The Passenger Protection Gap
Since ICAO first introduced its Core Principles on Consumer Protection in 2015, the aviation industry has transformed rapidly through new technologies, evolving business models, and rising cross-border traffic. These developments have made it increasingly difficult for national policies to keep pace, and many travelers now encounter gaps in support when their journeys move across different regulatory systems.
Modern travel contracts frequently involve multiple intermediaries. When disruptions occur, responsibility can be unclear, and the information provided is often contradictory or confusing. In some cases, even robust national rules fall short if they are not embedded within coordinated contingency plans or fully aligned with international obligations.
Differences in how countries apply the rules create further uncertainty for passengers, regulators, and airlines alike. As passenger volumes grow and operations become more complex, inconsistent policies will erode trust and weaken the integrity of the global aviation system as a whole.
Six Key Improvements for Air Travel
ICAO is calling for decisive, coordinated action by governments. First and foremost, it urges all governments to become parties to the Montreal Convention 1999* on passenger rights, as this treaty establishes the global legal baseline. Forty-eight ICAO Member States have yet to accede.
However, ICAO expects governments to go well beyond reinforcing this foundation. At the Worldwide Air Transport Conference this November, ICAO is asking all governments to support the following improvements to the international passenger rights framework:
- Consistency across borders: Greater harmonization of consumer protection frameworks will help ensure travelers receive consistent treatment throughout their journey.
- Aligned national policy: Countries are encouraged to adopt ICAO's Core Principles, integrate them into domestic law, and share their experiences—both successes and shortcomings—with other governments.
- Clear division of responsibility: Legislation should define the roles of all participants in the travel chain—airlines, intermediaries, and airports—to eliminate confusion.
- Timely, accurate information: Passengers must understand their rights and know where to seek assistance, particularly when disruptions arise.
- Integrated emergency planning: Consumer protection policies must be linked to contingency plans so that responses are coordinated and care is delivered without delay.
- Regular information sharing: Open communication and the use of ICAO platforms help identify and resolve issues as they emerge, keeping standards effective and current.
ICAO is also asking governments to support its efforts to deliver updated guidance and expanded technical assistance to Member States. Strengthening opportunities for the exchange of best practices among governments remains a priority, as it will enable countries with differing legal systems to find practical ways to reinforce their protections.
What Governments Must Do Now
With ICAO convening all parties in Montreal and providing clear leadership on the path forward, governments must work together to reach consensus on how to adopt and implement these priorities. Each country must then ensure its framework and rules align with the commitments its government makes at the Worldwide Air Transport Conference. In doing so, the improvements agreed upon at the Conference will make air travel smoother, more reliable, and fairer for travelers worldwide. This alignment will also be essential to securing a vibrant and prosperous future for international civil aviation and the people and industries it serves.
* Convention for the Unification of Certain Rules for International Carriage by Air, adopted in Montreal in 1999.
