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included, and the cost of facilities or premises exclusively leased or occupied and charged for
separately should be excluded.
iv) While airports should maintain cost data in sufficient detail to facilitate consultation, transparency and
economic oversight, it may be beneficial to develop more aggregated cost bases in certain
circumstances for the purpose of setting charges. However, the aggregation should be done in a
logical and transparent manner accompanied by safeguards, as appropriate, regarding consultation
and, where possible, agreements with users to avoid discrimination among users.
v) An allocation of costs should be considered in respect of space or facilities utilized by government
authorities.
vi) The proportion of costs allocable to various categories of users, including State aircraft, should be
determined on an equitable basis, so that no users shall be burdened with costs not properly allocable
to them according to sound accounting principles.
3. Guidance on accounting contained in the Airport Economics Manual (Doc 9562) may be found useful in this context, although there
are other approaches.
II. ICAO’s Policies on Airport Charges 9
vii) Costs related to the provision of approach and aerodrome control should be separately identified.
(Principles applicable to the recovery of such costs are addressed in paragraph 50.)
viii) Airports may produce sufficient revenues to exceed all direct and indirect operating costs (including
general administration, etc.) and so provide for a reasonable return on assets at a sufficient level to
secure financing on favourable terms in capital markets for the purpose of investing in new or
expanded airport infrastructure and, where relevant, to remunerate adequately holders of airport
equity.
ix) The capacity of users to pay should not be taken into account until all costs are fully assessed and
distributed on an objective basis. At that stage the contributing capability of States and communities
concerned should be taken into consideration, it being understood that any State or charging authority
may recover less than its full costs in recognition of local, regional or national benefits received.
Airport charging systems
31. The Council recommends that charging systems at international airports be chosen in accordance with the
following principles:
i) Any charging system should, so far as possible, be simple and suitable for general application at
international airports.
ii) Charges should not be imposed in such a way as to discourage the use of facilities and services
necessary for safety.
iii) Charges should be determined on the basis of sound accounting principles and may reflect, as
required, other economic principles, provided that these are in conformity with Article 15 of the
Convention on International Civil Aviation and other principles in the present policies.
iv) The charges must be non-discriminatory both between foreign users and those having the nationality
of the State in which the airport is located and engaged in similar international operations, and
between two or more foreign users.
v) Within their economic oversight responsibilities, States should assess, where necessary, the positive
and negative effects associated with specific forms of differential charges applied by airports on a
case-by-case basis according to national circumstances. Where differential charges are extended to
particular categories of users, States should ensure that they are transparent in terms of their creation,
purpose and the criteria on which they are offered; that, without prejudice to modulated charging
schemes, costs associated with differential charges are not allocated, either directly or indirectly, to
those other users not benefiting from them; and that, if the purpose is to attract and/or retain new air
services, they are offered only on a temporary basis.
vi) To avoid undue disruption to users, increases in charges should be introduced on a gradual basis;
however, it is recognized that in some circumstances a departure from this approach may be
necessary.
vii) Where charges are levied by different entities at an airport, they should, so far as possible, be
consolidated into a single charge or a very small number of different charges, the combined revenues
being distributed among the entities concerned in a suitable way.
ICAO’s Policies on Charges for
10 Airports and Air Navigation Services
viii) Maximum flexibility should be maintained in the application of all charging methods to permit
introduction of improved techniques as they are developed.
ix) Airport charges levied on international general aviation, including business aviation, should be
assessed in a reasonable manner, having regard to the cost of the facilities needed and used and the
　
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