with users regarding significant projects; and
ICAO’s Policies on Charges for
18 Airports and Air Navigation Services
iv) Application for a limited period of time with users benefiting from lower charges and from smoother
transition in changes to charges than would otherwise have been the case once new facilities or
infrastructure are in place.
Currency issues
49. The Council:
i) Recommends that under normal circumstances user charges be expressed and payable in the local
currency of the State concerned;
ii) Recommends that under special circumstances, for example where economic conditions are not
stable, when a State proposes, or allows, denomination of user charges in other than local currency,
air carriers could apply the same currency of denomination, using the same exchange rate, for their
local ticket sales;
iii) Recommends that every effort be made to remove obstacles preventing an air carrier based in one
State from transferring in convertible currency its net income from sales in another State; and
iv) Recognizes that when route air navigation services charges are billed on a regional basis (i.e. on
behalf of several States or by a jointly operated agency), it may be advantageous to both users and
ANSPs to denominate and pay charges in a single convertible currency.9
Approach and aerodrome control charges
50. The Council recommends that where charges for approach and aerodrome control are levied, whether as
part of the landing charge or separately, the charge should, so far as possible, be a single element of the landing charge
or a single charge per flight and could take aircraft weight into account but less than in direct proportion.
Route air navigation services charges
51. The Council recommends that the charge for route air navigation services should be, so far as possible, a
single charge per flight; that is to say, it should constitute a single charge for all route air navigation services provided by
a State or group of States for the airspace to which the charge applies. The charge could be based essentially on:
i) The distance flown within a defined area;
ii) The aircraft weight.
The element of distance flown, taken as one of the acceptable measures of the service rendered, should be applied by
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国际民航组织关于机场和空中航行服务收费的政策(25)
