893.796/2–1447
The Ambassador in China (Stuart) to the
Secretary of State
No. 488
Nanking, February 14,
1947.
[Received February 25.]
Sir: I have the honor to forward, in original and
hectograph, the text of a memorandum dated Janary 15, 1947 from Major
General John P. Lucas, Chief of the Army Advisory Group, Nanking, which
briefly outlines the status of civil aviation in China and makes
recommendations for its rehabilitation. This memorandum was prepared by
Brigadier General John P. McConnell, the Director of the Air Division, Army
Advisory Group, in response to an earlier request from General Marshall1 for a frank and
thoroughgoing survey with recommendations on this subject to be made
available to Generalissimo Chiang.2
The memorandum was translated into the Chinese language at the Embassy, and
on January 21, 1947 I handed a Chinese copy to the Generalissimo, who
received it gratefully and promised that he himself would read it
through.
On February 7 I met the Generalissimo again, and he informed me that he had
read the memorandum carefully and with much interest and subsequently had
despatched a copy to General Yu Ta Wei, Minister for Communications, for his
perusal and for the attention of Colonel Ango Tai, Director of the Civil
Aeronautics Administration. General Yu has been ill for the past fortnight
so that no reactions from him have been forthcoming, but Colonel Tai has
subsequently requested from General McConnell an English language copy of
the memorandum which has been supplied him. At his request an English
language copy was also given to T. V. Soong, President of the Executive
Yuan.
In the Embassy’s view this memorandum presents an accurate and wholly frank
criticism of the conditions under which air travel has been
[Page 1008]
operating in China, and its suggestions seem
entirely acceptable and constructive. There is no doubt that the numerous
air tragedies to which Chinese civil aviation has suddenly fallen victim in
recent weeks have thoroughly shaken the confidence which Chinese aviation
authorities previously displayed both publicly and in negotiations on
aviation matters. This confidence arose out of an underestimation of the
difficulties surrounding successful operation of modern aircraft, and was
reflected in the careless manner in which planes were being loaded and the
conditions—meteorological and navigational—under which they were permitted
to take off and to attempt to land. The coincidence of the recent accidents
and the delivery of this memorandum to the highest officials of the Chinese
Government is expected to result in a much more welcome reception for the
recommendations contained therein than could otherwise have been expected,
and it is hoped that some at first small-scale undertakings along the lines
suggested will soon be apparent.
In view of the reference on pages 7 and 83 of the
memorandum to the application of Pan American Airways for an Export-Import
Bank loan, it is suggested that a copy of this despatch and its enclosure be
supplied the Bank.
Respectfully yours,
For the Ambassador:
W. Walton Butterworth
Minister-Counselor of Embassy
[Enclosure]
Memorandum by the Director of the Air Division of the
Army Advisory Group (McConnell) to the Ambassador
in China (Stuart)
[Nanking,] 15 January 1947.
Subject: Civil Aviation in China
Purpose:
1. This memorandum will attempt to outline briefly the status of civil
aviation in China with particular attention to commercial airline
operations and facilities, and to make recommendations for the
rehabilitation of China’s commercial aviation.
Discussion:
2. In discussing China’s civil aviation system, it is borne in mind that
we are attempting to apply the most modern mode of commerce to a land
which, due to warfare and economic catastrophes, has been unable to
accept it.
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3. Efforts have been made by the Government to promote the development of
civil aviation in China, and some progress has been made. Rehabilitation
of CNAC4 during the past two years and establishment of
another commercial carrier in CATC5 has given the country a new start
in commercial aviation.
4. During the past year commercial aviation in China has established a
record of safe, efficient operation which is commendable, considering
the operational difficulties encountered. Recently, however, China’s
commercial aviation suffered catastrophes which were not only of
national consequence, but were felt in aviation circles throughout the
world. The loss of these commercial aircraft, and the attendant loss of
life, within a short period and under the existing circumstances points
to more than a mere accident.
[Here follows detailed discussion of elements involved in successful
operation of airlines in China.]
Conclusion:
9. In view of the foregoing, it is concluded that commercial aviation in
China is not satisfactorily organized, is improperly operated, is not
adequately supervised or regulated, is not soundly backed financially,
is not equipped with the necessary facilities to provide for safe and
efficient operations, is undesirably entangled with military aviation,
does not receive support and cooperation of military aviation and is
attempting a 1946 type of operation with 1926 type of facilities.
Remedies:
10. Commercial aviation in China can be brought up to satisfactory
standards by the institution of certain remedies. Some of these remedies
can be made applicable immediately, others within the reasonable near
future, and still others within a period of time from three to five
years.
-
a.
-
Immediate remedies:
- (1)
- The first remedial action which should be taken is the
establishment of a strong, well-organized, efficient Civil
Aeronautics Board. This Board should be composed of
personnel who are familiar with the requirements,
capabilities and limitations of commercial aviation. The
Board should not be made a part of any existing ministry or
department of the Government but should be responsible
directly to the President of China. It should be directed,
empowered, and backed with sufficient financial support to
- (a)
- Designate airways throughout China, to include
traffic control areas and a means of authority for
clearance of aircraft.
- (b)
- Install, maintain and operate adequate visual and
electronic aids to aerial navigation.
- (c)
- Eliminate duplication of such existing aids as are
now established.
- (d)
- Designate alternate airdromes for emergency use
and provide them with suitable equipment for this
purpose.
- (e)
- Establish limitations on personnel and equipment,
to include physical and professional qualifications
for crew members, maintenance standards for aircraft
and accessory equipment, close supervision of
passenger loads and weight balance of cargo.
- (f)
- Establish airways regulations and procedures to
include flight clearance off and on the airways,
approach procedures, control zones and traffic
patterns.
- (g)
- Establish and enforce flight regulations to cover
weather minimums, clearance authorities, minimum
altitudes, instrument approach procedures, accessory
aircraft equipment and pilot qualifications.
- (h)
- Take over and operate all of the weather
facilities within China as one central weather
agency, and make the necessary arrangements for
rehabilitation of weather equipment and the proper
dissemination of current weather information.
- (i)
- Establish, maintain and operate an adequate single
system of airways communications and eliminate the
present system of duplication, and in many cases
triplication, where these facilities are operated
under the supervision of CNAC, CATC, and the
CAF.6
- (j)
- Redesignate in conjunction with the CG, CAF,
certain military airdromes as civil airdromes
(however, this redesignation would not prohibit the
military from using the airdromes whenever
necessary).
- (k)
- Divorce civil aviation from military aviation but
require absolute coordination between the two, to
include reciprocal use of facilities.
- (l)
- Consolidate all existing airlines within China
under one management and one operational
control.
-
b.
-
Remedies which can be taken within the reasonable
near future:
- (1)
- The construction of a satisfactory network of modern
terminal airdromes and alternate landing fields, properly
equipped and suitably situated.
- (2)
- The rehabilitation of weather and communications
facilities to eliminate duplication, to do away with
obsolete equipment, and to install modern equipment and
efficient operating technique and procedures.
-
c.
-
Remedies which can be taken within the next three
to five years:
- (1)
- Replacement of all commercial obsolete aircraft operating
on civil airways with new modern, properly equipped and more
economical types of aircraft.
- (2)
- Expansion of China’s domestic airways system and
establishment of an international system.
Recommendations:
11. It is recommended
-
a.
- That a Civil Aeronautics Board be established under the direct
supervision of the President of China and separated from any
existing ministry or other agency of the Chinese Government to
discharge the function set forth in the foregoing. Among the
personnel of the Civil Aeronautics Board there should be a small
number of expert American advisors. It is my suggestion that the
President of China request the President of the United States
for the loan of an individual well-qualified in all aspects of
the operation of both commercial and military aircraft. This
individual should have the unqualified confidence of the
Generalissimo and the directive to the Civil Aeronautics Board
should include a provision to the effect that his advice would
be accepted and placed into immediate effect.
-
b.
- That civil aviation and military aviation be divorced from one
another but that close cooperation be assured in the use of
common facilities.
-
c.
- That all existing commercial aviation be consolidated under
one management, operating and controlling agency.
-
d.
- That a program be established for the construction of
satisfactory terminal airdromes and necessary alternate
airdromes, properly equipped and suitably situated.
-
e.
- That a program be established with sound financial backing for
the rejuvenation of the visual and electronic aids to operation
of aircraft.
-
f.
- That all weather agencies be consolidated under the Civil
Aeronautics Board.
-
g.
- That all existing airways communications facilities be
consolidated under the Civil Aeronautics Board.
-
h.
- That a program be established looking toward the retirement of
the present obsolete aircraft as they become unserviceable and
their replacement with modern and more economical
aircraft.
-
i.
- That China expand its commercial aviation into international
operations at the earliest possible moment.
J. P. McConnell
Brigadier General, USA
Approved:
John P. Lucas
Major General, USA
Chief, Army Advisory Group
