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operations of the autonomous airports and ANSPs, or it might be separately established.
I. General 7
Other factors affecting the economic situation
of airports and air navigation services
27. The Council notes that a number of additional factors are likely to exert an important influence on the
organization and economic development of airports and air navigation services. These include the growing liberalization
of air services, air carrier concentration including mergers and alliances, changes in approaches to financing with
airports (in particular) and ANSPs being expected to assume primary responsibility for financing investments in their
infrastructure requirements, capacity management, airport and airspace congestion, and environmental concerns. Also,
the number of autonomous entities operating airports or air navigation services is expected to increase. This is resulting
in more situations where an airport is operated by a different entity from that providing air navigation services (both
approach and aerodrome control and route air navigation services). Also, additional resources will be required to deal
with the problem of airport and airspace congestion, and to implement satellite-based communications, navigation and
surveillance (CNS) and air traffic management (ATM) systems, based on the Global ATM Operational Concept, as well
as other multinational facilities and services, and other improvements in infrastructure.
28. The Council observes that under these circumstances many airports and ANSPs may find it necessary to
increase their charges and in the case of airports place greater emphasis on further developing revenues from
non-aeronautical sources. However, recognizing that users face restrictions with regard to their choice of particular
airports and of routes to be flown, the Council recommends that caution be exercised when attempting to compensate
for shortfalls in revenue and that account be taken of the effects of increased charges on air carriers which may need to
adjust their tariffs to deal with increases in costs arising from higher charges. The Council also considers that there
should be a balance between the respective interests of airports and ANSPs on one hand and of air carriers on the other,
in view of the importance of the air transport system to States and its influence in fostering economic, cultural and social
interchanges between States. This applies particularly during periods of economic difficulty. The Council therefore
recommends that States encourage increased cooperation between airports and ANSPs and air carriers to ensure that
the economic difficulties facing them all are shared in a reasonable manner.
— — — — — — — —
8
II. ICAO’S POLICIES ON AIRPORT CHARGES
The cost basis for airport charges
29. The Council considers that as a general principle it is desirable, where an airport is provided for
international use, that the users shall ultimately bear their full and fair share of the cost of providing the airport. It is
therefore important that airports maintain accounts that provide information adequate for the needs of both airports and
users and that the facilities and services related to airport charges be identified as precisely as possible. In determining
and allocating the total cost to be met by charges on international air services, the list in Appendix 1 may serve as a
general guide to the facilities and services to be taken into account. Airports should maintain accounts that provide a
satisfactory basis for determining and allocating the costs to be recovered, should publish their financial statements on a
regular basis and should provide appropriate financial information to users in consultations.3 Moreover, the Council
recommends that States consider the application, where appropriate, of internationally accepted accounting standards
for airports.
30. The Council also states that in determining the cost basis for airport charges the following principles should
be applied:
i) The cost to be shared is the full cost of providing the airport and its essential ancillary services,
including appropriate amounts for cost of capital and depreciation of assets, as well as the costs of
maintenance, operation, management and administration, but allowing for all aeronautical revenues
plus contributions from non-aeronautical revenues accruing from the operation of the airport to its
operators.
ii) In general, aircraft operators and other airport users should not be charged for facilities and services
they do not use, other than those provided for and implemented under the Regional Air Navigation
Plan.
iii) Only the cost of those facilities and services in general use by international air services should be
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