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substantial proportion of the cost. These are believed to be confined to a few municipal aerodromes in the United States, where special sources of revenue are exploited extensively ; even there many of the technical services of the aerodrome are not included in the cost. There is very wide variation in the principles which are applied in different countries and at different aerodromes to this problem of charges and raising of revenue. Hence there is wide disparity in the charges which are levied on aircraft using aerodromes throughout the world. This has led to an investigation which the International Civil Aviation Organisation has put in hand. A comprehensive study of the whole problem is being made with a view to advising contracting States on the subject. Article 15 of the Chicago Convention prescribes that there shall be uniform charges for the use of aerodromes and air navigation facilities, including radio and meteorological services, as between national and other aircraft engaged in similar operations. This condition, which is applicable at international aerodromes, has a bearing on the principles governing charges at other aerodromes. 317. It is becoming clearly recognised that, although the cost of providing and operating aerodromes can not be fully recovered from the aircraft using the aerodrome, the system of charges should be related to the capacity of the user to pay, which may be measured in certain well-recognised ways. A study of this subject has recently been made by the Civil Aviation Branch in New Zealand. This study reveals thought in line with international thought on the subject. While not agreeing with some of the conclusions as to methods to be adopted, we commend this study to Government. 318. If our recommendation that Government should own and operate all the aerodromes required for the national system of air services be adopted, this problem becomes almost wholly one for Government; it is one of the important problems in the sphere of the Director of Civil Aviation. Even to-day, when the bulk of the expenditure on aerodromes, even though they may be municipally owned, is borne by Government, Government are concerned with the apportionment of charges and should receive proportionate revenue. To the extent that municipalities and others provide and operate public aerodromes, measures should be taken to secure that a uniform system is followed. 319. While it is right that the taxpayer should meet part of the costs of providing aerodromes and their ancillary technical and other services, it is equitable and in fact essential that the user —that is, the passenger, the consignor and the consignee of goods, the user of the air mail system, and the operator of private aircraft —should bear a fair proportion. Since scheduled air transport constitutes the principal air traffic using an aerodrome, charges should be fixed primarily in relation to air