Abstract: Article 38 of "Regulations on the Administration of Civil Airports" provides for the airport franchise, and provide theoretical support and legal basis for airport profit-making project operation. However, due to the profit-seeking nature of the market players and the ambiguity of the legal regulations, the airport management agencies not only did not divest non-aeronautical businesses, but participated in various business operations in various forms. The law needs to clarify the non-profit nature of the airport management agency, delineate the business scope of the airport management agency, and transfer the non-aeronautical business as the statutory obligation of the airport management agency. At the same time, the civil aviation administrative department should also formulate corresponding supporting measures to urge the airport management agency to fulfill their legal obligations.