ࡱ> 5@\bjbj22 .XXS' ...zzzvWvWvWvWWtázX:XXXXXYLZ($URuzlXXllzzXX}tttlTzXzXtlt$tu~zznXnX PKvW q24Π0áfesehnzzzzezn`.Z`2t@d\g.Z.Z.ZD(0&t0CONCEPTUAL ASSUMPTIONS OF AIR TRANSPORT STRATEGY Prof. Sanja Steiner, D.Sc. University of Zagreb, Faculty of Transport and Traffic Engineering 1. INTRODUCTION The comparative analysis of air traffic volume in the EU countries and the transitional countries shows significant differences. The traffic within the EU countries in 2001 amounted to 286 billion passenger kilometres (241 billion passenger kilometres in 1998), whereas the CEEC countries (EU accession countries) accounted for 18.7 billion passenger kilometres (1998) or almost thirteen times less. The standard of using this transport mode has been articulated on the average by the volume of 756 passenger kilometres per person and year in EU (2001), and in transition countries 204 passenger kilometres per person and year (1998) i.e. 3.5 times less. From the geo-traffic aspect, the transition countries in Europe are all ICAO members and the majority are also ECAC members. The transition countries cover about 2.5 million square kilometres out of a total of 10.2 million square kilometres of the European area or almost one quarter of Europe. The European transition countries operate more than 300 aircraft out of which 30% are aircraft of the eastern technology i.e. incompatible with JAR/FAR standards. If, however, the airlines of Belarus and Bulgaria, whose fleets consist entirely of aircraft of eastern technology, are excluded from the analysis, the share of aircraft of western technology increases to 87%. The analysis of economic development indicators in certain transition countries, e.g. indicative growth of industrial production and consequent intensification of traffic flows of goods and passengers, confirms the forecasts of substantial air traffic growth towards Western Europe (EU) as well as traffic between transition countries. Growth indicators support the tendency of gradual expansion of the European aviation market with a shift to the European East, and the need to evaluate the demand to establish a more direct connection of the area between the Baltic and the Adriatic. Regarding the absence or lack of direct lines in flight schedules of national companies, it is assumed that a large part of air transport between the transitional countries is realised indirectly through airport terminals and operators in the EU countries. From the aspect of increasing the capacity of the European airspace and more rational usage of geotraffic advantages, the justification of routing a new Baltic Adriatic air corridor in the European route network should be considered. The main barriers to the integration of the national systems of air transport of transition countries into the European air transport system, i.e. into international traffic flows can be generalised in the following problems: structure of aviation authorities (CAA) and administration personnel, legal problems uncoordinated regulations, financial problems free market, commercialisation/privatisation of the transport infrastructure operative sector. The basic preconditions of a more progressive development approach can be identified for the transition countries regarding harmonisation of the development concepts, and also applicable to other transport modes i.e. for the entire transport sector: clearly defined national strategies of transport development in compliance with the strategic orientation of the network integration into a single European transport whole, strict separation of the regulator functions (CAA) and operative management, adoption of the European transport regulations and technical and technological standards, selection of the optimal form of managing the transport infrastructure in the prevailing government ownership (commercialisation/privatisation), institutional re-structuring of the service providers and adjusting the operative to the free market principles, updating of the proposals of the priority programs and the respective development projects of the transport infrastructure, application of financial and technical support of EU partners. In creating and realising the strategic guidelines of air transport development at national levels, as well as in the preparation of related programs, it is necessary to ensure expert and technical support of the relevant European airline associations and supervision processes. This refers particularly to restructuring of the national regulator (CAA) and adequate profiling of the management staff and implementation of the safety regulations. 2. AIR TRANSPORT STRATEGY ELEMENTS Air transport is in its nature global, and the result of a very widespread and complex interaction between governments, manufacturers, operators, procedures and technical systems (hardware and software), and as a system it has to comply with the international standards and uniform practice. The development of the transport system, including the branch development, is planned as a long-term process regardless of the complexity of criteria that influence its optimisation, complex procedures of harmonising conditions and interests, relatively long deadlines to realise the plans, substantial capital investments into infrastructure and transportation capacities and the duration of effects of the realised investment ventures. Strategic planning, which includes valorisation of the system and identification of relevant elements of the transport policy, is the starting point in adopting the development guidelines and decision-making in the bodies of executive authorities. For the needs of strategic planning, as a rule, national scientific research and expert resources are mobilised with the aim of solving the variable internal and external requirements in the transport sector, but also in other departments of government significance. This continuous process unconditionally imposes the need for harmonisation at all government levels Parliament, government, ministries, Civil Aviation Authority, as well as economy and science and the wide consensus in adopting the basic elements of development strategy. Generally, the following relevant elements of air transport development strategy project can be identified: VISION defining of the final (desired) status of the national air transport system, OBJECTIVES defining of strategic and structural objectives, MISSION specification of tasks and guidelines for realisation of objectives, MISSION CARRIER identification of the authority and responsibility to implement the development strategies and national and foreign partnership to support the implementation of objectives, PROTOCOL determining of deadlines and dynamics of realisation of objectives and establishment of a feedback system of continuous optimising of the development guidelines, EVALUATION adoption of reasonable measurement of evaluating the impact of national research and development projects, and the instruments of the transport policy on the realisation of the set objectives. 3. FRAME STRATEGIC GUIDELINES The Croatian air transport development strategy should encompass the main facilities: infrastructure and the transport capacities (airports, air traffic control system, fleet), the administration and organisation structure and the standards, operative management and human resources. Therefore, in compliance with the trends of deregulation and market liberalisation in the developed European countries, as well as the recommendations to harmonise the institutional concepts, the commercialisation should be carried out and the follow-up option of the operative sector privatisation should be considered the air traffic control, transportation and airports. 3.1. Integration into the international transport system Regarding its geo-traffic position, Croatia is a potentially important transit area, since the air corridors through this space are the shortest routes connecting West Europe and the Near East. Also, due to its natural resources and climate characteristics, Croatia is a potentially important destination area. The existing network of air routes and solid infrastructure base positively characterise the development of air transport. Apart from the geo-traffic aspect of the potential for attracting international traffic routes, the level of integration of the national air transport system is also evaluated from the aspect of harmonisation of the national aviation regulations, complementary feature of the national policy regarding issues of the development of the regional management of air transport, infrastructure and transportation capacities. 3.1.1. Regulations and management New basic Acts have been to the greatest extent harmonised with the international conventions and agreements. It is, however, necessary to ensure a continuous control over their implementation. By signing to join the membership in JAA (2001), the adoption of the European aviation standards (JARs) has begun. In order to rationalise the procedure of bringing these sub-laws, as well as the flexibility of amendments, the legal framework of their acceptance in English and in the format of the Proceedings, need to be insured. This would prevent ambiguousness of interpretation due to possible errors in translation. The problem, in this context, refers primarily to the fact of the absence of aviation terminology nomenclature in the Croatian language, which consequently leads to free translations. The adoption of regulations in English would greatly increase and at the same time simplify their implementation. The signed conventions and agreements should also be revised, and ratified it this has not been done yet. This refers first of all to the new EUROCONTROL Convention and the CEATS Agreement. The guidelines of the necessary legislative modifications result from the status of Croatia in the process of political and economic transition, as well as the strategic goal of integration into the European Union. Two levels of the necessary harmonisation of legislation in the transport sector may be generalised: by establishing of a framework for the transition to the free market system with controlled influence on the transport infrastructure management models (structural reforms); by harmonising the national transport sector with the EU regulations, especially from the aspect of institutional and legal organisation of the regulators, and the technical and technological and safety standards of exploitation. In order to realise the strategic guidelines of the transport development by legal instruments the following needs to be solved in the first place: fair pricing of infrastructure usage (internalisation of external costs); commercialisation/privatisation of the service providers; insuring the competitiveness of the operators; preventing monopoly, tax policy and pricing policy in compliance with the strategic goals of sustainable development of the transport system on the principle of integrity and intermodality; inclusion of the private sector into the investment programs of the transport infrastructure. The realisation of the strategic goals is conditioned by the strengthening of the regulatory function of the transport department as a whole, the autonomy of the department administration CAA, determining of the financial instruments (investment policy) and program development approach, with the necessary introduction of the institution of responsibility for the realisation of the development programs. The establishment of the institution of responsibility is extremely important for the implementation of the development programs and the strategic documents since the experience shows that past concrete proposals regarding solutions, and even entire strategic documents (e.g. Transport Development Strategy) that have passed the Parliament procedure of acceptance, as well as certain important legally stipulated conditions (e.g. legal deadlines for accepting the sub-legal documents) are not being applied because the responsibility carriers responsible for their implementation have not been appointed. The establishment of the institution of responsibility would also contribute to the solving of problems of unrealistic development planning and inadequate preparation of the legal drafts. Here, the logic of the already defined postulates should be followed, by harmonising the transport legislation in the process of approaching the EU: by transposition of the required conditions in the transport department (transport aquis communautaire) into the national legislative system; their implementation by determining the institutions and budget means for the preparation and acceptance of the legal and sub-legal regulations; their implementation by determining the mechanism of control and sanctions necessary to insure integral and consequent application of the accepted regulations. From the aspect of Croatia as a transition country, the adoption of international technical regulations and safety standards, and consequently the harmonisation of the national aviation operative is not only a question of the political will, but rather time-dictated by objective possibilities, mainly financial, regarding resources of the profiled regulatory personnel. The regime of the safety regulations in the European Union will be legally imposed on the ECAC member countries by the actual establishment of the European agency for aviation safety EASA, which is in principle based on the overtaking of the JAR system and its upgrade. Since JAA and subsequently EASA regulation domains do not cover air transport management, the efficiency of the future regulator is questionable. On the other hand, apart from the harmonisation of the CNS/ATM national systems and implementation of the ATM Strategy 2000+ through the portfolio of EATM bonded projects EUROCONTROL has taken over the task of standardising the safety aspects of air transport management. By implementing the ESARR packet at the national levels, the integrity of ATM safety management should be insured in the future. The expected conflicting issues regarding the realisation of the single-European-sky concept refer to the status of EUROCONTROL with the ambivalent function of the service provider and regulator, and analogue to the establishment of a single regulator for all the segments of the air transport system. The organisational structure of the regulator should be indicated by the autonomy of the basic organisation Civil Aviation Authority with adequate personnel capacity and foreseeable multiple increase in the internalised budget for the needs of a consistent policy and fulfilling of the strategic development plans of the national air transport. Special attention in long-term planning should be paid to the safety aspect of air transport operations, i.e. insure the independence and personnel orientation of the aircraft inspection, and establishment of the autonomous organisation (scientific orientation) at the government level with the task of improving the technical and technological conditions as well as raising of the general level of safety in the national air transport by preparation and promotion of comprehensive safety programs. In the majority of the developed countries, apart from the administration and organisation bodies in the field of aviation there are independent government organisations, in the field of consultancy, whose main aim of action is the research of the safety aspect of the national aviation and proposing recommendations to eliminate the determined deviations and to improve the system. As a rule, apart from the autonomous right to investigate aircraft accidents or incidents, these organisations are also in charge of the right to monitor all the activities related to the exploitation of air transport, including the very administration bodies. Based on the recommended safety and preventive measures of these organisations, the civil aviation authorities undertake adequate intervention actions and revise the national programs of air transport safety. In the US, the patronage in the issues of air transport safety belongs to the special government board - NTSB, whose role is to research and monitor the safety aspect of the national transport system independent of the administration organisations. The Board has a centralised management with the organisation of special offices for safety of all the transport modes. Based on this principle, an office for air transport safety operates also within the NTSB organisational structure. Regarding the results of research and data processing, recommendations of safety measures given by NTSB are forwarded to the national aviation administration, i.e. the respective offices for the system safety and regulation and certification. The justification and functionality of the NTSB activities is confirmed by the data that on the average about 80 per cent of safety recommendations are applied in the US FAR system. The Canadian national board for transport safety TSB has been organised on the same principle and operates separately from other government agencies and departments. TSB is under direct responsibility of the Canadian Parliament, and the independence of its operation allows full objectivity of the conclusions and recommendations of the safety measures. In Australia an office for investigation of air transport safety has been organised - BASI, as a special government agency which operates within the government department of transport and regional development, but with full autonomy in investigating and monitoring the safety aspect of national aviation. The scope of operation of the BASI bureau is the investigation of accidents and incidents, development of proactive preventive programs and management of the central database. BASI has no legal competence of implementing the safety recommendations. However, almost 90 per cent of the recommended safety standards are accepted by the regulatory department of safety within the Australian aviation authority. Current administration and organisation structure and the valid regulations of civil aviation in Croatia do not indicate possible objective valorisation of the safety aspect of the national air transport, nor of conceiving of an adequate safety program. Therefore, in the strategy of further development it is extremely important to plan an independent mechanism of monitoring and investigating all the safety elements in the air transport system, based on which the development of preventive programs would be possible, as well as the implementation of the safety recommendations and standards. The assumption to develop and implement the program lies in the establishment of a national air transport safety board, which would operate completely independently of the civil aviation authorities. The scope of operation of such a board would encompass the investigation of accidents and incidents, i.e. the circumstances that might cause these, analysis of data and proposals of safety recommendations and standards, i.e. preventive programs. The national board for air transport safety should be in charge of the right to monitor the operations of airports, carriers and air traffic control, but excluding the right to sanction, which should remain the responsibility of the regulatory department of inspection within the aviation authorities. The national board should also have the discretional freedom of monitoring the civil aviation authorities. 3.1.2. Infrastructure and transportation capacities It is certain that Zagreb Airport, as the main Croatian airport, serving the capital city, will be the main operator in the scheduled international and domestic traffic. Since it is the home port of the national flag carrier, Croatia Airlines, and its manoeuvring areas are used by the Croatian Air Force Base, new requirements are set to increase the capacity and to modernise the basic transport facilities and surfaces. Depending on the approach to the strategic planning of the transport infrastructure, i.e. transition from the so-called demand-oriented to the goal-oriented approach, the possible construction of a new terminal and the second runway can be considered within the context of the strategic guideline of the airport development into a hub of the Central European region i.e. attracting of intercontinental flights. Such strategic development should certainly be supported by the planning of the respective infrastructure of land transport and higher levels of services in connections with the city centre. The dynamics of the development of the Split and Dubrovnik airports should follow the goals of inducing demand with the emphasis on the acquisition of the international charter traffic. Within the Strategy of area planning, possible locations of smaller aerodromes have been planned for, and final decisions regarding locations and construction should comply with the founding and conclusions of the feasibility study. The development potentials of these airports, as well as of other Croatian aerodromes, lie in the projected conditions of the development of the regional commuter transit. In the domestic traffic, the development of the fleet should be oriented to intensifying small and medium-sized aviation, thus justifying the establishment of the scheduled lines between the Adriatic airports Recognising the need for a more systemic approach to the development of small aviation, in 1994 a special law was brought in the US, about the revitalisation of the general aviation, and in 1997 NASA, in coordination with FAA initiated GAP and AGATE projects. In 2001 a comprehensive SATS project was started with the development objectives that articulate numerous comparative advantages of small aviation application. The arguments regarding the need and justification of introducing non-conventional aviation in Croatia result from its specific geo-demographic structure. The premise of the economic development is to insure by means of intervention measures the demographic and economic revitalisation of the islands, as well as a targeted development of tourist activities. Here, the priority task is the establishment of traffic connections of islands and the mainland, including the options of selecting the transport mode restricted to sea and air transport. The implementation of conventional means of air transport is limited by the economic aspect of investing into the infrastructure and the ecological aspect i.e. requirements of environmental protection. Therefore, the options of implementing air transport should be found in non-conventional aviation, i.e. hydro-aviation and VTOL aviation. The results of studying this problematic exclude the implementation of hydro-aviation and suggest the implementation of VTOL aviation as the optimal option to satisfy the specific needs of the Adriatic coast. From the aspect of demographic coverage, i.e. traffic demand of the Adriatic islands, the optimal means should be in the category commuter with the following exploitation references: capacity of up to 20 seats, flight range within 500-1000 km, cruising speed of 500 km/h, flight ceiling within altitudes of 7-8 km. The multi-criteria comparison analysis of the features provided by helicopters and VTOL aircraft in the tilt-rotor version confirm the justification of implementing helicopters on relations of up to 100 km i.e. the justification of tilt-rotor aircraft in ranges exceeding 100 km. This indicates that the possibility of phased development of a combined fleet of helicopters and tilt-rotor aircraft should be considered, with identical infrastructure requirements for both transport means (helidrome - 25 x 25 m). Apart from commercial purposes (carriage of passengers) the VTOL fleet may be multiply used also for the needs of search and rescue services, as well as provision of medical first aid. In evaluating the need to organise air rescue and first aid service in Croatia, the main arguments can be found in the analysis of several relevant aspects: Croatia is a country economically oriented towards the development of tourism with emphasised periodic fluctuations of population. In the geo-traffic sense, the tourist most attractive Adriatic coast and the islands are not accessible to conventional transport means, thus being in a sense isolated regarding transport. The mountainous regions of Croatia are during winter almost completely isolated regarding transport due to climate and weather conditions. The efficiency of urgent medical intervention by ambulances is significantly reduced due to the unsatisfactory situation of the land transport infrastructure. In the statistics of the transport accidents and fatalities, Croatia is at the very top at the European level. The analysis of the basic criteria traffic dynamics and the level of fatalities in transport, emphasised periodic fluctuations of population, traffic isolation of certain regions due to climate and configuration properties, as well as popularisation of the nautical tourism, provide the possibility of assessing the justification of organising emergency aviation service in Croatia. The guidelines of the development of the national air traffic control system are marked by the integration in the single technical and technological system of the European air traffic control with a compatible institutional structure on the commercial basis and the technical and procedural harmonisation i.e. modernisation of the communication, navigation and radar instruments. The Croatian air traffic control participates in the process of ATM regionalisation in Europe, and technically and technologically parries most to the standards and requirements of harmonisation. In the new investment cycle the compatibility of ATM systems for transit traffic should be increased since the traffic demand potentials are substantially greater than the actual volumes of overall operations. It is also absolutely necessary to join the EAD project. 3.1.3. Operative management ICAO ANS 2000 Conference has brought several recommendations to the ICAO member countries to parry the forecast traffic growth, in compliance with the globalisation trends as well as commercialisation and privatisation of services that had been previously under the responsibility of governments: implementation of efficient supervision mechanism that would deal with the monopolistic nature of aerodromes, measuring of productivity and efficiency that insure operation in compliance with fair and objective cost-recovery practice and other ICAO principles, considering pre-funding (part of passenger taxes for future services) in special protected circumstances, limiting the service taxes which refer to the civil traffic, insuring that passenger taxes do not result in additional delays at aerodromes. There are several relevant sources of working materials of the Conference related to the problematic of economic regulations, ownership and operator management i.e. service provider. The results of the study about the financial situation at aerodromes and air traffic controls (on the sample of 271 aerodromes and 88 governments): Out of 252 aerodromes 62 realise revenues smaller than costs, and at 190 of those the revenues exceed the costs (data are given per regions). The revenue from non-aeronautical activities (concessions etc.) allow for 34% of the total revenues in North America 56%, in Africa, Central and South America 22%, Europe 38%. Generally, with greater traffic effects of the aerodromes this share is relatively increased. Capital expenditures (including depreciation and interests) allow for an average of 27% of total costs (in Europe 30-35%). 49 out of 62 countries have indicated revenues of national ANS (air traffic control) equal to the costs or greater than the costs. Traffic growth (expressed in RTK) had a rate of 5.1% in the period from 1989 - 1998. At the same time the number of aircraft operations grew at a rate of 3.5% (increased average payload capacity). Costs of landing taxes grew at a rate of 6.4%. Changes in the structure and form of ICAO Doc 9082/5 are suggested, including also the change in the name and basic cost recovery principles: taxes based on the service and equipment costs, taxes are not to be charged for the equipment or services before they become operative, revenues from taxes in international civil traffic have to serve to pay for costs of international civil transport, the revenues from other sources (not taxes) have to be taken into consideration before determining the costs that serve as the basis for taxes, additional revenues above operative costs can be invested into capital improvements, prior to introducing major changes into the system of taxes it is necessary to consult the users. The conclusions of the Study on Privatisation of Aerodromes and Air Traffic Control can be summarised as follows: changes in the ownership and management of aerodromes: strong involvement of the government is reduced by founding of autonomous organisations that are still owned by the government; the trend of private participation and privatisation is becoming more and more significant; in case of air traffic control the changes in ownership are limited, mainly the direct provider of these services is the state; organisational structure of airports and air traffic control is different in different countries and ICAO does not recommend any special one compared to others. Still, having in mind the experiences worldwide, ICAO recommends that the governments study the possibilities of founding an autonomous body that would manage the airports and air traffic control; the study explains numerous terms related to the privatisation models. The ownership and airport management options include: state ownership (from direct control and management, management of government body with the autonomy in the field of finances and operative, autonomous corporation founded by a special provision, or companies founded according to special law); lease (long-, short-, mid-term), BOT (Build, Operate and Transfer) and its derivations, excluding BOO (Build, Own and Operate), are the basic types of lease contracts; minority share of private sector in the ownership; private ownership and control (majority or 100% private ownership); combination of previous alternatives (e.g. Mexico: lease and minority transfer of shares); important issues are discussed, that have to be considered before changing the ownership and management (first of all safety and security). The preparation for the change should include the following: planning, development of the studies on financial and management situation for all airports, government decision about the suitable option, gradual changes, decision on not-for-profit aerodromes, decision on managing the means from privatisation (are they sufficient for the development of not-for-profit airports, will the government provide the rest of the means, etc.) changes in the regulations of the civil aviation, founding of regulators, human resources. The results of the carried out surveys related to the economic regulations can be summarised in the following: the taxes for landing and air traffic control in the majority of countries are determined by the government and its bodies or they are at least subject to government approval; the main determinants to set the levels of taxes (airport taxes and air traffic control taxes) are in the majority of countries based on the costs or result from the ICAO cost recovery policy; only about half of the countries included in the survey have transparent accountancy at airports and air traffic controls; legal solution for the misuse of the monopoly is introduced or planned mainly by countries in which airport management is separated from the government. ICAO policy in the field of airport economic regulations and air traffic control can be generalised in the following approach: where necessary, and especially where financially autonomous bodies managing airports/air traffic control have been established, the governments may consider, individually or in cooperation with other governments, the establishment of independent administration body for economic regulations, which will supervise the financial practice of the service providers at airports / air traffic control with the main functions: prevention of overcharging and similar monopolistic practice, insurance of transparency, availability, and presentation of all the financial data which determine the basis for taxes, assessment of effectiveness and efficiency of the service provider performance, revision of standards and service quality, supervision of the planned investments depending on the traffic forecast. Elaboration of the adopted standard (Council Directive 96/67) of providing ground handling services in the European Union is en route to liberalisation of the passenger and aircraft handling services: all the EU airports can provide terminal handling services; ramp services (loading of baggage, fuelling, etc.) can be provided only by those airports that have at least a million passengers a year (since 1. Jan. 1998); third parties provide these services at airports with more than 3 million passengers annually (since 1 Jan. 1999) and 2 million passengers (since 1 Jan. 2001); at least one service provider has to be independent in relation to the dominant carrier and the airport (since 1 Jan. 2001). The implementation of the adopted rules was assessed as unsatisfactory by the European Commission in 1998. The analysis of the existing international regulations and practice, and regarding the condition of the airports in Croatia, one of the solutions in the institutional and organisational sense is the foundation of the organisation (agencies, offices) under direct authority of the Government for Airport Infrastructure Management (through state share in the original capital) with the task of commercialising the company and preparing for privatisation, mainly of non-profitable airports. Airport management means also formation of a certain circle of private service providers in the segment of maintenance and handling. A version of such Government organisation may be also the expansion of the management function to other air transport subsystems, which are owned by the state i.e. to airlines and air traffic control. This version would enable a more balanced development in the transition period, mainly in the sense of investment policy, and it would prevent disloyal relation of the actually autonomous units. A possible option of the redistribution of the state ownership share in that sense refers to delegation of airport air traffic control into the ownership of the airport, mainly of regional (season) airports. In the process of commercialisation and the subsequent privatisation of airport operators as well as in all the versions of their business merging, the following requirement must be fulfilled: the managing authority from certification, control of the safety aspect and the security aspect, as well as prevention of adverse impact on the environment, prevention of monopolistic performance on the service market (airport taxes), airport personnel licensing, to the creation of airport policy, all these have to remain under the authority of Civil Aviation Administration. If the previous and the future structure of ownership relationships in airlines is considered, the technical and scientific analyses speak in favour of the increasingly intense application of the privatisation model, which reduces proportionally the influence of the state on the operation of airlines. However, in order for this process to be reliable, socially justified and financially attractive on the market, the development of the airline must insure more lasting successful business results. Therefore, these challenges can be successfully faced only by extremely well organised, productive and market-efficient airlines that have been consistently building their position on the market for many years. If the process of privatisation is understood as a simple formula of replacing the internal and inactive state by mobile and efficient private entrepreneurial impulses, there is real danger that this will sooner or later result in serious consequences in the form of great losses, repair and bankruptcy processes. The position of Croatia Airlines on the aviation market of Croatia and Europe is till insufficiently stable and inefficient, and the economic and political environment is to a great extent de-stimulating thus making it impossible to start and complete the process of privatisation within a short period, even if there were any interested parties. The current status, approximately in the middle of the list of airlines from the transition countries, presupposes the need to improve in the future the level of usage of capacities, productivity, position on the market, and efficiency of operation in correlation with the necessary assumption that the GDP growth tendency in Croatia and the economy, feature in general more intense development indicators. The most important assumption for the realisation of the mentioned forecast is the stability of the region, which had been more of an exception than a rule in the past ten-year period. In reasoning about the state interests regarding issues of solving the problems of commercialisation and privatisation of air transport operators, the level of sensitivity and prioritisation in decision-making should be determined by the relation between the volume of revenues of single subsystems and the financial interventions from the budget. From the aspect of revenue level, the approximate relation of the shares by airports, air carriers, and air traffic control is 20% : 65% : 15%, respectively (2001). Unlike airport management and airlines management systems, in which the influence of the state is getting reduced, i.e. privatisation is on the move, the air traffic control is, as a rule, state owned. If the ATM service provider ownership in Europe is analysed, the privatisation process of the air traffic control system exists only in Great Britain (state owns 49%, 46% is privately owned and 5% is owned by the employees) and in Switzerland (99.85% is state owned). For a long time already ICAO has been proposing the commercialisation concept of air traffic control service providers. The past decade has seen a trend of founding of the independent ATM service providers. The restructuring of the state air traffic control authorities as service providers, either commercialised or not, requires an analysis of many criteria such as: modifications in state laws, separation of the functions of the regulator from the function of the operator in order to avoid the conflict of interests and the transparency of the corporate company (independent revision of operation, detailed publication of operation and annual reports). The majority of air traffic control systems in Europe have either been commercialised or this process is underway. 4. CONCLUSION The strategy concept and the framework guidelines of air transport development have been derived from the general assumptions of the strategic transport planning at the level of the system, and they have been elaborated in the project topic Transport as part of the Government project of elaborating the Development Strategy of the Republic of Croatia Croatia in 21st century. The conceptual assumptions of air transport strategy are based both on the global and on the European regulatory context of air transport development, best practice at national levels, and on recognising the specific features of the local and regional environment. The elements of strategic planning of air transport development of Croatia include the aspects of institutional and legal organisation of the regulator (CAA) and operators, infrastructure, and transport capacities, management of air transport operative as well as personnel resources. The elaboration of air transport strategy as a branch strategy assumes the adoption of the national transport development strategy, and conceptually it should contain the bases of implementation: vision, objectives, mission, carriers, protocol and evaluation criteria. The air transport development strategy concept of Croatia articulates long-term strategic goals: integration into the international air transport system, air transport safety, air transport efficiency, and the opposing goals: human resources, security in air transport, environmental compatibility, administration reform. According to the concept, Civil Aviation Authority (CAA) is the main carrier of the mission of implementing the development strategy, i.e. implementation of strategic guidelines, in closest cooperation with the strategic partners in the development  other state departments, aircraft industry, the academic community and the foreign partners. Literature Bo~i evi, J., Steiner, S. et al..: Inicijativa Baltik-Jadran  koncepcijske postavke za optimiranje prometne mre~e. Elaborat. Hrvatska akademija znanosti i umjetnosti, Znanstveno vijee za promet, Zagreb, 2000, p. 29.  HYPERLINK "http://api.hq.faa.gov/sp01/sp2001.html" FAA Strategic Plan. Federal Aviation Administration, 2001. Galovi, B., Steiner, S., Miljac, Z.: Worldwide Standards Implementation Aspects for Transition Countries. 17th Annual FAA/JAA International Harmonization Conference, Panel Discussion 1, Presentation Material, June 5-9, 2000, Chicago, Illinois, USA. IATA World Air Transport Statistics. 46 Edition, Geneva, 2002. ICAO Conference on the Economics of Airports and Air Navigation Services. ANS Conf 2000,  HYPERLINK "http://www.icao.int/cgi/ansconf2000.pl?icao/en/atb/ansconf2000/wp.htm" Working Papers, Montreal, June 19-28, 2000. ICAO Policies on Charges for Airports and Air Navigation Services (Doc 9082). Sixth Edition, ICAO, Montreal, 2001. Miaeti, I., Baji, J., Tatalovi, M., Taka , A.: Strategic Directions of Air Transport Development in Croatia by the Year 2010. Promet Traffic Traffico, Vol. 13, Proceedings, Supplement No. 4, Zagreb, 2001, pp. 43-52. Pavlin, S.: Airport Development Strategy in the Republic of Croatia. Promet  Traffic  Traffico, Vol. 13, 4, Zagreb, 2001, pp. 137-141. Steiner, S., Rada i, }., Pavlin, S.: Croatian Air Traffic in the Integration Process of the Countries of 21st Century Europe. Promet-Traffic-Traffico, 2-3, Portoro~, Trieste, Zagreb, 1999, pp. 179-183. Steiner, S.: The Impact of Transition Processes on Safety. Flight Safety Foundation & European Regions Airline Association, 14th European Safety Seminar, Conference Proceedings, Budapest (Hungary), March 11-13, 2002, pp. 1-7. Strategija razvitka Republike Hrvatske  Hrvatska u 21. stoljeu ,  HYPERLINK "http://www.hrvatska21.hr/download/200103070000002.pdf" Promet, Vlada RH, Ured za strategiju razvitka Republike Hrvatske, 2001  CEEC  Central and Eastern European Countries.  Source: Eurostat, national statistics; Study for Energy and Transport DG.  IATA: WATS, 46 Edition, Geneva, 2002.  Source: B. Galovi, S. Steiner, Z. Miljac: Worldwide Standards Implementation Aspects for Transition Countries. 17th Annual FAA/JAA International Harmonization Conference, Panel Discussion 1 Presentation Material, June 5-9, 2000, Chicago, Illinois, USA.  EASA European Aviation Safety Agency.  Eurocontrol Safety Regulatory Requirements.  NTSB - National Transportation Safety Board.  Office of Aviation Safety.  FAA - Office of System Safety.  FAA - Office of Regulation and Certification.  TSB - Transportation Safety Board of Canada.  BASI - Bureau of Air Safety Investigation.  CASA - Civil Aviation Safety Authority.  CAA - Civil Aviation Administration.  Simplified, this means that the projection of the future status is not based on the volume of the forecast and expected traffic, but rather on the volume of induced and desired traffic.  The strategy of the physical planning of the Republic of Croatia (Ministry of Physical Planning, Construction and Housing, Department of Urban Planning, Zagreb, 1997) has planned the construction of smaller aerodromes on the islands of Hvar, K'12Mac 3 4 ʸwfYKw7w7w7w'jhe0JOJQJU^JmH sH h WOJQJ^JmH sH he6CJaJmH sH  h(h WOJQJ^JmH sH heOJQJ^JmH sH h(5OJQJ^JmH sH #h(he5OJQJ^JmH sH #h(h(5OJQJ^JmH sH #h_he5OJQJ^JmHsHhe5OJQJ^JmH sH %hD5CJOJQJ^JaJmH sH %he5CJOJQJ^JaJmH sH 12M4 5 5 6 $%  7c$ & F hh^ha$$`a$ & F$a$$a$ & F·ZQZoxU^!*_öè䖄r"heCJOJQJ^JaJmH sH #hDB*OJQJ^JmH phsH #heB*OJQJ^JmH phsH h WOJQJ^JmH sH hD6CJaJmH sH he6CJaJmH sH 'jhe0JOJQJU^JmH sH heOJQJ^JmH sH hDOJQJ^JmH sH ('+* $a$ & F @@^@`$ & F 8hh^ha$$`a$$a$_h5C* n w ##I#h#i#z##%&(&1&9&'''z((W)`)))))))γΥΈxxl`l`heCJaJmH sH h^CJaJmH sH hDOJQJ^JaJnHtHheOJQJ^JaJnHtHhD6CJaJmH sH h WOJQJ^JmH sH he6CJaJmH sH hDOJQJ^JmH sH heOJQJ^JmH sH "heCJOJQJ^JaJmH sH "hDCJOJQJ^JaJmH sH !* !!{"I#J#h#i#$%%%&9&:&''))))F-..@/ & F$a$ & F & F hh^h))U+Y+++,!,----/$/Z/^/// 00 11i1j11111223(333333344455566-7G7d777D8M8䦖䦆hDOJQJ^JaJnHtHhbuOJQJ^JaJnHtHheOJQJ^JaJnHtHhbuOJQJ^JmH sH "heOJQJ^JmH nHsH tHhDOJQJ^JmH sH heOJQJ^JmH sH h^OJQJ^JmH sH 4@//00i1j111222293:34-7.7778899$ & F hh^ha$ & F hh^hd1$7$8$H$$a$ & F hh^hM888888;m<q<r< ==Q>Z>>>*???@?H?@@@@jAsAAAAA C)CDDDDEEFFFF.G/GxGG H)HJH\HeHlHԌhZOJQJ^JmH sH hOJQJ^JmH sH 'jhe0JOJQJU^JmH sH heOJQJ^JhbuOJQJ^JmH sH hDOJQJ^JmH sH heOJQJ^JmH sH heOJQJ^JaJnHtH39B:C:;<W=>@@uAvAiCjCFFQJRJKKNNPP2T3T4T $ p#a$gdI2$a$$ & F hh^ha$lHmH|HHHvIwIIIIIrJ{JJJKKLLgLpLXNYNNNHOQOWOZO4P=P;QDQQQRRS%S4T5TiTjTUϻϻϭϻϭϻϭϻϻϭϭϭϟϭϭϑuheOJQJ^JaJnHtHheCJaJmH sH h WOJQJ^JmH sH hHOJQJ^JmH sH hDOJQJ^JmH sH 'jhe0JOJQJU^JmH sH heOJQJ^JmH sH hZOJQJ^JmH sH 'jhZ0JOJQJU^JmH sH +4T5TiTjTVVsXtX.Y/YZZZ[[A]B]f_g_aHbdbbbbbd & Fh^h` & F$a$UUVMVVVVV&X/XsXFYJYYY\\\\\\]]^^^^2_;_[_d_____]`f```bbIcJce,ffּ֮~~pppphDOJQJ^JmH sH hJ2OJQJ^JmH sH 'jhe0JOJQJU^JmH sH h WOJQJ^JmH sH heOJQJ^JmH sH jhe0JOJQJU^JhDOJQJ^JheOJQJ^JheOJQJ^JaJnHtHhDOJQJ^JaJnHtH,ddee,fflgghiijjllllmmmm & Fd1$7$8$H$$ & Fhd1$7$8$H$^h`a$ & Fh^h`$a$fagjglggg|hhhh[idij6jVW IJM\Țњ )#;*8r{ȡѡ+4he6CJaJmH sH heOJQJ^JaJnHtH *heOJQJ^JmH sH hyOJQJ^JmH sH  hV}hV}OJQJ^JmH sH hDOJQJ^JmH sH heOJQJ^JmH sH hV}OJQJ^JmH sH 5˓̓dIJKL"#()*89£ߤPQ p# $ p#a$$a$ & F$a$ڢ8ADMPxP^`h 6XⰠs#jheOJQJU^JmH sH hVOJQJ^JmH sH he6CJaJmH sH hDOJQJ^JaJnHtHheOJQJ^JaJnHtHhDOJQJ^JmH sH 'jhe0JOJQJU^JmH sH heOJQJ^JmH sH heH*OJQJ^JmH sH &QӦզ56 68ԫȭ#rƲ\  & F hh^h & F$a$ & FXZ\|}ЮѮҮ vxIJXغغغnW@-he5B*OJQJ\^JaJmH phsH -he6B*OJQJ]^JaJmH phsH 'hXB*OJQJ^JaJmH phsH 'heB*OJQJ^JaJmH phsH )jheOJQJU^JmH sH heH*OJQJ^JmH sH heOJQJ^JmH sH he0JOJQJ^JmH sH #jheOJQJU^JmH sH )jheOJQJU^JmH sH X\,.0<>·ķ$& ,-MN}~ٻڻȲȲ{{{{p{{b{{{{{{{{h WOJQJ^JmH sH h WH*OJQJ^Jh WOJQJ^Jjh W0JOJQJU^J9jhe0J5B* OJQJU^JmH phsH *he0J5B* OJQJ^JmH phsH 3jhe0J5B* OJQJU^JmH phsH heOJQJ^JmH sH heH*OJQJ^JmH sH & ·$ ,M}ٻ* RfZ gdZ$a$ & F hh^hڻ*+ RTfhZ\ "xz|,.0Rh W0JOJQJ^J!jh WOJQJU^Jjh WOJQJU^Jh WOJQJ]^J jh WOJQJ^Jh WCJOJQJ^J#jh W0JCJOJQJU^JUjh W0JOJQJU^Jh WOJQJ^J3or ula, Vis, Mljet, Lastovo, Rab, Pag, Dugi otok, and on land in Imotski, Karlovac and Slavonski Brod.  General Aviation Propulsion.  Advanced General Aviation Transport Experiments. Web source: http://agate.larc.nasa.gov  Small Aircraft Transportation System. Web source: http://sats.nasa.gov  The term non-conventional aviation means VTOL (Vertical Take Off and Landing) and STOL (Short Take Off and Landing) and hydro-aviation.  According to the statistical data on tourist traffic of the islands and share of air traffic in the carriage of tourists, it may be estimated that the traffic demand does not provide profitability of the operation of aerodromes on islands, except in individual cases, e.g. on the island of Hvar, with special significance in the choice of the optimal location for the aerodrome regarding gravitating zone.  Galovi, B.: Prilog razvoju nekonvencionalnih zrakoplova za priobalje Hrvatske. Doctoral dissertation, Fakultet prometnih znanosti, Zagreb, 1998.  The term  commuter encompasses the transport means for interurban transit.   Tilt-rotor  version is aircraft design with the possibility of rotating the propulsor by 90(.  Conference on the Economics of Airports and Air Navigation Services , Montreal, 19-28 June 2000.  WP/3 Financial Situation of Airports and Air Navigation Services (presented by the Secretariat).  Statements by the Council to Contracting States on Charges for Airports and Air Navigation Services.  WP/4 Statements by the Council to Contracting States on Charges for Airports and Air Navigation Services-Status, Structure and Form (presented by the Secretariat).  WP/6 Privatization in the Provision of Airports and Air Navigation Services (presented by the Secretariat).  WP/9 Determinants of the Economic Regulation of Airports and Air Navigation Services (presented by the Secretariat).  WP/10 Ground Handling at Airports (presented by the Secretariat). 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