CHINA: EXPANDING HORIZONS FOR INTERNATIONAL AIR SERVICE

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP85T00875R001700040047-5
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 22
• Document Creation Date: December 20, 2016
• Document Release Date: March 30, 2006
• Sequence Number: 47
• Publication Date: November 1, 1972
• Content Type: IM

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Secret
DIRECTORATE OF
INTELLIGENCE
Intelligence Memorandum
China: Expanding Horizons for International Air Sorvice
Secret
ER IM 79,164
November 1972
copy N? 107
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SECR
CENTRAL INTELLIGENCE AGENCY
Directorate of Intelligence
November 1972
INTELLIGENCE MEMORANDUM
CHINA: EXPANDING HORIZONS
FOR INTERNATIONAL AIR SERVICE
SUMMARY AND CONCLUSIONS
1. In the 2ast two years the People's Republic of China (PRC) has
launched a vigorous program to reshape its position in international civil
aviation. During this period, Peking has initiated a flurry of negotiations
for new civil air agreements and has placed orders for more than one-half
billion dollars worth of modern aircraft. China is clearly committed to a
far-reaching expansion of its skeletal international air route structure as well
as to the opening of the Mainland to a sizable number of non-Communist
carriers.
During the past 24 months, :eking has ordered 20 modern Trident
medium-range jet aircraft from the British for some $170 million and 10
long-range Boeing 707s for $145 million, including spare parts and engines.
Furthermore, the Chinese have placed a tentative order with the
British-French consortium for three supersonic Concordes costing $150
million. All this has come on the heels of the purchase of six Soviet IL-62
long-range jet aircraft for more than $40 million. It was the acquisition
of these IL-62s that brought China into the modem era of civil aviation.
Although all of the Soviet aircraft are now in Chinese hands, deliveries
of Western aircraft have now only begun and will extend through 1975.
If China goes through with the Concorde deal, the first aircraft will be
delivered in 1976.
3. The Boeing sale not only will make China the only Communist
country with US jet aircraft in its civil air fleet (excep, for Yugoslavia)
but also will provide a continuing entree for the United States into China's
Note: This memcrandum was produced by the Office of Economic
Resea; ;h and coordinated within the Directorate of Intelligence and with
the Department of State.
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expanding civil air sector. According to the terms of the purchase agreement,
Boeing will train the Chinese flight crews and maintenance personnel at
both Chinese and US facilities. Boeing also will assign technical personnel
to the Mainland.
4. Peking's initial priorities call for the extension of the route
structure to Eastern Europe as the springboard for opening service to
Western Europe - a giant step beyond existing coverage, which is 'limited
to Irkutsk, P'yongyang, Rangoon, Ulaan Baator, and Hanoi. Civil air
agreements were concluded with Albania, Romania, and Yugoslavia in 1972,
and discussions were held with several South Asian and Middle Eastern
countries that could offer intermediate stops for any new service. A series
of talks has also been hold with a number of West European countries
that probably will lead to other new agreements. Service to Eastern Europe
could start in 1973 to be followed shortly by service to Western Europe,
with Paris as the hub. China, which has strong economic and political ties
with Tanzania, also is considering opening service to East Africa.
5. Airlines of only four foreign nations - the USSR, North Korea,
Pakistan, and France - now serve China. Other airlines may soon be
admitted. In the recent air accord with Canada, Peking has held out the
possibility of letting a Canadian airline open a Vancouver-Peking link. The
lengthy talks with the Japanese strongly suggest a reciprocal Sino-Japanese
service is not far off. The thaw in US-PRC relations suggests that US airlines
may soon offer non-scheduled charter service to the Mainland. Scheduled
service probably is at least one year away.
6. Civil aviation in China began with the inauguration of a
Shanghai-Han-k'ou service in 1929. In the next decade, - thin network was
developed, including a few international links to nearby countries. Several
companies were involved in these operations, notably China's National
Aviation Corporation, formed in 1929 by US interests, and the Central
Air Transport Corporation, established in 1931 with German capital. During
World War II, service was halted. Although operations resumed after the
Japanese defeat, service again was brought quickly to a standstill by the
Civil War.
7. Service was restored by the new Communist government in
mid-1950 on the basis of extensive aid from the USSR, including aircraft
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and maintenance facilities. Two airlines were established, the Soviet-Chinese
Joint Stock Company for Aviation (SKOGA) and the solely PRC-owned
China People's Aviation Company (CPAC). Both companies provided limited
domestic service, and SKOGA offered international service to the USSR
and Mongolia. Late in 1953, SKOGA and CPAC operations were integrated,
and within a year the companies were merged to form a single airline owned
and controlled by China, the Civil Aviation Administration of
China (CAACI Since then, 1"AAC has been the overseer of Chinese civil
air developments. In 1962, its status was upgraded from a departmental
agency of the Ministry of Communications to the General Bureau of Civil
Aviation, although the airline acronym CAAC was retained. Throughout
the 1960s - when the PRC tum' d inward to solve its pressing domestic
problems - CAAC did little to expand China's international air service. In
the past two years, however, CAAC has aggressively sought n ,w civil air
agreements and modern aircraft for the civil air fleet. This memorandum
describes these recent developments in Chinese civil aviation with particular
emphasis on the prospects for expanded intz-viational air service.
Civil Air Fleet Inventory
8. As of November 1972, China has 314 aircraft in its civil air fleet.
Two-thirds consist of the short-range single-engine AN-2 transports. The
aircraft mix, as shown in the table, reflects China's limited domestic and
international civil air requirements over the past 20 years. Although Peking
no doubt would have been delighted to sponsor a modernized civil air
system, resources during that period had 4o go for other more immediate
purposes.
9. The Uf 'ias been the traditional supplier of civil air transports
to China. Until I the USSR furnished only obsolete sho: t-range piston
and turboprop airci~ft more suited for domestic service than for long-haul
international operations. In 1971 the USSR sold six long-range (5,700
statute mile) IL-62 jet aircraft to China for about $42 million (see
Figure 1). With this purchase, China made its long-awai'.ed entry into the
modern era of civil aviation.
10. Throughout most of the 1960s, the PRC had little incentive and
showed even less initiative for introducing Western aircraft into its civil
air fleet. Feelers went out for used aircraft in Western Europe, and in some
instances low-level inquiries were made or manuals
and technical specifications of Western aircraft. By the end of the decade,
these overtures had resulted in the purchase of nine obsolete Western
aircraft: five turboprop Viscount 810s bought from the British in 1963
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China: Civil Air Inventory and Aircraft on Order
as of November 1972
NormcJ Payload?
Speed
Country of
Cargo
(Statute
Miles
Range
(Statute
Type
Manufacturer
Number
Engines
Passengers
(Pounds)
per Hour)
Miles)
Current inventory
IL,62 (Classic)
USSR
6
4
122-186
26,250
530
5,700
Trident IE
Great Britain
1
3
115-139
-
596
2,100
Turboprop
11.-18 (Coot)
USSR
11
4
84-89
15,000
400
4,000
AN-12 (Cub)
USSR
2
4
90
9,500.21,000
385
2,250.4,850
Viscount 810
Great Britain
5
4
52
14,500
300
1,600
AN-24(Coke)
USSR
6
2
50
8,100
290
1,325
IL-14 (Crate)
USSR
47
2
24
6,350
150
1,850
IL-12 (Coach)
USSR
4
2
24
4,750
150
1,850
LI-2 (Cab)
USSR
25
2
19.25
3,300
150
1,400
AN-2 (Colt)
USSR
207
1
10
1,350
140
560
On order
Jet
Trident
Great Britain
20
Model 2Eb.
18
3
132-149
-
595
2,500-2,900
Model 3B
2
3
158-179
-
550
1,850-1,950
Concorde (SST)
Anglo-French
3
4
127
-
Mach 2.2
4,000.4,500
Model 320B
4
4
189
28,200
550
6,000-6,500
Model 320C
6
4
189
96,800
550
6,000-6,500
a. The payload - either passengers or cargo - which can be carried with a full fuel load. Generally, additional payload car be
carried with less fuel, but to a reduced radius or range.
b. First aircraft delivered for test operations on 13 November 1972.
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Figure 1. One of the PP:C's six long-range IL-62 aircraft at Bucharest Otopeni Airport
in August 1972.
and four British-built Trident I E jet transports purchased used from
Pakistan in 1969. These aircraft saw little international service as they were
used mainly on domestic civil and military flights. When the Trident l Es
were delivered in 1970, all were initially assigned to military use. One of
these subsequently was transferred to the civil air fleet. Another crashed
in Mongolia in September 1971, apparently with China's former Defense
Minister Lin Piao aboard.
11. The tempo of Chinese efforts to obtain modern jet civil aircraft
from the West picked up momentum in mid-1970, culminating in a purchase
in November 1971 of six medium-range (2,700 mile) Trident 2E aircraft
worth $50 million from the Hawker-Siddeley Corporation (see Figure 2).
++?-~.:f~-i~rram,~vkf., ? r y~ ~.,..,nriar~"1#~TMs~ f9.4e.xrET~~,E!~9~~?~d
F; ~::Y- 1.~-~.'+i +a z.?'.~ ~wa?*'r rr ~n~~-~~ .aais*'n tdr """`~:a;~"..~dJAw~~1ta.S~.,.
Figure 2. The first of 18 Hawker-Siddeley Trident 2E aircraft ordered by CAAC -
shown being prepared for flight tests at the company's production plant near London.
Six more of these aircraft were purchased in August 1972 for an additional
$50 million plus a $6 million order for spare parts. Finally, early in
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November eight more Trident aircraft were purchased for some $63
million.(1) Hawker-Siddel_ey deliveries began late in 1972 and will extend
into 1975.(2) Most, if not all, of the Tridents will be assigned to the civil
air fleet, especially for international service. These aircraft are ideally suited
for short-range to medium-range direct flights - for example, to Tokyo,
Hong Kong, and Singapore.
12. As part of its expansionist policy in international civil aviation,
Peking has considered the acquisition of supersonic aircraft. In mid-1972,
China placed a tentative $150 million order for three Anglo/French
Concordes (see Figure 3). Completion of the deal will depend on China's
Figure 3. The Anglo-French Concorde
further assessment of its needs based on the proven operational
characteristics of the aircraft. The first Concordes are now scheduled to
enter commercial operations late in 1974 or 1975, and the Chinese package
is earmarked for delivery in 1976 and 1977. The Chinese have shown little
interest in the Soviet counterpart aircraft, the TU-144, a reflection probably
of their dissatisfaction with the operational characteristics of the six IL-62s.
Boeing Enters the Market
13. The high-water mark of China's program to modernize its civil
air assets has been the purchase of 10 Boeing 707 aircraft in mid-1972
for $125 million together with a $20 million order for 40 Pratt & Whitney
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engines to support this fleet. The PRC thus becomes the first Communist
nation, except Yugoslavia, to incorporate modem US jet transports in its
civil air fleet. Scheduled for delivery over a 10-month period starting in
mid-1973, these aircraft will give China the capability not only to increase
the frequency of existing domestic and international services but also to
extend its international route structure to additional countries, probably
in Europe and Africa. The receipt of the 707s could also lead to transatlantic
service to Canada. The purchase from Boeing was concluded after several
months of arduous negotiations covering a wide range of aircraft, including
the jumbo Boeing 747 jet transports. The 707 was finally settled on because
it is well suited to China's more immediate needs along long-haul routes
that do not have a mass traffic potential. The attractiveness of the aircraft
is enhanced because it outperforms the IL-62 and can be serviced worldwide.
14. The Boeing package provides that all 10 aircraft be configured
as passenger carriers with both first-class and tourist accommodations. Four
will be 707-320B passenger aircraft, and six will be 707-320C convertible
cargo/passenger aircraft. Along with provisions for spare parts, Boeing will
provide two months' ground training, including two weeks on a simulator
for five Chinese crews in Seattle, Washington. Actual flight training will
be conducted in China after the aircraft are delivered by Boeing pilots.
Boeing probably will assign technical personnel to the Mainland on a
continuing basis to provide assistance in aircraft maintenance. About
one-half of China's Boeing fleet is expected tcc be used for VIP travel on
domestic and international flights. The remainiig planes probably will be
assigned to long-haul international routes.
15. China's contacts with other US manufacturers have included
discussions with Lockheed for the L1011-1 and McDonnell-Douglas for the
DC-10 - aircraft midway in size between the 707 and the 747. China has
also shown interest in the newly developed A360 European airbus. Although
China may purchase some of these other aircraft, Boeing probably will
remain the principal source of modern long-range jet aircraft fo- the next
several years.(3) The following tabulation lists some of the Western aircraft
in which Peking has shown recent interest:
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Normal Payloada
Speed
Aircraft
Manufacturer
Passei!~er
Cargo
LPounds
(Statute
Miles
r H
Range
(Statute
Mil
_
our
pe
es)
727-100
Boeing
70-131
12,830
570
2,600
747
Boeing
374490
62,000
580
6,000-6,500
DC-10 (Series 30)
McDonnell.
Douglas
250-345
--
575
4
200-5
000
L-1011-1
Lockheed
256400
45,750
570
,
,
3
500-4
000
A-300
,
,
(European
Airbus)
West Europe
effortsb
256-302
63,870
550
1,900-2,400
a. The payload -- either passengers or cargo -- which can be carried with a full fuel load.
Generally, additional payload can be carried with less fuel, but to a reduced radhis or range.
b. French, British, German, Dutch, and Spanish manufacturers.
Current Status of International Air Service
16. As of November 1972, CAAC is operating a skeletal international
route network with service radiating from Peking. Separate, weekly
IL-14/IL-18 flights leave the capital for Irkutsk, P'yongyang, and Rangoon.
Ulaan Baator is served on a non-scheduled basis. There is also twice-weekly
service from Nan-ning to Hanoi, with Peking and Canton connections. This
overall route structure, augmented by scheduled service to and from China
by four foreign airlines - Aeroflot (the Soviet state airline), CAAK (the
North Korean state airline), PIA (the Pakistan International Airline), and
Air France (see Figure 41 - has been sufficient to provide for official
government travel as well as for trade and technical exchanges. Service by
the foreign carriers links China with gateway cities such as Karachi, Moscow,
Cairo, Athens, and Paris. There is no direct service to Tokyo; Chinese
travelers normally go to Hong Kong to pick up a Tokyo flight.
Foreign Communist Air Service
17. Communist airline service to China began nearly two decades ago,
when Aeroflot initiated an unscheduled service from Chita to Peking and
from Moscow to Peking. In 1959, CAAK entered the picture by offering
intermittent service from r'yongyang to Peking. There were no significant
changes in these services until 1963, when Aeroflot introduced scheduled
weekly flights from Moscow to Peking as well as a weekly flight to Irkutsk
8
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People's Republic of China
Scheduled International Air Service
November, 1972
Airline
Itinerary
Flight
Designatica
Flights
Per Week
Type of
Aircraft
CAAC
K'un-ming-Rangoon
CA-043
1
IL-18
Nan-ning-Hanoi
CA-115
2
IL-14
Peking-Shen.yang-
P'yongyang
CA-117
1
IL-14
Peking-Irkutsk
CA-135
1
IL-18
Aeroflot
Moscow-Omsk-Irkutsk-Peking
SU-571
1
TU-104
CAAK
Pyongyang-Peking
KB-151
1
IL-14/AN-24
Air France
Paris-Karachi-Rangoon-Shanghai
AF /UT-1 78
1
Boeing 707
Paris-Athens-Cairo-Karachi-
Rangoon-Shanghai
AF/UT-180
1
Boaing 707
PIA
Karachi-Colombo-Canton-Shanghai
PK-750
1
Boeing 707
Karachi-Colombo-Shanghai
PK-752
1
Boeing 707
CAnC CHINA
Al, Frnnce FRANCE
CAAK NORTH KOREA
PIA PAKISTAN
Amouo1 U.S.S.R.
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CAAC CHINA
A F.nnco FRANCE
CAAK NORTH KOREA
PIA PAKISTAN
Ao.ouol U.S.S.R.
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that connected with the CAAC service. At about that time, North Korea's
civil airline increased its schedule to include twice-weekly flights between
Pyongyang and Peking.
Non-Communist Air Service
18. In the late 1950s, KLM and SAS, the Dutch and Scandinavian
international carriers, respectively, informally approached Peking to open
service to the Mainland and were turned down. In April 1964, after some
nine months of negotiations, PIA became the first non-Communist airline
offering service to China. PIA inaugurated weakly flights from Dacca
(directly connecting with service from Karachi) to Shanghai and Canton.
A month later, RAC (Royal Air Cambodge) opened weekly flights between
Phnom Penh and Canton via Vientiane and in January 1965 was joined
by Garuda, the Indonesian Airline, which offered weekly service from
Jakarta to Canton via Phnom Penh. Currently, only PIA is still flying to
China. Garuda service was terminated in 1967 when the PRC and Indonesia
severed diplomatic relations. RAC dropped its service in mid-1969,
supposedly because of equipment shortages and low load factors. PIA's
service is now flown on a twice-weekly basis using Boeing 707s between
Karachi and Shanghai via Columbo. One of these flights also stops at Canton.
19. Air France is the only West European airline offering scheduled
service to China. Its flights began in September 1966 on a weekly basis
using Boeing 707s between Paris and Shanghai. Over the years, a few changes
were made in intermediate points of service, and in March 1972 flights
were increased to twice-weekly service - both via Karachi and Rangoon
with one including a stop in Athens and Cairo.
International Air Agreements - Old and New
20. As part of its long view for extended international operations,
China in the last few years has pursued an aggressive civil air agreements
policy. By November 1972, Peking had 21 agreements in force of which
seven have been concluded since 1970 (see Figure 5).(4) The drive for new
agreements, which began in mid-1970, picked up momentum late in 1971
and roughly paralleled the ambitious programs for purchasing aircraft. As
these agreements evolved, it was clear that China had embarked on a
double-track program aimed at broadening its own international service and
at opening the Mainland to other foreign non-Communist carriers. Peking's
initial priorities are to extend its route network to Eastern Europe -
Bucharest, Tirana, and Belgrade - as the basis for, ultimately inaugurating
service to Western Europe and Africa.
4. Ma Jemhui,Deputy Director of CAAC, has coordinated the overall air agreements prolygum
during the last two years, heading most of the delegations
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Eastern Europe
21. During a three-week period in the spring of 1972, China signed
civil air agreements with Albania, Romania, and Yugoslavia. Peking
simultaneously was holding talks with Afghanistan, Pakistan, Iran, and
Turkey -- countries that could provide intermediate stops for any new
service to Eastern Europe, and, in some cases, for ,`lights to Western Europe.
Service to Bucharest, Tirana, and Belgrade may begin early in 1973,
probably on a bi-weekly basis, with intermediate stops in Karachi, Tehran,
and Istanbul. Should Romania's national airline (Tarom) fail to offer
reciprocal service, Peking may opt for weekly flights.
Western Europe
22. Paris will be the major hub for CAAC's initial service to Western
Europe that should begin in 1973. The air agreement with France which
opened Shanghai to Air France gives Peking reciprocal landing rights in
Paris. The Chinese probably will operate a multiple route structure to
Western Europe. One route will be a logical extension of the expected East
European service, thus permitting he more efficient use of Peking's small
fleet of long-range aircraft. The other route may transit Karachi, Kandahar,
Tehran, and Cairo, entering Western Europe via Rome. Italy is known to
be anxious for its Alitalia Airline to open service to the PRC, and talks
currently under way with 1?eking could result in an interline agreement
providing CAAC with rights to and beyond Rome. A spate clf formal
contacts with Londc,i, Brussels, Copenhagen, and Geneva suggest that
Peking is interested in servicing these areas as well.
Africa
23. Service to East Africa ranks high on China's list of priorities for
expanding its international route structure. East African service almost
certainly will focus on Dar es Salaam, the capital of Tanzania, where Peking
has a strong economic and political foothold. PRC-Tanzanian air talks are
believed to have been under way for more than one year and a formal
agreement is considered a surety. The recently concluded air agreement with
Ethiopia gives Peking the option of routing the service via Addis Ababa,
providing overflight rights are gained from Kenya. An alternative route
structure could include stops at Hudaydah, Yemen, or Mogadiscio, Somali
Republic. In either case, entry into Africa will be via intermediate points
in South Asia tha will be served by CAAC's expected run to Europe.
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People's Republic of China
Civil Air Agreements in Force and
Countries With Whom Aviation Talks are
Known to be Under way, November 1972
Agreements in Force
Country Date
Original Latrist
Communist Agreement Update
Albania March 1,j72
Mongolia January 1958
North Korea February 1959
North Vietnam April 1956 May 1971
Romania April 1972
USSR December 1954
Non-Communist
Afghanistan November 1963 July 1972
Burma November 1955
Cambodia November 1963
Canada* October 1972
Ceylon (Sri Lanka) March 1959
Egypt May 1965
Ethiopia July 1972
France June 1966
Indonesia November 1964
Iran November 1972
Iraq July 1967
Laos January 1962
Pakistan August 1963 March 1972
Turkey September 1972
Yugnslavia April 1972
? Initialed, to be signed shortly
Talks Under We
Country Remarks
Belgium Intermittent discussions, the
most recent October in
1972.
Denmark Intermittent discussions, the
most recent in October 1972.
Italy A series of talks has been held
which may result in an agreement
early in 1973.
Japan High-level diplomatic talks will
almost certainly lead to an air
link some time in 1973.
Netherlands The Dutch, in September 1972, asked
the PRC to reinstate the pre-1949
air a
reem
nt
d f
g
e
, an
urther discussions
will be held at a later date.
Scandinavia Scandino:4;.r: countries and the PRC
have held several discussions during
the past year; the most recent was in
September 1972. An agreement is
expected in 1973.
Somali Republic PRC representatives first mentioned
the possibility n! do air link In
mid-1971, but oo further mention
of the subject h,s been noted.
Switzerland A Swiss aviation relegation visited
the PRC in June 1972 and held
preliminary talks with Chinese
aviation officials. Any agreement
will require further talks.
Tanr.,iia Discussions under way.
United Kingdom The PRC and British aviation officials
have held a series of aviation talks,
and an agreement is expected by
mid-1973.
West Germany The PRC and West Germany are
scheduled to begin detailed
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Expanded Foreign Airline Service to the Mainland
24. A substantial increase in non-Communist airline service to the
Mainland may be expected during the next few years. Indeed, jr, some
instances, new services may precede the expected expansion of C!una's own
international route network. Since January 1971, at least 17 major
non-Communist airlines have either been involved in discussions or made
preliminary contact with the Chinese concerning such services. They include
major carriers such as Alitalia, Canadian-Pacific (CP), BOAC, Yugoslav
Airlines (JAT), Japan Air Lines (JAL), Swiss Air, Catha; Pacific, Philippine
Airlines (PAL) . Scandinavian Airlines (SAS), and All Nippon Airways (ANA).
One small international carrier, Ethiopia's EAL, is already scheduled to begin
service to Shanghai via Bombay, probably early in 1973.
25. Negotiations with the major carriers have moved slowly.
Apparently the Chines, are reluctant to grant reciprocal rights to countries
that Peking itself does not intend to serve in the near term. Noneth'less,
there has been progress. In its early talks with Canadian Pacific, Peking
held out the possibility that CP might serve the Mainland prior to the
opening of a reciprocal CAAC-Canadian service. Early in October 1972,
Ma Jen-hui visited Canada and reached agreement on a new broad-based
civil air accord. At that time he held out t!i.e possibility of opening a
Vancouver-Peking link. Discussions with Alitalia also are moving along the
sam- vein, and a Rome-Peking air link may soon be in the offing.
26. Among Communist carriers, only Romania's Tarom is likely to
initiate a new service to China, on the basis of the recently concluded
PRC-Romanian air accord. Romania, which has had a longstanding interest
in opening such a service, has been stymied by the lack of suitable aircraft.
Romania originally was expected to use Soviet IL-62s on the China run,
but early in November 1972 Romania canceled its 1971 order for three
IL-62s, reportedly because of two recent crashes of this aircraft.
Simultaneously, the Romanians also supposedly renewed their interest in
the Boeing 707.
Sino-Japanese Relations
27. Japan has long sought to open a civil air link to China, and tl-..Is
goal may be realized soon. Japanese initiatives began as early as yu' but
were frustrated repeatedly in the absence of a political detente. By
mid-1971, optimism was on the rise again as Japanese business and
government representatives and Chinese officials repeatedly spoke of a
possible Sino-Japanese air accord. In early August 1972, the presidents of
Japan Air Lines and All Nippon Airways arrived in China aboard the first
Japanese aircraft to call at the Mainland since World War II. Discussions
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were held with high-ranking C AAC officials, probably to lay the groundwork
for further talks that apparently were on the agenda during Premier Tanaka's
visit to Chia in September. The recent establishment of diplomatic relations
between both countries
suggests reciprocal service between both countries is on the horizon.
28. Besides facilitating trade, this service would connect China with
one of the major aviation crossroads in Asia - Tokyo. Several major
non-Communist airlines want to include Tokyo as an intermediate or beyond
point on a China route to generate additional traffic, but Japan is highly
unlikely to acquiesce before one of its own carriers inaugurates service.(5)
29. Expanded civil air service to the Mainland may eventually include
US carriers as well. Three airlines - PANAM, TWA, and Northwest -
currently hold US Civil Aeronautics Board (CAB) certificates of authority
to serve China which date back to the 1940s. Recently, American Airlines
and United Airlines filed applications with the CAB for permission to serve
the Mainland and may soon be followed by Continental Airlines. In addition,
some US charter carriers may f?llow suit soon. For their part the Chinese
have been exploring the viability of CAAC service to New York and other
points in the Western Hemisphere. Political rather than economic factors
are the major stumbling block to the establishment of US-Chinese air
relations.( 6
30. Scheduled US airline service to the Mainland would presumably
require conclusion of a US-PRC air agreement.(7) The PRC might insist
that such an agreement establish Mainland service for only one US carrier.
In addition to an exchange of reciprocal service rights, any US-PRC air
accord would probably Aso include an agreement on new standards for
aircraft certification for air worthiness and for the provision of suitable
airport facilities.(8) Resolution of these technical issues would be speeded
if Peking becomes a member of the International Civil Aviation
5. In the past the Japanese domestic airline ANA has been the carrier most frequently mentioned
in connection with service to China. It is probable, however, that JAL, because of its experience
on international routes and its political connections in Japan, will be the carrier to inaugurate such
a service. A joint ANA/JAL service is also a possibility, but has not yet been suggested.
6. On 22 November the United States lifted its 22-year ba> on commercial flights to China.
7. In 1946 the United States signed a bilateral air agreement with the Kuomintang regime and
it has been the basis for civil air service between Taiwan and the United States.
8. For a brief description of existing Chinese airport facilities, see Appendix B.
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Organization (ICAO). Founded in 1944, ICAO, which is now a United
Nations member agency, was crea,ed to foster coordination and growth
of international civil aviation. It has estr,blished a number of technical
standards fo! aircraft and aviation equipment, as wel'i as recommended civil
aviation practices to which member nations are asked, but not required,
to subscribe. China has sent observers to a number of ICAO meetings but
has not yet joined the organization, even though the Taiwan regime was
forced out.
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China's Major International Airport Facilities
Three Chinese airports - Shanghai, Peking, and Canton - are currently
handling all existing international traffic and are expected to continue to
do so even if traffic increases dramatically. Each has been improved
periodically since 1965. At present, the Shanghai airport, which is located
some seven miles from the heart of the city, has the most modern facilities.
With their present equipment, all three airports could accommodate several
times the combined domestic and international traffic now handled.
Nonetheless, the government almost c trtainly intends to upgrade them
substantially in the next several years. A major survey of civil airfields at
Harbin, Peking, Nan-ch'ing, Shanghai, and Canton reportedly is under way.
Chinese authorities intend to examine the entire spectrum of civil airfield
operations such as runways, airport facilities, communications radar, support
equipment, navigation facilities, and passenger accommodations. The
tabulation provides some detail of China's international airport facilities.
Maximum
Runway
(Feet)
Shanghai: liungchiao Concrete The airport is seven miles from down-
(Rainbow Bridge) 10,500 long town. Equipment includes high-intensity
230 wide lighting and a Chinc -mzdc instrument
landing system (ILS). The runway and
ILS were rated adequate and comparable
to that at many airports around the
world by US technical personnel in-
volved in preparation for President
Nixon's trip.
Canton: Paiyun (White Concrete The airport is 10 miles from downtown
Cloud) 11,400 long and has lighting and ILS similar to that
220 wide at Hungchiao.
Peking: Central Concrete
Airport 10,500 long
260 wide
The airport is 16 miles from downtown.
In contrast to Canton and Shanghai, the
ILS is probably Soviet-built, using non-
directional beacons.
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