Fostering Competition: CCP study recommends divestment of GoP stake in PIA
By Sajid Chaudhry
ISLAMABAD: A study on the ‘Aviation Industry in Pakistan’, arranged by the Competition Commission of Pakistan (CCP), has recommended the government to reduce investment in the Pakistan International Airlines (PIA) in order to eliminate longer term discrimination in favour of PIA which acts as a barrier to entry for private airlines.
According to a new CCP study, the commission raised the issue of discrimination between PIA and private airlines in attribution of international air transport market access. The CCP recommended that the enactment of 2007 Draft Aviation Policy, which foresees equality of private airlines with PIA in attribution of international traffic rights. The CCP observed that the competitive distortion flowing from obligation of private airlines to pay penalty for non-provision of domestic, socio-economic or tertiary routes to PIA. It recommended that the enactment of 2007 Draft Aviation Policy, which eliminates this charge. Alternatively, any penalty should be payable to the government. This could be used to subsidize domestic operations by the most efficient and reliable applicant in a transparent tender process, rather than this subsidy automatically being channelled to PIA.
The commission also raised the issue of minimal participation of PIA in codesharing arrangements, non-participation of other Pakistani airlines in codesharing, and non-membership of any Pakistani airline to global alliances. The CCP recommended the enactment of provisions which facilitate integration at the operational level of Pakistani and foreign airlines. This should include provisions in bilateral air service agreements, permitting third country codesharing operations. Operational integration with third country airlines should help boost yields for Pakistani airlines and fuel growth.
The CCP further recommended that the government should review the possibility to further liberalize foreign investment in Pakistani airlines and that a study should be undertaken as to whether Pakistan could effectively regulate and ensure compliance with local standards of airlines, even if they were not majority owned and effectively controlled by Pakistani nationals. The issue is the elimination of service to Pakistan by European airlines reducing key trade and tourism routes.
The CCP recommended measures to secure airport areas and protect the integrity of aeroplanes, personnel and visitors in the immediate vicinity of aerodromes. The government should allow expansion of services through Gulf hubs as best alternative to frequent direct connectivity at least until a time at which local or direct carriers are in a position to provide enhanced international services to and from Pakistan. The CCP also raised the issue of efficiency of expertise on ancillary issues, including; competition, safety, and environmental impacts of air transportation. The CCP recommended inclusion of government cooperation clauses in bilateral air services agreements foreseeing the exchange of information and collaboration with partner States on ancillary air transportation issues, in order to achieve coordinated best industry practices. There is a need to protect international services through the maintenance of highest categorization in audits carried out by government and ICAO, including post-liberalization. The CCP recommended continued dedication to improving independent and transparent regulatory functions of the Civil Aviation Authority, with requisite government investment in personnel and training.
On the issue of caution against anticompetitive practices in a deregulated aviation environment, the CCP recommended the ongoing proactive tracking of airline policies and practices. The CCP report said that the Pakistan’s international aviation sector is not as strong as it could or, arguably, should be. Of three Pakistani international carriers, two are quasi-exclusively focused on the regional Gulf market. The flag-bearing Pakistan International Airlines remains over 89% government owned. It operates low frequencies to a high number of international destinations and has shown little predisposition to integrating into the modern global commercial context by way of alliance membership or code-share agreements. On the large majority of its international routes PIA faces no direct competition, yet the airline continues to amount losses. Improved connectivity would be positive for the local population and the broader Pakistani economy. It is thus important to establish a framework to generate growth, as has been enjoyed in other countries such as India.
The CCP said that the emphasis should be placed on the need to allow growth of existing and the entry of new Pakistani carriers. Capacity is lacking in the Pakistani aviation sector, with the Gulf expanding seat capacity exponentially and international carriers withdrawing from Pakistan - action is required, otherwise, Pakistan will end up representing a country-spoke of the Gulf networks. Fleet renewal is also key to PIA’s economic performance, the current inhomogeneous fleet of 40 aircraft has an average age of 13 years (compared with 5-6 years for Emirates and Singapore Airlines, and over half of the PIA fleet is older than 23 years. These aircraft hinder PIA since they generate expenses due to inefficient energy usage and high maintenance, repair and overhaul (MRO) costs, and they are also less attractive to the flying public, and especially premium paying passengers. The lack of capacity and the need for fleet regeneration can only be addressed by the promotion of policies attracting domestic investment and FDI into Pakistani airlines, one step is to cut and eventually eliminate all foreign ownership restrictions. Investigation should also be undertaken into how to ensure the flow of FDI into Pakistani airlines as effectively as it has reached upstart enterprises in India. Foreign carriers should moreover promote international air service into Pakistan. Key routes should be identified by study of the destination of transfer passengers connecting to Pakistan through the Gulf region. These should help identify areas where stand-alone service would be sustainable and reciprocal traffic rights should be exchanged with those territories. Daily service between international points should be targeted. Daily services are the only way Pakistani carriers will be able to compete effectively for passengers, and especially premium passengers, with the Gulf carriers who serve a multitude of destinations, many on a multiple daily frequency basis.
The PIA’s structure of serving many points weekly is inept to passenger needs and the orientation of the global business. As more frequent service to key destinations may necessitate reduction of destinations – at least in the short term – it will become essential for carriers to enter into cooperative arrangements with third country airlines to serve a greater number of destinations. As such, provisions on code-share and other airline cooperative arrangements should be prioritised in bilateral air service negotiations.
In order to protect the provision of international air services from and into Pakistan, it is essential that the country retain high standing in the fields of safety and security. Audits, be they by ICAO, the United States, the European Union, or any other entity, must show compliance with international norms. Failure to comply therewith can lead to denial of service by foreign States, or if the security of all flights is compromised, the blacklisting of Pakistan as an aviation partner, CCP study added.