The Zhitong Finance App learned that on October 8, the Civil Aviation Administration issued the “Domestic Flight Evaluation and Optimization Measures”, which proposed implementing regulation based on indicators such as number of carriers, passenger occupancy rate, and passenger traffic volume in terms of flight segment market access to guide carriers to rationally enter the flight segment market and promote orderly allocation of resources; in terms of flight volume management, further improve review indicators and provide backbone network and basic network route support measures to guide airlines to rationally arrange capacity investment; in terms of operating license management, it is clear that flights continue to meet license conditions, execute rate calculation, and actively return flights and active attention Requirements such as sales incentives and operation efficiency supervision will improve the management and exit mechanism of airline operating licenses.
The original text is as follows:
Notice of the Civil Aviation Administration of China on Issuing “Domestic Flight Evaluation and Optimization Measures”
Regional civil aviation authorities, transport airlines, and airport companies:
In order to thoroughly implement the relevant requirements of the State Council to promote the high-quality development of the civil aviation industry, implement the “Guiding Opinions on Promoting the Construction of International Aviation Hubs”, further improve the efficiency of allocation and use of domestic flight resources, and make every effort to build a high-quality and efficient air transport service system, the Civil Aviation Administration has formulated the “Domestic Flight Evaluation and Optimization Measures”. It is being issued now, so please follow it carefully.
Civil Aviation Administration of China
September 8, 2026
Domestic flight review optimization measures
In order to earnestly implement the relevant policy requirements to promote the high-quality development of the civil aviation industry, focus on building an aviation hub function system and domestic air transport backbone network and infrastructure network construction goals, thoroughly rectify “internal rolling” competition, and further enhance the scientific and refined level of domestic flight resource allocation, this measure was formulated in accordance with the “Civil Aviation Law of the People's Republic of China” and “China Civil Aviation Domestic Route Operation License Regulations” (CCAR289TR-R1, hereinafter referred to as the “Business License Regulations”).
I. Flight segment market access
According to the requirements of air transport market supervision and macro-control, indicators such as number of carriers, passenger occupancy rate, and passenger traffic volume are comprehensively used to optimize domestic passenger transport market access management.
(1) Carrier quantity classification management
The multi-carrier flight segment market is divided into backbone and basic network markets. Among them, basic networks are divided into two categories: airport segments that do not involve passenger throughput of 2 million passengers or less and airport segments involving passenger throughput of 2 million passengers or less. The average number of carriers in each market is used as the evaluation target value. If the number of carriers in the flight segment reaches the target value, new carriers are suspended; if the target value is not reached, airlines are allowed to enter in an orderly manner. When an airline's application involves a license to operate a route in a flight segment, it is not considered a new carrier for that flight segment and shall be executed in accordance with the provisions of section (7) of these Measures.
Within the 4 flight seasons from the date of implementation of this measure (until the 2028 summer and autumn season), the main hub operator applying to open the starting flight segment of its aviation hub and the main base airline applying to open a flight segment departing from the main base to a non-international aviation hub are not limited by the number of carriers.
(2) Requirements for the number of new carriers
During each centralized review, a flight segment that complies with the “China Civil Aviation Domestic Flight Evaluation Rules” (Civil Aviation Regulation (2024) No. 26, hereinafter referred to as the “Evaluation Rules”) and the relevant provisions of this measure can be added by 1 new carrier, and the number of new flights added by the new carrier must not exceed 14 flights/week. When there is more than 1 eligible airline, they are determined in the following order:
Priority support is given to carriers operating suspended routes between international aviation hubs to adjust suspended routes to direct flights. Carriers applying for adjustment to direct flights shall simultaneously return the original suspended route operation license;
Support the main hub operator to sequentially open the starting flight segment of the airline hub where it is located, and the main base airline to open the flight segment from the main base to the non-international aviation hub;
According to the “five rate” score and the scheduled flight plan execution rate score as stipulated in the “Evaluation Rules”, the airline with the highest weighted score is given priority to supporting airlines with the highest weighted score;
If the evaluation results cannot be determined according to the above indicators, they will be determined in order of application time.
(3) Protection measures during the market development period
Implement protection measures during the market development period for single-carrier flight segments involving airports with a passenger throughput of less than 2 million passengers. Airport passenger throughput is based on the data referred to at the time of application; if the airport passenger throughput exceeds 2 million passengers during the cultivation period, it will not affect the confirmed eligibility for protection during the market development period.
Beginning with the 2026/27 winter and spring season, new incoming and flying carriers can apply for protection during the market development period. After review by the Civil Aviation Administration and the Civil Aviation Regional Administration, it is publicized in the relevant system. If there is no objection to the publication, it is confirmed that protection will be granted during the market development period. No new carriers will be approved for 2 years from the date the application is confirmed. Newly put into use airports are not eligible for market development period protection for 2 years from the date they are put into use.
During the training period, flight carriers should maintain stable operation of routes and must not interrupt flights for no reason. If the number of flights falls below 2 flights/week for 4 consecutive weeks due to company reasons, it is considered an automatic waiver of protection, and 0.1 points will be deducted from the “five rate” score for each route.
The flight carrier can apply for withdrawal protection. After confirmation by the Civil Aviation Administration and the Civil Aviation Regional Administration, it will be announced in the relevant system. If you apply for protection again after exiting, 0.1 points will be deducted from the “five rate” score for each route.
After the training period expires, until the passenger occupancy rate of the flight segment reaches 90% and the passenger traffic volume of the flight season reaches the average value of the single carrier segment market industry, on the premise of complying with the “Evaluation Rules” and other provisions of this measure, no more than 14 new flights per week per season will be added, giving priority support to flight carriers to increase flight volume. If the flight carrier applies to increase the number of flights to 14 flights/week, no new carriers will be added; if the flight carrier has not applied for an increase in the number of flights or the number of additional flights is less than 14 flights/week, it is possible to add 1 new carrier within the margin. Once a new carrier has entered, this flight segment is no longer protected.
(4) Passenger occupancy rate and passenger traffic indicators
The multi-carrier flight segment market is divided into five categories of flight segments between international aviation hubs, between international aviation hubs and regional aviation hubs, between regional aviation hubs, between aviation hubs and non-aviation hubs, and between non-aviation hubs. The average passenger occupancy rate of each flight segment or industry opinion is used as the target value for passenger occupancy rate evaluation. At the same time, a passenger traffic index for the flight segment market was introduced, classified according to the number of carriers in the flight segment, and the average passenger traffic volume for the same flight segment was used as the evaluation target value.
Airlines are allowed to enter in an orderly manner on the basis of compliance with the “Evaluation Rules” and the relevant provisions of this measure for flight segments that meet the passenger occupancy rate or passenger traffic volume assessment target values. New carriers will be suspended on flight segments where neither passenger occupancy rate nor passenger traffic volume have reached the target values of the review.
Within the 4 flight seasons from the date of implementation of this measure (until the 2028 summer and autumn season), the main hub operator applied to open the starting flight segment of its aviation hub, and the main base airline applied to open the flight segment from the main base to the non-international aviation hub. If the number of carriers in the relevant flight segment reached the target value of the review, there are no restrictions on passenger occupancy rate or passenger traffic volume.
(5) Infrastructure network development support policy
Airlines are encouraged to enter flight information on the “Domestic Transit Flight Service Management Platform” and actually implement it, actively carry out domestic flight services, and improve the level of transit facilitation services. According to the calculation, the actual volume of transit flights carried out during the same season accounts for the company's overall actual domestic flight volume and the total number of flights actually carried out. When the top 3 airlines are new carriers, each company can apply for 2 flight segments to be exempted from passenger occupancy rate and passenger traffic. Exempted flight segments of the same airline are not counted twice.
II. Flight volume management in flight segments
(7) Passenger occupancy rate control
Guest occupancy rate reviews are carried out in accordance with the standards of Article (4). If the passenger occupancy rate does not reach the target value of the review, approval to increase the number of flights will be suspended; if the target value of the review is reached, the carrier may apply to increase the number of flights on the premise that it complies with the “Evaluation Rules” and other provisions of this measure. During each centralized review, each carrier applied for no more than 14 flights per week per flight segment, and no more than 3 carriers approved for each flight segment to increase the number of flights.
When there are more than 3 carriers applying to increase the number of flights in the same flight segment, priority is given to supporting airlines with high weighted scores based on the “five rate” score stipulated in the “Evaluation Rules” and the airline's 50% weighted implementation rate score for the scheduled flight plan on the route involved in that flight segment. If the evaluation results cannot be determined according to the above indicators, they will be determined in order of application time.
(8) Air Express Line Support Policy
For flight segments between international aviation hubs, international aviation hubs and regional aviation hubs that do not meet the domestic express flight standards (168 flights per week), priority is given to supporting main hub operators and main base airlines to encrypt flight frequencies in order. When there are more than 3 carriers with priority support, it is determined in accordance with section (7) (2).
(9) Backbone route support policy between regional hubs
Priority is given to supporting main base airlines to increase flight volume in an orderly manner for segments where the number of flights between regional air hubs does not reach 56 flights/week. If none of the airports involved in the route have a main base airline, priority support is given to the top two airlines in terms of actual flight volume at each airport in the same season. When there are more than 3 carriers with priority support, it is determined in accordance with section (7) (2).
(10) Branch market development support policy
Carriers applying to increase the number of flights on an airport segment with an average weekly average of less than 14 flights and a passenger throughput of less than 2 million passengers may be exempted from passenger occupancy review.
(11) Domestic flight support policy
The carrier's actual domestic flight volume and domestic flight volume account for the company's overall actual domestic flight volume and the top 3 airlines respectively. When increasing the number of flights, they can apply for 2 flight segments to be exempted from passenger occupancy rate reviews each season. Exempted flight segments of the same airline are not counted twice.
(12) Support group companies to strengthen route network coordination
Support group companies to strengthen route network coordination. In a flight segment where the number of carriers has reached the standards of section (1), if one carrier within the group company withdraws from the flight segment, the other flight carrier may be exempted from various review requirements by increasing the number of flights on that flight segment. The additional flight volume shall not exceed the number of flights handed over when the same group carrier exits the flight segment.
When a carrier exiting a flight segment applies again for a license to operate a route involving that flight segment, the “five rate” score will be deducted by 1 point. Applications to which this provision has already been applied shall not apply the incentives provided for in section (18) of these Measures.
III. Flight planning
(13) Flight planning
Airlines can flexibly arrange the frequency of flights according to the actual situation in the market.
(14) Optimizing the flight plan filing process
Improve information system support and guarantee capabilities, optimize domestic flight management procedures, further shorten the filing time limit for scheduled flight plans, and standardize approval procedures for irregular flight plans.
IV. Withdrawal of business license
(15) Continued compliance with license conditions
The route operation license held by the airline shall be consistent with the business scope specified in its “Public Air Transport Enterprise Operation License”. If the relevant route operating license exceeds its business scope due to a change in the scope of business specified in the “Public Air Transport Enterprise Operating License”, the airline shall voluntarily apply for cancellation of the corresponding route operation license within 1 month from the date of the change in the scope of business.
(16) Flight execution rate calculation
Route operating licenses are applied for and issued separately according to the season. The 2026/27 winter and spring season change is a policy transition period. All routes are converted according to the maximum flight volume of the previous two seasons, and are assigned to the winter and spring seasons and summer and autumn seasons respectively. In subsequent season changes, the number of flights on each airline's route will change according to the flight volume specified in the same season license above. The increments for the winter and spring season applications are only used for the winter and spring season, and the incremental amounts for the summer and autumn season applications are only used for the summer and autumn season.
The Civil Aviation Administration monitors the implementation of airline route operating licenses. The license execution rate is monitored by route and calculated on a monthly basis. The formula is “month (actual number of flights executed + number of exempted flights)/number of permitted flights approved in that month × 100%”. The license execution rate is managed on a seasonal basis. Exemptions are implemented in accordance with the relevant provisions of the “Evaluation Rules”, and the license execution rate is exempted during the Spring Festival travel season.
(17) Voluntary return of route operating permits and flight volume
The Civil Aviation Administration and the Civil Aviation Regional Administration accept applications for cancellation of route operating licenses and return of flight volume on a monthly basis, except during seasonal changes and centralized processing of route flight applications during the mid-season period. The airline may return the route operating license or flight volume during the processing period.
Where an application is made for a license to operate a route, the airline shall indicate in the application the date of cancellation. The proposed cancellation date shall not be more than 2 months from the date of submission of the application for return. For routes that have returned their operating license, the “five rate” score will be deducted 0.3 points if the airline repeatedly applied during the most recent review of the same type of flight season.
For those applying for the return of the flight volume, execution of the corresponding flight volume will be suspended from the date of approval; for routes that have already returned the flight volume, if the airline repeats the application during the most recent review of the same type of flight season, the “five rate” score will be deducted 0.1 points.
Cancel the approval rate assessment for airline license applications.
(18) Incentives for voluntary cancellation of route operating licenses
In order to encourage airlines to optimize their capacity layout, if an airline voluntarily cancels an operating license on a flight segment that meets the requirements for the number of carriers in section (1), it may be exempted from passenger occupancy rate and passenger traffic volume reviews when applying for a license to operate a new route within the same flight season. The specific standards are as follows:
If the number of carriers in the flight segment reaches the target value and is less than 10: for each route cancelled, 2 new flight segments may be added to the flight segment that meets the requirements for the review of the number of carriers in section (1);
If the number of carriers in the flight segment is 10 or more: for each route cancelled, 4 new flight segments may be added to the flight segment that meets the requirements of section (1) to review the number of carriers.
If a new carrier is applied for after the license has been cancelled, the ranking rules specified in section (2) shall apply.
(19) Measures to supervise the efficiency of route flight operation
Except due to force majeure, if an airline experiences any of the following circumstances, the Civil Aviation Administration or the Regional Administration of Civil Aviation shall order rectification within a limited period of time; if the license conditions are overdue, the relevant route operation license shall be revoked. During the rectification period, airlines can apply for cancellation of the route operation license.
After obtaining a new route operation license, no flight plan has been arranged within 3 months from the planned date of commencement;
For their own reasons, the license execution rate for any season is less than 50%, with the exception of solo flights;
In the flight segment where the number of carriers met the criteria for evaluating the number of carriers in section (1), the license execution rate for two consecutive seasons ranked last, and the license execution rate was below 85%.
(20) “Five-rate” point deduction rules
If an airline occurs in the circumstances listed in section (19), a deduction item is included in the calculation of the “five rate” score, and deducted according to the following standards:
If you voluntarily apply for a license to terminate the operation of a route during the rectification period, the “five rate” score of 0.1 points will be deducted for each route;
If you did not voluntarily apply for termination and did not meet the license requirements even after the rectification, resulting in the cancellation of the route's license, the “five rate” score of 0.2 points will be deducted for each route.
5. Supplementary Provisions
The “main base” referred to in this measure refers to the main operating base airport specified in the operating license of a public air transport enterprise and the main base airport specified in the “Notice Concerning Matters Relating to the Beijing New Airport Airline Base Construction Plan” (Civil Aviation Development (2016) No. 50). According to policies relating to aid to Tibet, when Tibet Airlines applies for routes in and out of Chengdu, routes from Chengdu to relevant provinces and cities, and routes from Chengdu to relevant airports in the four provinces of Sichuan, Yunnan, Gansu, and Qinghai, it is considered the main base airline for Chengdu Shuangliu Airport.
When the same city has two or more airports, an operating license is issued in accordance with the “same market” principle. The registered flight plan should indicate the specific airport.
The “main hub operator” referred to in this measure refers to an airline selected and determined by the Civil Aviation Administration in accordance with the “Guiding Opinions on Promoting the Construction of International Aviation Hubs” (Civil Aviation Development (2024) No. 28) and related supporting documents, taking into account factors such as airline security capabilities and operational efficiency, and dynamically adjusted in accordance with relevant rules.
The “backbone network” referred to in this measure refers to routes between hub airports, and “basic network” refers to routes other than the backbone network.
A “carrier” referred to in this measure refers to an airline that actually operates a direct flight route in the corresponding flight segment during the same flight season, and an airline that has obtained a license to operate the route for that flight segment during the current season; except where the route operation license has been cancelled.
This measure is implemented in conjunction with the “China Civil Aviation Domestic Flight Evaluation Rules”. If the content of the two is inconsistent, this measure shall prevail.
The Civil Aviation Administration is responsible for interpreting this measure.
This measure will be implemented as of the 2026/27 winter and spring season change.
This article was selected from the “Civil Aviation Administration” official website, Zhitong Finance Editor: Xu Wenqiang.