|  | **BACKGROUND:******U.S. Transportation Secretary Rodney E. Slater hosted the Aviation in the 21st Century—Beyond Open Skies Ministerial, a three-day conference in Chicago, Illinois, to discuss the future of aviation in the new millennium.                                        Representatives of the international aviation community joined the Secretary in addressing the enormous advances and developments that have taken place in aviation over the 55 years since the historic 1944 Convention on International Civil Aviation. The 1944 Chicago Convention produced the recommendations for practices and procedures that have guided world aviation to this day.                                        In announcing the conference, Secretary Slater said he expected it to bring about "…the broadening of future aviation relationships globally, and a common vision of aviation in the 21st Century that will benefit economies, enhance safety and security, and improve the quality of service for passengers and shippers across the world.                                        The City of Chicago and the Chicagoland Chamber of Commerce sponsored the conference, which was attended by more than 900 people from 93 nations. Participants included Transportation Ministers and Director Generals of Civil Aviation worldwide, along with representatives of the major U.S. and international airlines and airports, labor unions, national and international aviation organizations, trade associations, manufacturers, Federal and local U.S. government and congressional members and other representatives from the private sector attended.                                        The conference was prompted by the growth in air transportation that has far exceeded even the most optimistic expectations. Air transportation has become essential to economic development and tourism, as well as to the movement of goods, and has brought the world community closer together. The conference was intended to foster dialogue and create an environment conducive to exploring next steps toward aviation liberalization and to encourage discussion between government and industry on the challenges and opportunities in the aviation system of the 21st Century.                                        The U.S. is examining the future of the system of bilateral, nation-to-nation agreements that now regulate all international air travel. The objective is to move beyond the bilateral aviation system utilizing the multilateral forum as a springboard towards plurilateralism. *Aviation in the 21st Century—Beyond Open Skies* builds on President Clinton and Vice President Gore’s long-time commitment to ensure a strong and competitive aviation system worldwide. Within days after taking office in 1993, President Clinton met with industry leaders in Seattle, Washington, to discuss industry problems, including three years of heavy revenue losses, and ways to help address those concerns. Out of that meeting, the National Commission to Ensure a Strong Competitive Airline Industry was established to develop recommendations for dealing with industry issues, most of which have been implemented. In April 1995, the U.S. Department of Transportation issued a new U.S. international aviation policy statement that focused on creating greater access with its partner countries. Since then, the United States has achieved 43 open-skies agreements.                                        In early 1999, Secretary Slater met with various sectors of the U.S. air transport industry in seven city listening sessions around the United States where he and other aviation leaders deliberated on issues of manufacturing, international aviation, airline finance, airport finance, airline and airport competition, general aviation and air cargo. The Secretary also met with European, African and Latin American transportation leaders to converse about developing a common vision of aviation in the 21st Century. *Aviation in the 21st Century—Beyond Open Skies* was an opportunity to expand that vision globally, as well as to facilitate more productive international and aviation industry relationships.**OVERVIEW:******World transportation leaders and aviation industry experts joined Secretary Slater, Deputy Secretary Mortimer L. Downey, Federal Aviation Administrator Jane F. Garvey, and other Department executives at the conference.                                        Keynote speakers included Frederick W. Smith, Chairman, President and Chief Executive Officer (CEO) of FedEx Corporation; James E. Goodwin, Chairman and CEO of United Airlines; Philip M. Condit, Chairman and CEO of The Boeing Company and Donald J. Carty, Chairman, President and CEO of AMR Corporation and American Airlines, Inc. Remarks were also made by several political leaders, including U.S. Senator Richard J. Durbin, Congressman James Oberstar and Congressman William Lipinski. In addition, Mayor Richard M. Daley welcomed the aviation community to Chicago.***SUNDAY, DECEMBER 5, 1999***                                        The conference began with an informal reception Sunday evening, followed by a private Ministers-only dinner sponsored by the Air Transport Association.***MONDAY, DECEMBER 6, 1999***                                        U.S. TRANSPORTATION SECRETARY RODNEY E. SLATER:                                        The Secretary opened the conference by welcoming conference participants and stating,                                                "We are here to open our minds to new possibilities for aviation in the 21st Century and the new millennium; to advance new opportunities for growth in international aviation; and to give this industry the recognition it deserves as a driving force for global integration and economic growth. It is my hope that over the course of the next two days we can work together to set in motion a process that will result in a new vision for aviation’s second century and a new policy architecture to help us, through vision and vigilance, to achieve that vision."

The Secretary continued,
"…for this process to work we must all be committed to listening and learning from each other… It is essential that we move the conversation about aviation’s future to higher heights. For that to happen, we need every voice to be heard. That is why our conference participants represent every segment of the industry, labor organizations, and consumer groups, as well as governments."

Secretary Slater believes we need a bolder vision for international aviation. He called for
"...a vision broad enough to help the industry cope with global integration as well as a communications and information revolution, yet sensitive enough to respond to safety, environmental, labor and community concerns. The time to forge such a vision is now. Therefore, it is essential that all members participate in doing so."                                                The primary objective of this conference was to allow the world’s aviation leaders an opportunity to deepen their understanding of the critical aviation issues of the next century. The conference encouraged new ways of dealing with aviation issues, such as multinational alliances, labor concerns, advanced technology, research and development plans, international cooperation, and above all, safety.                                                The Secretary hopes the conference will set in motion the process to open up our minds to new possibilities for aviation in the new millennium; to advance new opportunities for growth in international aviation; and to recognize this industry as the driving force for global integration and economic growth it has become.
"You could say that our job is to help erase the imaginary lines that limit the potential of aviation to contribute to a better future for all of humanity…no single nation or even group of nations can realize this great vision unilaterally. The truly international aviation architecture we need can only happen if we work together to make it happen."
**MORNING KEYNOTE SPEAKER DANIEL S. GOLDIN:**                                        Daniel S. Goldin, Administrator for the National Aeronautics and Space Administration, presented the first keynote speech on Monday to kick off the ministerial. In his speech, Mr. Goldin emphasized the need to develop an aviation system to meet the demands of the new millennium.

"Today’s aviation system cannot meet the incredible demands of the new millennium. And a piecemeal approach won’t move us forward to tomorrow’s system.                                                Instead, we need to set a plan for where we want to be…we all need to come to a consensus, get to work, and move to the future together. That means we not only need to develop an integrated aircraft/airport system, we also need to work on all our needs at once. We can’t just increase capacity or safety or reduce noise alone. We need to strive toward these goals simultaneously.                                                That way, our aviation system will be like the Hubble Space Telescope. Just like Hubble has opened up the universe to millions of people, the aviation system of the future will open the corners of the world to more and more people. And as we develop that system, we will ensure that the new millennium is the aviation millennium."

Secretary Slater, NASA Administrator Goldin, FAA Administrator Garvey, and Joseph J. Eash, III, Deputy Under Secretary of Defense (Advance Technology) jointly made the flagship announcement about theNational Research and Development Plan for Aviation Safety, Security, Efficiency, and Environmental Compatibility. In formally releasing the Plan, which addresses 13 of the 28 recommendations of the White House Commission on Aviation Safety and Security, Administrator Garvey stated that it

"…signifies consensus on national aviation goals. It provides the foundation for developing an even stronger, more effective government and industry collaboration."

The conference proceeded into panel discussions involving participants from international and domestic aviation backgrounds. Panels centered on the following topics:**Plenary Panels**                                        Panel A: Regional and Worldwide Aviation Concerns and Issues in the 21st Century                                        Panel B: Beyond Bilateral Aviation Agreements**Breakout Sessions**                                        Panel C: Strategic Airline Alliances in the 21st Century                                        Panel D: Airways and Airport Infrastructure Issues in the 21st Century                                        Panel E: Technology and the Future of Aviation                                        Panel F: The Future of International Airlines in an Open Aviation Market Environment                                        Panel G: Aviation Safety and Security Issues in the 21st Century                                        Panel H: Global Airline Industry Competition and Service Adequacy in an Open International Aviation Market Environment**PANEL A: Outline of Regional and Worldwide Aviation Concerns and Issues in the 21st Century*Moderated by: U.S. Secretary of Transportation Rodney E. Slater***                                        Five government transportation officials from Western Europe, Central/Eastern Europe, Africa, Asia, and Latin America presented overviews of the aviation system, conditions and prospects in their regions.**Western Europe**                                        Netherlands Minister Tineke Netelenbos presented the benefits of liberalization of international aviation from the perspective of the United States’ first open skies partner, beginning in 1992. She endorsed a proposal released in November 1999 by the Association of European Airlines (AEA) to develop a Transatlantic Common Aviation Area (TCAA) to address the growth and globalization issues that face the air transport system between the European and North American continents. This proposed agreement would begin with the European Union and the United States. She said the TCAA would not only improve the environment for air transport, but would also serve as a stepping-stone towards a multilateral aviation system.                                        She cited the following challenges to aviation growth: Capacity shortfalls and air traffic delays; environmental, safety and security constraints; consumer interests; coordination of civil and military interests; bilateral restrictions; and the spread of airline alliances and other structural changes that require multilateral solutions.**Central/Eastern Europe**Czech Republic Transportation Vice-Minister Karel Sellner noted the successes of multilateral efforts on safety, security and the environment. He suggested that similar multilateral initiatives to confront other challenges resulting from traffic growth and air transport competition could also be successful. In Central Europe, steps toward multilateralism have begun through the European Civil Aviation Conference (ECAC), Eurocontrol (the European air traffic control entity), and the Joint Aviation Authorities (JAA) in which nearly all Central European states participate. Central European aviation officials hope that ECAC and Eurocontrol will help avoid the bottlenecks already experienced by their western neighbors as air traffic grows.**Africa**                                        Côte d’Ivoire Transportation Minister Adama Nibi Zana Coulibaly cited the history of U.S.-Africa collaboration for progress in aviation. He recalled President Clinton’s "Safe Skies for Africa Initiative" launched in Dakar, Senegal, in April 1998, and the *U.S.-Africa Transportation Ministerial, Building a Partnership for the 21st Century**,*** hosted by Secretary Slater in Atlanta in September 1999. Minister Coulibaly said Africa faces unique problems in aviation because 40 of 53 African nations have a per capita GNP of less than $800, and much of the continent has a seriously underdeveloped surface transportation system.                                        He said the problems confronting African air transportation include:                                        a large number of small politically conceived airlines dependent on state subsidy;
fragmented markets with 33 airlines using 540 aircraft to fly only 57 million revenue passenger annually;
- inadequate intra-African air services, sometimes requiring travellers between two African points to fly via a European hub;  among the world’s highest fares, due in part to high costs of fuel, maintenance abroad, and insurance premiums;unsatisfactory service to passengers and shippers;
- inadequate human resources, especially technically skilled personnel;  inadequate infrastructure, both airports and navigational aids, with higher-priority developmental needs limiting capital resources available for aviation system and infrastructure investments; andsafety and security shortcomings, most of which now are being corrected.
The Minister said the issues that face African aviation cannot be effectively addressed at the national level alone. Solutions must be found at the regional, sub-regional or economic-group level, such as the African Civil Aviation ministers’ meeting at Yamoussoukro, Côte d’Ivoire, in November 1999. Cooperation, privatization and partnerships are being pursued as solutions for African aviation, but financing from abroad will be needed for any significant advances because the development needs are so great.**Asia**                                        India Transportation Director General H.S. Khola said Asia shared many concerns cited in other areas of the world, with some being more pronounced in his region. He particularly cited inadequate infrastructure to handle traffic at peak periods. Mr. Khola said that while many Asian airports handle fewer flights overall than the congested hubs of Europe and North America, they still experience severe "peaking" problems-serious congestion for brief periods of the day. This infrastructure challenge will require attention as traffic continues to grow. He said aviation officials must continue to give the highest priority to safety while taking measures to reduce expansion problems.                                        Director Khola called for liberalizing the traditional standard of "substantial (national) ownership and effective control" for air carriers seeking to exercise rights under bilateral agreements. He also mentioned that aviation safety must continue to receive the highest priority and that ICAO must continue its important, central role in the development and expansion of world aviation.**Latin America**                                        Mexico Transportation Secretary Carlos Ruiz-Sacristan said the Latin American/Caribbean market represents 5 percent of worldwide traffic in passengers, freight and mail, but is growing rapidly—on some carriers as much as 12 percent annually. Secretary Ruiz affirmed an important distinction for the discussions to follow—that "open skies" refers to international air transportation, and does not reach domestic (cabotage) rights. The Secretary said open skies treaties produce more competitive markets but new policies we develop should take into account relative market size and what we believe the role of government should be. Improvements in safety and security, airports, air navigation and air traffic control infrastructure will require substantial additional resources for which financing must be found.******PANEL B: Beyond Bilateral Agreements*Co-Moderated by: U.S. Secretary of Transportation Rodney E. Slater and Deputy Secretary Mortimer L. Downey***                                        Secretary Slater said the "open skies" nations would have to lead the way in developing the aviation system of the 21st Century.

"Our purpose today is to exchange ideas on how to make that progress. Our focus is on moving from the separate, bilateral world of today, to a policy architecture that moves beyond Open Skies. It would move us forward to an international system that takes full advantage of the unprecedented opportunities of the emerging global economy. That vision would provide all airlines of the world with a meaningful opportunity to serve the new, global aviation market."

                                        Participants in this panel explored the range of options available for moving beyond the existing system of bilateral air services agreements. Panelists were united in the conclusion that international air transportation is essential to international trade and global economic progress, and that with the rapid growth of international movement of people and goods, new agreements must continue to place the highest importance on aviation safety and security. They recognized ICAO’s instrumental role in these areas and emphasized that ICAO should continue to be the world’s forum and authority for such matters. There was also consensus that liberalization could not deliver the full benefits of competition to consumers of air transportation without improved infrastructure to accommodate increased traffic.                                        All panelists embraced the concept of moving toward greater liberalization, although their prospective approaches differed. Lead speaker Dr. Assad Kotaite, President of the Council of the International Civil Aviation Organization noted that the Council had in November 1999 adopted a resolution affirming that reciprocal exchanges of air transport rights are consistent with the aviation community’s market access goals. Most panelists paid tribute to the tremendous progress brought about by United States leadership in promoting open-skies bilateral agreements as an important step towards any more liberal regime that follows. The U.S. Under Secretary of State for Economic, Business, and Agricultural Affairs said there is substantial promise for further bilateral liberalization because the United States still has not achieved open-skies agreements with the United Kingdom, Spain, and Hong Kong and other partners.                                        The panelists addressed the challenge of moving beyond bilateral agreements in two different ways. First, panelists accepted that the features of existing liberal bilateral agreements would be adopted by more countries—regionally, plurilaterally, or multilaterally. Second, most panelists highlighted the need to develop common regulatory approaches on matters not included in traditional bilateral agreements, as well as to expanding the geographic scope or number of participants. The most frequently cited concerns were competition (antitrust policy) and right-of-establishment, i.e., the relaxation or removal of the traditional "ownership and control" laws and regulations that limit cross-border investment and control in the air transportation industry. Those favoring this approach agreed that competition and investment policies must be important components of any plurilateral or multilateral agreement.                                        Most speakers predicted that the transition beyond bilateral agreements would likely take place over time in several phases. Some proposed to start with a regional or other plurilateral arrangement, while others suggested that cargo services could be liberalized more readily than combination services, i.e., with passengers and cargo on the same plane.                                        Five of the ten panelists endorsed a concept proposed in November 1999 by the Association of European Airlines (AEA) to develop a Transatlantic Common Aviation Area (TCAA). This proposed arrangement would include the European Union and the United States, with the world’s largest, most competitive markets, but would be open to accession by other countries. Air Line Pilots Association (ALPA) International President Captain Duane Woerth suggested that TCAA negotiations should be approached with no preconditions. International Chamber of Commerce Secretary-General Maria Livanos Cattaui said that obligations assumed in a TCAA could later be transferred into commitments within the World Trade Organization’s (WTO’s) General Agreement on Trade in Services (GATS).                                        Several speakers cautioned efforts to move forward should not be allowed to jeopardize the gains already achieved in the increasingly liberal bilateral aviation system. "We should never fly backward," said Under Secretary Larson. Some panelists also acknowledged the fundamental difference in approach between bilateral aviation systems based upon reciprocity and the multilateral regime represented by the WTO’s most favored nation (MFN) treatment. These differences must be taken into account in any transition from a bilateral to a multilateral approach.                                        Other themes discussed by the panel included the following:                                        Several speakers said aviation officials must be aware of environmental and social concerns when considering new approaches.                                        Some speakers emphasized special challenges facing state-owned airlines, such as new exposure to competition, modernization, and privatization.                                        Financing for infrastructure needs will be difficult for many countries, but especially those in Africa that will require capital from abroad.**MONDAY LUNCHEON SPEAKER L. WELCH POGUE:**                                        L. Welch Pogue, the former Chairman of the Civil Aeronautics Board and a member of the U.S. Delegation to the 1944 Chicago Convention, emphasized three items for international aviation progress in the 21st Century.
"Undreamed of aeronautical developments will permit important benefits in passenger service, if decent and honest passenger treatment is applied." 
- "The doctrine of sovereignty of the air requires remodeling. The worldwide tenet of sovereignty of the air over a nation’s territory stands in the way of all liberal arrangements for international air route formation. The concept needs remodeling."  "The world should be structured into regions for better air route formation. Our world is too big to fit into one theoretical pattern. The nations of the world are too varied and so diverse in government philosophies as to reveal a world almost devoid of air route-making common denominators. It is, however, possible to structure the world into regions having common ways (1) of doing business, (2) of political thinking, and (3) of practicing common decency in relations with others. Scandinavia is a good example. Such a restructuring could lead to higher roads of international air route formation in my judgment."
**MONDAY LUNCHEON KEYNOTE SPEAKER FREDERICK W. SMITH:**                                        Frederick W. Smith, Chairman, President and CEO FedEx Corporation, identified four trends that affect the way air cargo carriers do business: (1) the continuing growth of high-tech and high-value added goods as a proportion of overall economic activity; (2) these high-tech and high-value added trades know no borders and are inherently global in nature; (3) the increasing use of fast-cycle or just-in-time methodologies in both the distribution and the production cycle; and (4) the development of e-commerce which is inducing companies to move their supply chains online. Mr. Smith asserted that
"…the international air cargo industry is rapidly becoming the primary facilitator of economic prosperity worldwide," and that "…the time is ripe for a multi-lateral approach to opening up the all-cargo, international aviation industry. We believe that perhaps on a regional basis, or even better on a broader basis, there is nothing that could happen to advance the economic prosperity of more people worldwide than to free our industry from the restraints we now experience in trying to meet the requirements of our customers."****

**PANEL C: Strategic Airline Alliances in the 21st Century*Moderated by: Congressman William O. Lipinski, Chicago, Illinois***                                        Panelists discussed the operational and financial effects of airline alliances. Most panelists agreed that consumers and airlines benefit from alliances. These partnerships provide more convenient air transportation to thousands of new destinations worldwide and allow remote locations to be more accessible to the traveling public. Consumers benefit from lower prices, better service, and access to more cities. Air carriers also benefit with expanded route networks, lower operating costs, increased company value and enhanced investment value. As aviation officials throughout the world look to open restrictive markets and ensure competition during the 21st Century, they must also work toward the harmonization of rules and regulations while striving to maintain the highest standards of safety and security.                                        Panel members discussed issues pertaining to the benefits and other consequences of airline alliances. Most industry panelists agreed that business alliances do not raise barriers to new entry, but for an alliance to be successful, government entities must pursue a convergence of rules. The panel members also addressed restrictions on anti-competitive measures and suggested that change is necessary to reinforce competition. Safety and environmental issues were also raised as focal points of alliance consideration.                                        The panelists agreed that the global strength of alliances could attract more investment for airlines to enter the global markets of the 21st Century. Brokerage houses and other financial institutions evaluate the operating efficiencies and competitiveness of alliances, including equipment, route structure and opportunities, to determine the attractiveness of the partnership. The stronger alliances provide a less volatile rate of return and make the airline partners more attractive to investors.                                        Passenger benefits were the central point of discussion with more advantages than disadvantages identified for consumers. Consumer benefits identified by the panelists included more convenient services, additional frequencies, more connections offered, "seamless" transportation to remote locations, amenities, ease in connections, redemption of frequent flyer air miles, less chance of baggage losses, and lower fares. Fares are 43% lower and taxes 25% lower in markets served by competing alliances.                                        Panelists also cited the need for an international regulatory framework on alliances to establish a unified policy.                                        Open-skies agreements have facilitated airline alliances because passengers want one airline or alliance to accommodate them at a reasonable price. Alliances provide the highest integration to produce the most travel value for consumers. For airlines, alliances avoid cross-border issues such as ownership limits, labor and cultural hurdles, in addition to potential disruptive reorganization and merger costs that impact full mergers.                                        With alliances needing considerable investments and the assurance of global stability to ensure a positive return, the panelists predicted that only alliances with substantial integration would be successful. Potential threats to alliances are the problems affecting the worldwide air traffic control system and the future commitment to standardize global environmental regulations, such as the hushkit (noise) issue.                                        From a labor perspective, alliances may raise job security concerns, such as which partner carries what proportion of the traffic, who pays for labor provided by alliance partners, collective bargaining issues, safety implications, outsourcing of maintenance requirements, and how to meet and maintain International Civil Aviation Organization (ICAO) standards.**PANEL D: Airways and Airport Infrastructure Issues in the 21st Century*Moderated by: Norman Y. Mineta, Vice President of Special Business Initiatives-Lockheed Martin and former Chairman of the National Civil Aviation Review Commission***                                        The state of aviation infrastructure in the U.S. and abroad poses the most significant obstacle to future growth in the aviation sector. The panelists said the infrastructure issue must be addressed at the national and international levels if the aviation community is to realize the full benefits of market liberalization.                                        Panelists said the two most critical infrastructure problems facing the aviation industry today are airport capacity constraints and the modernization of air traffic control systems. Panel members noted that airport capacity constraints result from environmental impacts on neighboring communities, lack of physical expansion space and control over off-airport land-use, increased demand for existing airport infrastructures, outdated operating and regulatory practices, and other factors. Proposed solutions ranged from enhanced access to capital markets for additional funding to improved planning and the reform of ICAO and other regulatory regimes to reflect technological advances.                                        Current air traffic control (ATC) systems are inadequate to manage current and projected traffic flows, and without substantial investment in new technologies and management improvements, the global aviation system will be unable to accommodate demands for increased passenger and cargo traffic.                                        Participants offered differing perspectives on how best to accomplish these tasks. Some proposed the privatization/commercialization of ATC services so as to increase the flexibility and efficiency of ATC management and gain access to capital markets to meet increased investment needs, while others suggested less dramatic approaches that would retain public funding but separate regulatory functions from the provision of ATC services.**PANEL E: Technology and the Future of Aviation*Co-Moderated by: Eugene A. Conti, Assistant Secretary of Transportation for Transportation Policy, and Dr. Ashish Sen, Director of the Bureau of Transportation Statistics, U.S. Department of Transportation***This panel focused on the major role aircraft and flight-related technology improvements could play to increase the efficiency of the air transport system, while improving safety and reducing adverse environmental effects. Technological improvements could provide solutions for dealing with traffic growth that has outpaced the capacity of existing facilities.                                        One panelist said flight delays could increase out of proportion to the growth in traffic. As the system approaches the limit of its ability to handle growing traffic, a small increase can result in disproportionate flight delays. Another panelist predicted that both the U.S. domestic system and the international system will be in crisis by 2005 based on current projections for traffic growth unless actions are taken soon to increase the capacity of the system.                                        Several panelists noted that funding for new technology research and development is not keeping pace with the need to develop a variety of potentially valuable technologies.                                        The payoff from new technologies to reduce noise and emissions from aircraft could be much greater than the cost of such research. Spending more on research aimed at reducing noise emitted, for example, could result in not having to spend nearly as much on noise mitigation.                                        Panelists also talked about applications of the Global Positioning System (GPS) technology. More than 100,000 receivers are manufactured each month for civilian purposes, many of which are used for aviation. For example, current operations in Alaska take advantage of GPS, and Chicago O’Hare will begin operations based on the Local Area Augmentation System by summer 2000. The Wide Area Augmentation System will become operational this year.                                        Panel members discussed the advantages of GPS, but some also noted that significant work remains if GPS is to be implemented successfully worldwide. National governments must agree upon system standards. To protect the GPS frequency spectrum, the panel asked that all delegates act to ensure that the language in the Final Acts WARC 2000 under Agenda Item 19 call for no change (NOC) in allocation to the ARNS band from 1559-1610 MHz and the Suppression (SUP) of Resolution 220.                                        Finally, panelists praised the*National Research and Development Plan for Aviation Safety, Security, Efficiency, and Environmental Compatibility.*They said it is significant because it brings together Federal agencies with the aviation community to ensure that aviation continues to play a role in sustaining U.S. economic growth and the health and welfare of its citizens.**OPEN SKIES ROUNDTABLE**                                        Ministers and other representatives from open-skies countries met with Secretary Slater to discuss moving from a paradigm in which each nation enters into separate bilateral agreements with each of its aviation partners to a paradigm in which provisions are agreed by a group to apply equally to all members of the group. A draft joint statement was circulated to all the open-skies countries calling for a follow-up meeting among like-minded countries in the spring to determine concrete steps toward shifting from the bilateral paradigm to a plurilateral system.                                        A transformation of government’s oversight of air services from an interest in national carriers alone to the creation of an environment that will allow the growth of the vital air transport infrastructure is needed to support the growing global economy. Partners must have the determination to implement bold new policies while balancing parochial interest against public interest. The roundtable session provided an opportunity to share ideas and to discuss the common interest in providing countries with the best possible air transport service infrastructure to support access to the global market.                                        There are more efficient ways to liberalize air transportation than on a market-by-market, bilateral-by-bilateral basis. Exciting ideas in many different forums are being broached, for example, in the Asia Pacific Economic Cooperation (APEC), the Organization for Economic Cooperation and Development (OECD), and the European Union. Regionally, groupings in South America and Africa are pulling together as well. Different forums have different ideas, but one thing holds true: the world is moving from a bilateral to a plurilateral system. The U.S. goal is to move toward plurilateralism by developing a concrete plan of action.**MONDAY EVENING KEYNOTE SPEAKER JAMES E. GOODWIN**                                        James E. Goodwin, Chairman and CEO of United Airlines, delivered a keynote speech calling for action to resolve the crisis in aviation.
"We need to see better cooperation between governments on a host of issues—everything from environmental and noise issues to competition—from market analysis and market definition to the avoidance of unnecessary restrictions on e-commerce and distribution systems."

                                        Mr. Goodwin also stated,
"I believe we are at a true point of crisis—one that affects not just the U.S., but all of us in Europe and elsewhere around the globe. That is the crisis of inadequate capacity—air traffic control and infrastructure—to meet the continually growing demand for air travel."

**U.S. TRANSPORTATION SECRETARY RODNEY E. SLATER PRESENTS OPEN SKIES AWARD TO SECRETARY FEDERICO PEÑA**                                        Former Secretary of Transportation Federico Peña was presented the "Open-Skies" award for his leadership at the Department and for the issuance of the International Air Transportation Policy Statement of 1995, which recognized that efficient international air transportation would greatly enhance the future expansion of international commerce and the development of the global marketplace. It was this policy that established the framework for making "Open Skies" a major factor in international aviation. By the time Secretary Peña left the Department in February 1997, the United States had signed aviation agreements with 40 nations, opening new markets between the United States and other countries around the world.

**The plaque reads**

*"For visionary leadership in International Air Transportation Policy. The Open-Skies and other progressive agreements reached while he was Secretary have opened the world to the benefits of air transportation."*

**U.S. TRANSPORTATION SECRETARY RODNEY E. SLATER PRESENTS INTERNATIONAL AVIATION AWARD TO SECRETARY SAMUEL K. SKINNER**                                        Former Secretary of Transportation Samuel K. Skinner served as the 10th Secretary of Transportation from February 1989 to December 1991. Secretary Skinner’s accomplishments at the Department includes his "Moving American: A Statement of National Transportation Policy" initiative. This policy statement, issued in March 1990, provided a framework to guide the Federal government, as well as its State, local and private sector partners in making the strategic choices in transportation that are needed to lay a foundation for the nation’s infrastructure needs. In addition, Secretary Skinner introduced the "Cities Program" launched in January 1990, which changed the ground rules on how countries could obtain the right to serve new U.S. cities. The "Cities Program" opened access to new U.S. markets for non-U.S. airlines whose homeland governments had the courage and common sense to embrace pro-competitive aviation relationships with the United States.

**The plaque reads**

"To Samuel K. Skinner for leadership in encouraging foreign governments to embrace pro competitive aviation relationships with the United States and giving underserved U.S. communities the benefits of international air service."

**TUESDAY, DECEMBER 7, 1999                                        PARTNERSHIP FOR SAFER SKIES IN LATIN AMERICA AND THE CARIBBEAN BREAKFAST MEETING**                                        Secretary Slater and Federal Aviation Administrator Jane Garvey met with Ministers and Director Generals of Civil Aviation from Latin America and the Caribbean to discuss the "Partnership for Safer Skies" initiative with the region. President Clinton’s Summit of the Americas set the stage for success, followed by the Western Hemisphere Transportation Ministerial in New Orleans and Secretary Slater’s trade mission to South America in October 1999, as well as his visit to the Caribbean subsequent to the Chicago Ministerial.                                        The establishment of this new "Partnership for Safer Skies" will raise awareness and give more visibility to the role aviation plays in the growth of both economies. The first step is to convene the decision-makers in both governments and the private sector aviation interests to discuss the critical issues of aviation infrastructure. Then it will be necessary to take the leadership role to encourage regional counterparts to participate in this initiative. The Secretary suggested that by hosting a summit meeting to launch this initiative, the region can help to identify several key issues such as the many aviation-related activities underway in, or proposed for the region; determine areas that are not being addressed, or that require additional focus; and establish the role of the private sector, regional institutions, multilateral financial entities, and ICAO.                                        Secretary Slater emphasized,
"…only through regional and intra-governmental cooperation supported by the highest levels of government will the regional aviation system be prepared for the challenges of the 21st Century."

**TUESDAY MORNING KEYNOTE SPEAKER PHILIP M. CONDIT**                                        Philip M. Condit, Chairman and Chief Executive Officer of The Boeing Company, called for the participants to address four issues to achieve an integrated, productive global system.
"First is a basic, global aviation policy, as you have discussed and as you will continue to discuss. This is a policy that allows us to move from a regulated, bilateral system to an open multilateral system. Second is an airport and Air Traffic Management (ATM) system that can accommodate future growth of air transportation. Third are safety improvements that are required to build public confidence in the system. Fourth, and finally, are environmental issues, which must be addressed if the system is to expand and reach its full potential."

**U.S. TRANSPORTATION SECRETARY RODNEY E. SLATER:**                                        Following Philip Condit’s address, the Secretary reiterated the three reasons for the Ministerial:
- to open our minds to new possibilities for aviation in the 21st Century and the new millennium;  to advance new opportunities for growth in international aviation; andto give the international aviation industry the recognition it deserves as driving force for global integration and economic growth.
                                        The panel discussions held on the previous day helped make significant progress in examining these issues. They also helped set in motion a process that will ultimately result in moving "beyond open skies" toward an international aviation system that benefits the citizens of every country.                                        Before the start of the second day’s panels, Chilean Transportation Secretary Claudio Hohmann summarized the previous day’s panel discussions on Strategic Airline Alliances in the 21st Century, and Jonathan Howe from the Airports Council International recapped panel discussions on Airways and Airport Infrastructure Issues in the 21st Century, while Professor Per Enge from Stanford University reviewed points made at the Technology and the Future of Aviation panel**PANEL F: The Future of International Airlines in an Open Aviation Market Environment*Moderated by: Stephen Van Beek, Acting Associate Deputy Secretary and Director of Intermodalism, U.S. Department of Transportation***                                        Panelists discussed the potential evolution of the current regulatory and market environment for international air transportation. Globalization and the growth of international airline alliances have expanded service and broadened participation in the international aviation system, but have also generated concerns about the level of competition and participation of developing countries.                                        Panel members agreed that enforcing safety and security standards is still the responsibility of national governments. They said governments must also safeguard competition and provide the infrastructure needed for air transportation to continue to grow.                                        Several panelists indicated the existing bilateral system is inadequate for meeting the challenges of the years ahead. They said the needs of airlines and users may not be met because of continuing restrictions in the areas of cabotage, ownership and investment, as well as similar limitations on wet leasing and government-financed transportation. Others cautioned against hastily abandoning a system that has produced great public benefits unless a superior framework is in place. In their view, virtually universal restrictions on cabotage and foreign ownership were firmly grounded on sound concerns for safety and for national and international security, and these concerns must be addressed carefully. However, all panelists supported continuing exploration of these issues in settings where all stakeholders’ opinions could be considered.                                        Plurilateral approaches might address these issues more broadly and effectively than has been possible in traditional bilateral relationships. They noted that potentially promising regional initiatives are beginning to emerge in the Transatlantic and Asia-Pacific areas. Earlier progress may be possible in air freight. Many of the panelists said incremental changes were more likely to succeed than attempts to achieve "big bang" global solutions.**PANEL G: Aviation Safety and Security Issues in the 21st Century*Moderated by: Jane F. Garvey, Administrator, U.S. Federal Aviation Administration***                                        Administrator Garvey noted that in the United States our security measures annually address the movement of 600 million people and one billion bags through more than 400 U.S. airports and over 150 foreign airports. Ensuring effective screening of ever-increasing volumes of passengers, baggage, and cargo on more flights without restricting movement remains our greatest challenge. As for safety, she emphasized that the significant increases in traffic will bring even more demands on the aviation system. Administrator Garvey invited the panelists thoughts on three main areas of focus in lowering the accident rate:
we must further develop a preventive mindset,
- we must improve our sources and uses of data, and  we must all export our expertise.
                                        She went on to say,
"We must work together-creatively, collaboratively, and cooperatively. As for prevention, we are making significant progress. Harmonization in all facets of aviation contributes to improving safety."

                                        The Air Transport Association described acts of terrorism as retaliation against individual countries, not to be perceived as actions against a particular air carrier. Panelists agreed that governments must do more to discourage terrorism by imposing economic and political sanctions to be enforced by the global community. To discourage such acts, the United States and other nations must respond with decisive actions and employ diplomacy, economic sanctions, military intervention and countermeasures, among others, to deter terrorism.                                        Airports play an important role in ensuring safety of airline operations. Members cited the British security system designed to screen almost all baggage handled at their airports as an example of an airport’s role in ensuring the safety of its passengers. Panelists agreed at airports are the first line of defense in fighting terrorism and in maintaining aviation safety.                                        Leo F. Mullin, Chairman, President and CEO of Delta Air Lines, Inc., emphasized the important role of code-share agreements in our modern society. Accountability and liability issues in cases of accidents involving U.S. carriers and their code-share partners were topics of discussion. Panelists addressed the need to ensure that all code-share partners meet operational safety guidelines and standards.                                        Some of the panelists suggested that governments (of all countries), rather than individual carriers, should be held responsible for enforcement. Mary Lou McHugh, Deputy Under Secretary of the Defense for Transportation Policy, said that Department of Defense (DOD) wanted carriers held responsible. An August 5, 1999, "Memorandum of Understanding" between DOD and the Air Transport Association commits six U.S. airlines represented by ATA to assess the safety of all current and proposed foreign carriers participating in code-sharing. The Department of Transportation has also elected to use this code-share safety program.                                        All participants recognized the importance of reducing aviation--related accidents. James Hall, Chairman of the National Transportation Safety Board (NTSB), said aviation remains the safest mode of transportation today despite rapid growth. However, he warned that if the growth continues, the numbers of crashes is also expected to increase, with one accident occurring around the world every week by the year 2015. He questioned whether the existing ATC system has the capability to handle the increasing number of aircraft. This situation is expected to worsen as the number of flights is projected to increase dramatically in the future.                                        To ensure increased safety, the NTSB recommended better and more sophisticated ground proximity and collision warning systems, more emphasis on all aspects of human factors in air transportation, and further development of satellite-based navigation systems. The NTSB also brought attention to the need for the aviation community to address reimbursement for recovery efforts following an accident and enhanced assistance for the families of victims of aviation disasters.**PANEL H: Global Airlines Industry Competition and Service Adequacy in an Open International Market*Environment                                        Moderated by: Nancy E. McFadden, General Counsel, U.S. Department of Transportation***                                        This panel convened to address competitiveness and service issues in the transition to an open international aviation market. General agreement emerged that open markets, which are good for consumers and for the aviation industry, should be a goal shared by all nations. But, there was a wide range of views on speed and the means for liberalization to proceed. Panelists acknowledged that different nations face diverse circumstances, including resource constraints, in striving for service adequacy.                                        The European Union’s (EU’s) experience with market deregulation was cited to show the benefits of an open aviation market. Deregulation has resulted in more competition among and within member states, replacing the monopoly and duopoly providers that previously dominated many European markets. Consumers have benefited from reduced fares, greater access from new market entrants and more efficient route structures.                                        Some panelists raised several key competition issues that must be addressed in the transition to full open markets. From regulatory and political perspectives, some participants said the concept of a full open market, while a valid long-term goal, could not be implemented immediately because many airlines could not survive in such an environment. They said the rationale for liberalization would be undermined if increasingly dominant air carriers were able to manipulate open markets to the detriment of consumers.                                        Representatives of the business community said the process of liberalization has been too slow. They cited a strong rationale for pursing more rapid liberalization where possible, perhaps in the context of a Transatlantic Common Aviation Area or a similar liberal regional agreement.                                        Several panelists agreed that a discussion of competition rules must not be neglected in the liberalization process. Some speakers raised concerns regarding the competitive impact of international airline alliances and suggested that competition authorities should not grant antitrust immunity in some circumstances. Some panelists said harmonized competition rules might be an appropriate path towards resolving conflicts in this area.                                        Panel members noted that the EU has successfully solved problems in some cases by allocating available landing and take-off slots at congested airports for the use of new market entrants. They said airport capacity constraints will continue to impede competition worldwide until there are adequate investments in new infrastructure or more radical methods, such as the elimination of airport slot systems, can be implemented.**U.S. TRANSPORTATION SECRETARY RODNEY E. SLATER:**                                        After participating in the three morning panel breakout sessions, the Secretary reconvened the conference to discuss the progress made towards achieving the conference goals and asked Australian Deputy Secretary of Transportation Peter Harris to report on the work of the panel on the Future of International Airlines in an Open Market Environment. Klaus Koplin, Secretary General of the Joint Aviation Authorities, followed Mr. Harris and summarized the views of the Aviation Safety and Security in the 21st Century panel. Finally, Jamaican Minister of Public Utilities and Transport Peter D. Phillips recapped the Global Airline Industry Competition panel discussion.**TUESDAY LUNCHEON KEYNOTE SPEAKER DONALD J. CARTY:**                                        Donald J. Carty, Chairman, President and CEO of AMR Corporation, presented a keynote speech on the importance of both open skies and competition.
"We think that’s (a multilateral open skies regime) a very positive notion, so long as the emphasis remains on open skies, and not on simply creating a new, multilateral regulatory body. Multilateral open-skies is a great long-term goal, but in building the platform for our collective success, government also has a very important short-term responsibility. As the transition to global free-market competition takes place, it needs to ensure that there is a level playing field between airlines—and increasingly, between airline alliances—under the existing system."

**U.S. TRANSPORTATION SECRETARY RODNEY E. SLATER:**                                        Participants conferred immediately after lunch to discuss the proposed*Conference Statement and Declaration for Next Steps.*Secretary Slater introduced the concept of a conference statement that contains a shared vision by assembled nations to work together to enhance aviation in the 21st Century. The statement reflects consideration of the final comments submitted and attempts to harmonize various views presented. The conference statement was adopted by unanimous acclamation.                                        Secretary Slater then proceeded to introduce the *Declaration of Next Steps*which expresses the common views of those countries that have signed open-skies agreements. It anticipates early movement toward follow-up on the work begun at this conference and enables the group to maintain the momentum that was started for establishing a new policy architecture for international aviation in the 21st Century.                                        Finally, states were invited to supplement the planned conference activities by meeting on a regional basis. Africa has taken the opportunity by providing a statement that lays the groundwork for future cooperation. The Statement of African Ministers, which makes recommendations for African nations to cooperate in developing Africa’s aviation system, calls for a plan of action and urges the support of the international community and organizations in assisting to restructure the African nation’s aviation system.                                        The Secretary began his closing remarks by stating,
"…in the speeches we heard from industry leaders, and in the comments made during panel sessions, the speed and breadth of change-and the need for governments to work even more closely with industry-became even more apparent. It is apparent that the policy architecture for international aviation in the next century and next millennium must include broad participation that extends beyond the structures that exist today."

                                        To move beyond the open-skies paradigm, groups of like-minded nations, whether represented by geographic regions or specific issues must seek to advance mutual collaboration in areas of common interests.                                        The Secretary concluded with this thought,
"Remember the words of two great men. First, Franklin Roosevelt, who urged participants at a conference in this very hotel 55 years ago to ‘work together so that the air may be used by humanity to serve humanity.’ Second, the words of L. Welch Pogue, whom we heard only yesterday, urge us to ‘seek to achieve all that we can, and not be deterred by that which we cannot achieve.’"

**CONCLUSION**                                        Secretary Slater thanked participating foreign delegates, Members of Congress, other U.S. government officials, and private industry representatives for making the conference a success. He urged everyone to continue to work to move beyond open-skies. He said,
"There is no single formula for moving beyond open-skies. All of the stakeholders in the air transport system of the future represented here today must work together if we are to get where we want to go. And we will have to broaden participation in this conversation even further, if we are to develop a true consensus"

The participants adopted a**Conference Statement**setting the goals for 21st Century aviation. The conference supported:
- the highest level of safety and security;   the most efficient movement of people and goods;enhanced comprehensive worldwide liability system;
- improved provisions on airline operations in bilateral aviation agreements;  expansion of opportunities for innovation and new business methods and the participation of private/business sectors, as appropriate, in the development and provision of transport infrastructure and services;sustained participation by developing countries in international air transport;
- assistance for developing countries in gaining access to affordable financing and in gaining safe, secure and effective access to international aviation markets;  increasing aviation trade while respecting environmental needs;due consideration for all environmental aspects of aviation and sustainable development;
- use of environmentally friendly aviation technologies to improve safety, security, and productivity;  new approaches; andhaving ICAO consider the global application of aviation advances.
The conference also adopted a**Declaration on Next Steps**, calling for continued exploration of the potential for aviation liberalization beyond open skies by building on the work of this Conference and other international efforts. The declaration set two goals for the follow-up initiative: First, to identify effective mechanisms to exchange opportunities among like-minded partners, including consideration of regional, multilateral and plurilateral systems, and second, to create a framework that will allow additional partners to join in such exchanges of opportunities.                                        The participants supported "early movement" toward an "enhanced operating environment" for international aviation services. "The discussion, which was begun at this Conference, to assess the options for eliminating barriers and introducing new opportunities for international services, must continue as soon as possible," the declaration read.                                        The *Aviation in the 21st Century—Beyond Open Skies* Ministerial concluded with a press conference.

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