NINETEENTH CONGRESS 
) 
REPUBLIC OF THE PHILIPPINES ) 
First Regular Session 
) 
HOUSE OF REPRESENTATIVES 
Introduced by Representative Rufus B. Rodriguez 
House Bill No.  _____ 
EXPLANATORY NOTE 
Last 2012, the then Department of Transportation and Communications and the 
Department of Trade and Industry issued Joint DOTC-DTI Administrative Order No. 1 Series 
of 2012, otherwise known as the “Air Passenger Bill of Rights. The Joint AO seeks to provide 
full, clear and accurate information to the passengers on the services offered by air carriers 
and the terms and conditions of the contract of carriage, protection from being bumped off, 
and right to compensation in case of cancellation or delay of flights. 
This was in response to the worsening situation of flight delays and cancellations 
where the airlines are not even made liable in any way.  
Despite the Joint AO, there are still numerous instances of delays and flight 
cancellations. While the services and the response of the airlines improved, there is still a long 
way to go. And while it is good that we have an AO in place, there is still a need to 
institutionalize the same into legislation.  
In view of the foregoing, immediate approval of this measure is earnestly requested. 
RUFUS B. RODRIGUEZ 
May 3, 2023
4:06 pm
7925


NINETEENTH CONGRESS 
) 
REPUBLIC OF THE PHILIPPINES ) 
First Regular Session 
) 
HOUSE OF REPRESENTATIVES 
Introduced by Representative Rufus B. Rodriguez 
House Bill No.  _____ 
AN ACT 
PROVIDING FOR THE PROTECTION OF THE RIGHTS OF AIRLINE PASSENGERS AND 
PENALIZING ACTS IN VIOLATION THEREOF 
Be it enacted by the Senate and House of Representatives of the Philippines in Congress 
assembled:  
CHAPTER I 
GENERAL PROVISIONS 
SECTION 1. Short Title. – This Act shall be known and cited as the “Air Passenger Bill of 
Rights Act”.  
SEC. 2. Declaration of Policy. – It is hereby declared the policy of the State to promote the 
welfare of airline passengers and strengthen the regulatory framework that will ensure safe, 
efficient, convenient and secure services to the riding public in civil aviation. The State shall 
pursue a policy mandating full disclosure of all aspects relating to the contract of air carriage. 
The State shall adopt the generally-accepted principles of relevant international laws to which 
the country is a signatory. Pursuant thereto, the State shall penalize any act of air carriers 
which violates the rights of air passengers as defined under this Act. 
SEC. 3. Definition of Terms. – As used in this Act: 
(a) Air Carrier refers to an airline providing transportation services in a contract of air
carriage;
(b) Baggage refers to any personal property carried by the passenger which has been
checked-in with the airline. Off-loaded Baggage refers to checked baggage but has either not
been put in or been subsequently removed from the cargo hold of the carrier;
(c) Cancellation refers to the act of calling off a flight. This shall include the following instances:
1) Cancellation by the air carrier before the estimated time of departure (ETD) whether
or not the reason for the cancellation is due to the air carrier’s fault;
2) Cancellation by the air carrier after an unduly long delay; and
3) Cancellation by the passenger or a situation deemed cancelled as provided under
this Act.
(d) Check-in Deadline refers to a reasonable point in time before the published ETD as may
be prescribed by the Civil Aeronautics Board (CAB) at which a passenger may physically
present travel documents to the air carrier at the latter’s check-in counter;
(e) Check-in Period refers to the time when the air carrier’s check-in counters are open for
accepting and processing passengers checking in for their flights which starts at least two (2)
hours before the ETD in international airports and in airports designated by the Department of
Transportation and Communications (DOTC). In other airports, the check-in period shall start
at least one (1) hour before the ETD;
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(f) Confirmed Reserved Seat refers to a seat on a specific date and on a specific flight and
class of service of a carrier, which has been requested by a passenger, and which the carrier
or its agent has verified, by appropriate notation on the ticket, as being reserved for the
accommodation of the passenger;
(g) Convention refers to the applicable international agreement, convention, or treaty on
carriage of goods or persons by air;
(h) Delay refers to the deferment of a flight to a later time. Terminal delay refers to a delay that
occurs while passengers are still inside the terminal waiting for boarding, while tarmac delay
is a delay that occurs while passengers are already on board the aircraft;
(i) Denied Boarding refers to a situation where a passenger who has physically presented
travel documents pertaining to a confirmed seat reservation at the proper time and place, and
has fully complied with the carrier’s check-in reconfirmation procedures, and the carrier’s tariff
requirement, was not allowed to board the aircraft;
(j) Denied Check-in refers to a situation where a passenger, who has physically presented
travel documents to an air carrier’s check-in counter checked in at the appointed area and at
the appointed time, is denied or is not processed for boarding a particular flight;
(k) Fare refers to the payment in consideration for the carriage of a passenger but shall not
include charges for ancillary services. Regular fare is any fare that is offered on a regular
basis, is nondiscounted, and offers the advantage of cancellation, changing flight time or
schedule, rerouting, or rebooking, by the passenger, whether for a fee or penalty, or not.
Promotional fare is any fare that is generally lower than a regular fare and is offered for a
specific period. This includes offers of “no frills” fare, wherein the nonessential features for
flights such as free food and drinks onboard flights have been removed to keep the price low,
and discounted fares which require prior approval by the CAB;
(l) Free Tickets refer to tickets provided by carriers to passengers, tickets available for free to
employees, and tickets claimed based on mileage, which do not have confirmed status, are
subject to space availability, and do not qualify as either regular or promotional fare;
(m) General Sales Agent means a person who is not a bonafide employee of an air carrier,
and who as authorized by the air carrier, by itself or through an agent, sells or offers for sale
any air transportation, or negotiates for, or holds out by solicitation, advertisement or otherwise
as one who sells, provides, furnishes, contracts, or arranges for, such air transportation;
(n) Government Requisition of Space refers to a formal request by the government or its
agencies to an air carrier for the use of an aircraft, or any part thereof, for regulatory, safety,
security, and emergency purposes. Such request shall be submitted by the requesting agency
to the CAB which, in turn, shall make a request to the air carrier concerned, detailing the
number, identities and affiliation of the persons requesting for space and the date, time and
destination of the flight;
(o) No Show refers to the failure of the passenger to appear at the check-in counter within the
check-in deadline or to show up at the boarding gate at the time indicated on the boarding
pass;
(p) Non-scheduled Services refer to an arrangement where an aircraft has more flexibility in
terms of time, schedules, routes, and choices of airports and similar operational characteristics
subject to the approval of the Civil Aviation Authority of the Philippines (CAAP) each time;


(q) Overbooking refers to the practice by air carriers of selling confirmed reserved seat beyond 
the actual seat capacity of the aircraft. This shall include a situation wherein an air carrier 
downgrades an aircraft for grounds other than safety or unforeseen operational reasons that 
results in the bumping off of passengers;  
 
(r) Passenger refers to a person actually travelling by air. A person who is named in the flight 
ticket shall be considered a passenger for the purpose of this Act;  
 
(s) Person with Disability or PWD refers to those who have long-term physical, mental, 
intellectual or sensory impairments, which, in interaction with various barriers, may hinder their 
full and effective participation in society on an equal basis with others;  
 
(t) Philippine-based air carrier refers to an air carrier holding a Certificate of Public 
Convenience and Necessity (CPCN) or a Temporary Operating Permit (TOP) issued by the 
CAB for scheduled or non-scheduled services;  
 
(u) Sales Promotion refers to the techniques intended for broad consumer participation which 
contain promise of gain, such as prizes, in cash or in kind, as reward for the purchase of a 
product, security, service or winning in a contest, game, tournament, and other similar 
competitions which involve determination of winner/s and which utilize mass media and 
widespread media of information. It also means techniques purely intended to increase the 
sales, patronage and goodwill of a product; and  
 
(v) Scheduled Services refer to an arrangement wherein an air carrier follows a fixed, regular, 
and published timetable and routes and which does not have flexibility in terms of time, 
schedules, routes, and choices of airports and similar operational characteristics.  
 
SEC. 4. Scope of Application. – This Act shall apply to all aspects of contract of air carriage 
for flights or portions of a flight, within the territory of the Philippines or from the territory of the 
Philippines, operated by Philippine-based air carriers, flights or portions of a flight from the 
territory of the Philippines operated by foreign air carriers, as well as charter flights and the 
conduct of individual ticketing: Provided, That the compensation provisions of this Act shall 
not apply to air carriers flying into the territory of the Philippines if the laws of the country of 
origin provide similar or higher compensation.  
 
SEC. 5. Applicability of International Laws and Pertinent Conventions. – In case of conflict 
between the provisions of this Act and the provisions of any treaty or convention where the 
Philippines is a signatory, the provisions of the latter shall prevail. Where the Philippines is not 
a signatory, the provisions of any treaty or convention shall have suppletory effect in the 
implementation of this Act insofar as the same are not contrary to the provisions herein 
contained.  
 
CHAPTER II 
CONTRACT OF CARRIAGE BY AIR 
 
SEC. 6. Contract of Air Carriage. – By the contract of air carriage, an air carrier obliges itself 
to transport the passenger or one’s baggage, if any, from one place to another, through 
airspace, without any damage or injury upon the latter’s person, or loss, damage or 
unreasonable deterioration of his baggage, if any, and when the passenger obliges oneself to 
pay a just and reasonable air fare.  
 
SEC. 7. Perfection of the Contract of Carriage. – The contract of air carriage is perfected from 
the moment the air carrier and the passenger gives their respective consent to the said 
agreement.  


There is consent when the air carrier issues a confirmation of airline ticket in favor of 
a passenger, who accepts and holds it in his/her possession, with the corresponding full 
payment of the fare by said passenger.  
 
SEC. 8. Diligence Required of the Carrier. – Air carriers, due to the nature of air transportation, 
it being imbued with public policy and interest, are obliged to observe extraordinary diligence 
in the performance of their obligations under the contract of air carriage. Air passengers are 
required to observe ordinary diligence while the contract of air carriage is effective.  
 
SEC. 9. Presumption of Negligence. – In case of damage or injury to the person of the air 
passenger, or loss, damage, or unreasonable deterioration of his/her baggage, if any, the air 
carrier shall be presumed negligent, unless it proves that it exerted extraordinary diligence to 
avert the same. Diligence observed in the selection and supervision of employees shall not 
be a defense to rebut this presumption.  
In the case of carriage of goods and baggage, the presumption of negligence shall not 
apply if the loss, damage, or unreasonable deterioration is caused or occasioned by any of 
the following:  
(1) Flood, storm, earthquake, lightning, or other natural disaster or calamity;  
(2) Act of the public enemy in war, whether international or civil;  
(3) Act or omission of the shipper or owner of the baggage/goods;  
(4) The character of the goods or defects in the packing or in the containers; and  
(5) Order or act of competent public authority.  
 
SEC. 10. Cancellation. – An air carrier may cancel a flight for any of the following:  
(1) Infrastructure limitation as certified by the CAAP;  
(2) Safety reasons due to a technical problem; 
(3) Security reasons; or  
(4) During the occurrence of a fortuitous event.  
 
The passengers affected may avail such applicable remedies provided under this 
Act.  
 
SEC. 11. Overbooking. – Overbooking shall not be allowed for all air carriers.  
 
SEC. 12. Construction. – In case of doubt, the contract of air carriage shall be construed 
liberally in favor of the passenger and strictly against the air carrier.  
 
CHAPTER III 
RIGHTS AND OBLIGATIONS OF THE PASSENGERS 
 
A. RIGHT TO FULL AND TRUTHFUL INFORMATION OF THE CONDITIONS OF THE 
CONTRACT OF CARRIAGE  
 
SEC. 13. Clear, Truthful, and Understandable Information. – In addition to the information 
enumerated under Section 15 hereof, every passenger shall, before purchasing any ticket for 
a contract of carriage, have the right to the full access and fair and clear disclosure of 
information, in English and in Filipino, from an air carrier or general sales agent on the following 
terms and conditions of the contract of carriage:  
a) Fare and other fees and ancillary charges (taxes, insurance, fuel surcharge, seat 
reservation, etc);  
b) Travel restrictions;  
c) Baggage allowance and limitations;  
d) Check-in and boarding requirements and deadlines;  
e) Air carrier’s responsibilities and passenger’s rights and compensation for delayed and 
cancelled flights, and for death and injuries and lost, delayed or damaged baggage;  


f) Air carrier’s liability limitations; 
g) Procedures for claims against the carrier;  
h) Services and amenities provided by the air carrier; and  
i) Other crucial and necessary conditions of the contract of carriage.  
 
SEC. 14. Method of Disclosure. – An air carrier shall cause the disclosure under the 
immediately preceding section to be printed on or attached to the passenger ticket, boarding 
pass, or incorporate such terms and conditions of carriage by reference.  
Incorporation by reference means that the ticket or boarding pass shall clearly state 
that the complete terms and conditions of carriage are available for perusal or review in the 
air carrier’s website, or in some other document that may be sent to or delivered by post or 
electronic mail to a passenger upon request.  
The air carriers are required under this Act to post in their website, or other online 
accounts, the information which the passenger has a right of full access and disclosure.  
In case of booking through a ticketing office or agent, the disclosures shall be explained 
by the agent in a language that is easily understood by the purchaser.  
In case of online booking, the air carrier must establish a system wherein a purchaser 
is fully apprised of the required disclosures under this section twice prior to the final submission 
of an online offer to purchase. The first disclosure shall include the full information to which 
the passenger has a right of access and disclosure. The second disclosure before the final 
submission of an online offer to purchase shall substantially include the following message, in 
English and Filipino:  
By confirming purchase of this ticket, you agree to the terms and conditions which 
include:  
(a) Refund policy;  
(b) Rebooking policy;  
(c) No-Show policy; and  
(d) Other important information specific to the ticket purchased.  
 
Sa pagpili ng tiket na ito, kayo ay sumasang-ayon sa mga kondisyon at restriksyon 
kabilang na ang:  
(a) Panuntunan sa pagsasauli ng ibinayad;  
(b) Panuntunan sa pagpalit ng tiket;  
(c) Panuntunan sa hindi pagdating sa tamang oras; at  
(d) Iba pang importanteng impormasyon ukol sa ticket.  
 
SEC. 15. Advertisements. – Advertisements of fares shall be clear, truthful, and not misleading 
and shall capacitate the passenger to make an informed purchase or availment of the airline 
ticket such that the passenger fully understands the consequences of purchasing such ticket.  
The advertisement of the promotional fares shall be made only after the same has 
been approved by the CAB.  
The following disclosures are required to be part of the airline advertisement in print 
medium which shall occupy not less than thirty percent (30%) of the advertising material:  
a) Conditions and restrictions attached to the fare type;  
b) Refund and rebooking policies;  
c) Government taxes and fuel surcharges;  
d) Other fees and charges;  
e) Contact details of the carrier which include phone numbers, websites, emails, and 
online accounts;  
f) Other information that is necessary to apprise the passenger of the conditions and 
full price of the ticket which may include incorporation by reference of websites and 
other available information portal or office where the passenger can read or ask the 
full terms and conditions of the fare and the air passenger bill of rights; and  
g) In case of promotional fares, the number of seats offered on a per sector basis, the 
CAB permit or approval number and the duration of the promo.  


 
B. RIGHT TO FAIR AND REASONABLE FARE AND TO THE FULL VALUE OF THE 
SERVICE PURCHASED  
 
SEC. 16. Right to Receive the Full Value of the Service Purchased. – A passenger shall have 
the right to fair and reasonable fare and to receive the full value of the services that they 
purchased. An air carrier shall not deny nor diminish any service that an air passenger has 
paid for. However, an air carrier may upgrade its services in favor of a passenger free of 
charge, subject to the consent of the passenger.  
This right includes the convenience on the part of the passenger during the flight.  
 
SEC. 17. Right to Mandatory Fare Discount. – Qualified senior citizens, PWDs, and students 
are entitled to a twenty percent (20%) discount on all regular fares.  
To avail of the discount, the persons concerned are required to show competent 
proof that they are senior citizens, PWDs or students. Competent proof includes 
government-issued identification cards or school identification cards.  
To avail of the discount, a student, at the time of the purchase of the airline ticket, must 
be enrolled in preschool, elementary, secondary or collegiate school or institution, whether 
academic, vocational or technical, duly recognized by the government. For the purpose of this 
Act, it does not include those taking up post-graduate courses like medicine, law and masteral 
and doctoral degrees as well as short-term courses and seminars and classes like dancing, 
singing and driving lessons.  
Qualified senior citizens, PWDs and students are likewise exempt from the payment 
of the value-added tax.  
Where the air carrier offers promotional fares, the fare that is more beneficial between 
the discounted fare and the promotional fare shall be given to the passenger.  
For purposes of taxation, the discounts herein imposed shall be allowed as deduction 
on the gross income of the air carrier.  
 
SEC. 18. Right to Refund. – Every passenger holding a refundable airline ticket shall have the 
right to the refund of fares. This includes the refund of other fees such as checked baggage 
fees and other optional service fees such as insurance, and seat selector fee, if any.  
 
SEC. 19. Right to Cancel a Flight. – If the passenger cancels the confirmed flight more than 
twenty-four (24) hours before the ETD, the passenger shall be reimbursed seventy-five 
percent (75%) of the cost of the ticket less charges for ancillary services, and the remaining 
twenty-five percent (25%) shall be retained as the cancellation fee. There shall be full 
reimbursement of such charges for ancillary services not availed of including, but not limited 
to, baggage fees and terminal fees.  
If the passenger cancels the confirmed flight twenty-four (24) hours or less before the 
ETD, or does not show up altogether, the ticket shall be considered flown; there shall be full 
reimbursement of the charges for ancillary services not availed of including, but not limited to, 
baggage fees and terminal fees.  
 
SEC. 20. Right to Rebook a Flight. – Every passenger who was fully and truthfully informed 
that the ticket purchased is rebookable shall have the right to rebook the flight in accordance 
with the terms and conditions set forth in the rebooking policy.  
 
SEC. 21. Right to be Processed for Check-in. – A passenger holding a confirmed ticket, 
whether under a promotional or regular scheme, with complete documentary requirements, 
and who has complied with the air carrier’s check-in procedures, shall be processed 
accordingly at the check-in counter within the check-in deadline. For this purpose, the CAB 
shall, consistent with global aviation practice, provide a uniform schedule of the opening of 
check-in counters and check-in deadline for both local and international flights giving the 
passenger enough time to be processed for check-in.  


The air carrier shall, therefore, and subject to infrastructure limitations, clearly 
designate the boundaries of its assigned check-in areas or counters in a manner convenient 
to the passengers.  
The air carrier shall ensure that all its passengers for a particular flight, including those 
who are in queue prior to the check-in deadline have already checked-in before accepting 
passengers from previously delayed or cancelled flights, and chance passengers, in that 
order, when there are still seats available.  
 
SEC. 22. Right to Board Aircraft for the Purpose of Flight. – Except when the passenger is at 
fault, or due to legal or valid causes such as immigration issues, safety, security, and health 
concerns when there is a legal or other valid cause, a passenger who has checked-in for a 
particular flight has the right to board the aircraft for the purpose of flight. A passenger shall 
be considered at fault if such passenger is acting in violation of a law or the contract of air 
carriage affecting the safety and security of another passenger or crew during the voyage. 
  
C. RIGHT AGAINST ANY ACT OF DISCRIMINATION AND VEXATION 
 
SEC. 23. Right to Equal Protection.–Every passenger is entitled to all the rights set forth in 
this Act and in all aspects of the contract of carriage regardless of race, sex, gender, education, 
income, social status, language, physical characteristics, mental characteristics, sensory 
impairments, age, religion, marital status, political belief, and other circumstances. No air 
carrier shall deny a passenger from enjoying the rights set forth in this Act because of criminal 
or summary convictions, or a previous grievance against the air carrier. 
 
SEC.24.Right to be Respected. –Air passengers shall have the right to be respected at all 
times by the air carrier. Airline employees and crews shall serve passengers with utmost 
courtesy and respect. 
 
D. RIGHT TO SAFETY 
 
SEC. 25. Access to Emergency Measures, Medical Assistance, Safety Devices and Essential 
Services.–A passenger has a right to have access to and to use emergency and safety 
devices, medical assistance, and proper application of first aid procedures during emergency 
situations or when the passenger’s health requires it. Air carriers shall train flight personnel 
and crews in handling and responding to emergency situations and shall provide at least one 
(1) flight crew who is certified to be trained in the application of first aid procedures. An air 
carrier shall always inform its passengers of emergency measures in cases of evacuation 
before the start or during the first hour of the flight. 
A passenger has a right to disembark from an aircraft when in the passenger’s 
determination, continuing the journey or being onboard the aircraft constitutes a risk to health. 
The air carrier shall consult with the passenger who wishes to disembark and determine 
whether it is to the best interest of the passenger to deplane.  
A passenger shall have access to essential services such as adequate food and 
potable water, clean and safe lavatory facilities, and cabin ventilation and comfortable cabin 
temperatures.  
 
E. RIGHT TO REDRESS AND COMPENSATION  
 
SEC. 26. Right to Bring Action, Satisfaction or Relief of a Wrong or Injury. – Every passenger 
has a right, without fear of retribution, to take action against the air carrier for any wrong or 
injury caused to the passenger by reason of the contract of carriage under this Act and 
applicable treaties or conventions.  
 
SEC. 27. Right to Immediate Payment of Compensation. – A passenger shall have the right 
to be compensated, promptly and expeditiously, in case of flight delay or cancellation, death 


or injury upon his/her person, and loss or deterioration to one’s baggage and property, as the 
case may be. Compensation under this Act does not preclude the passengers to seek redress 
in a court for damage caused by any violation of the rights of the passenger as provided for 
by this Act or any other laws or treaties concerning air transportation.  
An air carrier liable for any of the required compensations provided under this Act shall 
make the same available to the affected passenger at the air carrier’s counters at the airport 
on the date when the occasion entitling the passenger to compensation occurred, or at the 
main office or any branch of the air carrier at the discretion of the passenger. The air carrier 
shall tender a check or cash for the amount specified, or the document necessary for claiming 
the compensation herein stated.  
If not paid within the prescribed period, the compensation granted in this chapter shall 
earn an interest computed at the current legal rate until full payment reckoned from the time 
of the expiration of the said period, unless the non-payment is prevented by a legal cause.  
 
SEC. 28. Rights of a Passenger for Delayed Flights. – Every passenger has the right to be 
compensated for flights not flown within a reasonable time from ETD. The provisions of this 
section shall be the minimum entitlement of a passenger in case of delay and shall not prohibit 
the air carrier from granting more favorable conditions or recourses, as it may deem 
appropriate.  
 
(a) Terminal Delay  
 
In case the flight is delayed for at least two (2) hours after the ETD, whether or not 
such is attributable to the carrier, a passenger shall have the right to:  
 
(1) Be notified via public announcement of the reason for the delay and the 
ETD as soon as this information is available;  
(2) Be provided a minimum level of care immediately, on the spot at 
terminals/stations while waiting for the beginning or the continuation of the delayed 
journey;  
(3) Be offered free of charge: (i) sufficient meals and refreshments in a 
reasonable relation to the waiting time; (ii) free phone calls, text messaging, fax, 
emails, or other means of communications; (iii) free internet access; and (iv) first aid, 
if necessary. In applying this section, the operating air carrier shall pay particular 
attention to the needs of persons with reduced mobility and any person accompanying 
them, as well as to the needs of unaccompanied children; and  
(4) Declare that he/she is cancelling his/her reservation and ask for refund or 
rebooking in accordance with Sections 18 and 20 hereof; or ask for endorsement to  
            another carrier.  
 
In case the flight is delayed for at least three (3) hours after ETD for causes attributable 
to the carrier, the flight shall be deemed cancelled and the affected passenger shall be entitled 
to the remedies provided under Section 29(a).  
 
(b) Tarmac Delay  
 
Every passenger shall likewise have the right to adequate food and beverage in cases 
of tarmac delay of at least two (2) hours after ETD, reckoned from the closing of the aircraft 
doors or when the aircraft is still at the gate with the doors still open but passengers are not 
allowed to deplane. In case the delay exceeds three (3) hours, the passenger may request 
disembarkation.  
 
(c) Arrival Delay  
 


In case there is a delay in the aircraft’s arrival at the airport of destination for at least 
one (1) hour, the air carrier shall give the affected passengers free food and beverages.  
If the said delay is due to the air carrier’s negligence, it shall be liable to pay damages 
to the air passenger amounting to ten thousand pesos (P10,000.00) or the actual damages 
suffered, whichever is higher.  
In the case of a multi-sector journey where the air carrier is at fault, in addition to the 
rights and entitlements stated under this section, a passenger shall be entitled to an additional 
compensation at a rate which is equivalent to at least the value of the sector cancelled by 
reason of the delay: Provided, That, in case of connecting flights with other carrier, the 
passenger has allotted sufficient connecting time of at least three (3) hours for international 
flights and two (2) hours for domestic flights: Provided, further, That the passenger shall not 
be entitled to the compensation of the value of the sector deemed cancelled, if the passenger 
is endorsed to another carrier and the passenger is able to complete his/her journey.  
 
SEC. 29. Rights of a Passenger for Cancelled Flights or Flights Deemed Cancelled. – A 
passenger has a right to compensation in cases of flight cancellation subject to the following 
rules:  
(a) If a flight is cancelled due to a cause attributable to air carrier, a passenger shall have the 
right to:  
1) Be notified beforehand or as soon as possible of the situation via public 
announcement, written/published notice and flight status update service either through 
text or electronic mail;  
2) Be provided a minimum level of care immediately, on the spot at terminals/stations;  
3) Be offered free of charge:  
a. Sufficient meals and refreshments in a reasonable relation to the waiting time;  
b. Hotel accommodation near the airport in cases where a stay of one or more 
nights becomes necessary, or where a stay additional to that intended by the 
passenger becomes necessary; and  
c. Transportation service between the airport and place of accommodation. In 
addition, passengers shall be offered free phone calls, text messaging, fax, 
emails, or other means of communications, free internet access, and first aid, 
if necessary. In applying this provision, the air carrier shall pay particular 
attention to the needs of persons with reduced mobility and any person 
accompanying them, as well as to the needs of unaccompanied children;  
4) Subject to the provisions of Sections 10 and 19 hereof, be reimbursed within five (5)  
days, either by cash, by electronic bank transfer, bank orders or bank cheques or with 
the signed agreement of the passenger, in travel vouchers and/or other services of the 
full cost of the ticket at the price at which it was bought, for the part or parts of the 
journey not made and for the part or parts already made if the flight is no longer serving 
any purpose in relation to the passenger’s original travel plan, together with, when 
relevant, a return flight to the first point of departure, at the earliest opportunity.  
If payment is made through credit card, the reimbursement should be credited 
back to the payor’s credit card account within seven (7) days without additional cost to 
the passenger.  
5) Be endorsed to another air carrier without paying any fare difference, at the option of 
the passenger, and provided that space and other circumstances permit such re-
accommodation; or  
6) Rebook the ticket without any additional charge.  
a. In the case of multi-sector journey, in addition to the rights and entitlements 
stated under this section, a passenger shall be entitled to an additional 
compensation at a rate which is equivalent to at least the value of the sector 
cancelled by reason of the cancellation.  
 
(b) In case the carrier cancels the flight because of force majeure, safety, and/or security 
reasons as certified by the CAAP, a passenger shall have the right to:  


 
(1) Rebook the trip to another trip in the future, subject to the payment of the fare 
difference, if any;  
(2) Reimbursement of the value of the fare;  
(3) Endorsement to another airline, at the option of the passenger.  
 
This provision shall be the minimum entitlement of a passenger in case of cancellation 
and shall not prohibit the air carrier from granting more favorable conditions or recourses as it 
may deem appropriate.  
 
SEC. 30. Rights of Passengers Denied Boarding. – A passenger who has checked-in for a 
particular flight cannot be denied from boarding the aircraft except for legal or other valid 
causes such as immigration issues, safety, security, and health concerns.  
In a case where a passenger is denied boarding because the number of volunteers is 
not due to overbooking, government requisition of space, downgrading of an aircraft or legal 
orders, the flight in respect to the affected passenger shall be deemed cancelled and the 
compensation shall be governed by the following rules:  
 
(a) If the denial of boarding the aircraft is by reason of overbooking, aircraft 
downgrading, the passenger concerned shall be compensated in accordance with the 
provisions of Section 29(a) hereof;  
 
(b) If the denial of boarding the aircraft is for some legal or justifiable reason relating to 
the security or safety of other passengers or applicable regulations as sanctioned by the CAAP 
or legal order of other authorities, the passenger concerned shall be entitled to refund, 
rebooking or endorsement to another carrier subject to payment of fare difference or any 
administrative charges when applicable;  
 
(c) If the denial of boarding the aircraft is due to government requisition of space, the 
affected passenger shall be compensated and shall be entitled to the remedies in the 
preceding paragraph with the cost chargeable against the air carrier subject to reimbursement 
by the requesting agency if allowed; and  
 
(d) In the case where a passenger is denied boarding for acting in violation of a law or 
the contract of air carriage affecting the safety and security of another passenger or crew 
during the voyage, such passenger shall not be entitled to any relief provided under this Act.  
 
Provided, That no passenger shall be denied boarding for two (2) consecutive times 
on the same day, except when public safety, order, health or moral requires: Provided, further, 
That PWDs, persons with special needs, senior citizens, pregnant women and 
unaccompanied children shall be given preference against denied boarding.  
 
SEC. 31. Filling-up of Empty Seats. – Vacant seats due to cancellations by the passenger and 
no shows shall be offered by the air carrier, first to the passengers of delayed or cancelled 
flights of the same air carrier or of another carrier, through endorsement between the two (2) 
air carriers. If there are still empty seats remaining, it shall then be offered to the chance 
passengers.  
 
SEC. 32. Loss, Damage, and Delay of Baggage. – Every passenger has a right to 
compensation for any loss, damage, or delay of baggage attributable to the fault of the air 
carrier. Compensation for loss of baggage shall be in the following amounts:  
(i) For international flights, twenty dollars (USD20) per kilo for checked-in 
baggage and four hundred dollars (USD400) for hand-carried baggage.  
(ii) For domestic flights, the equivalent amount in pesos shall apply.  
 


A passenger’s baggage is presumed lost if, within a period of seven (7) days counted 
from the time the passenger or consignee should have received the same, the baggage is 
not delivered to said passenger or consignee.  
Once the baggage is declared to be permanently lost in case of domestic flights, the 
provisions set in the contract of carriage shall apply in the valuation of lost belongings. In case 
of international flights, the limits set by the Warsaw Convention or the Montreal Convention, 
whichever is applicable, shall apply.  
In case a checked-in baggage has been off-loaded for operational, safety, or security 
reasons, the air carrier shall inform the passenger at the soonest practicable time and in such 
manner that the passenger shall readily know of the off-loading that his/her baggage has been 
off-loaded and the reason thereof. If the passenger’s baggage has been off-loaded, the air 
carrier shall make the appropriate report and give the passenger a copy thereof, even if it 
announced that the baggage shall be on the next flight.  
The air carrier shall carry the off-loaded baggage in the next flight with available space, 
deliver the same to the passenger either personally or at his/her residence and tender an 
amount of one thousand pesos (P1,000.00) for every two (2) days of late delivery, as 
compensation for the inconvenience. The passenger shall also have a right to the refund of 
the checked baggage fees if the baggage was not delivered to the passenger within twenty-
four (24) hours from the arrival of flight.  
Air carriers are liable for provable consequential damages up to the amount of their 
liability limit in connection with the loss and delay in the delivery of baggage, in accordance 
with the limits set by the Warsaw Convention or the Montreal Convention, whichever is 
applicable.  
Damaged baggage shall be compensated at one hundred pesos (P100.00) per 
kilogram if it is in a domestic flight unless the passenger has declared a higher valuation of 
the baggage at check-in time. For international flights, item (i) under this paragraph shall apply.  
 
SEC. 33. Compensation for Death and Bodily Injuries. –  
(a) In the case of international flights, the rules of the relevant convention shall apply 
as to compensation for death or bodily injuries sustained by a passenger in the contract of 
carriage.  
(b) For domestic flights, the passenger shall be entitled to the compensation subject to 
the provisions of the contract of carriage or the compensation as provided in the provisions of 
the relevant convention, in its Philippine currency equivalent, whichever is higher.  
 
SEC. 34. Compensation for Violation of Airline Passenger Rights. – In case the air carrier 
violates the rights of air passengers, the former shall pay the latter damages amounting to at 
least fifty thousand pesos (P50,000.00), exclusive of other damages or injury the air passenger 
has suffered.  
 
CHAPTER IV 
RIGHTS, DUTIES AND OBLIGATIONS OF THE AIR CARRIERS 
 
SEC. 35. Prevention of Harm to Passengers and Maintenance of Aircrafts. – An air carrier 
shall prevent harm and hazard to passengers by ensuring that it follows all regulations on the 
airworthiness of the aircraft, complies with rules on hazardous materials, protects the 
passengers from unreasonable harm, and actively responds to harm caused by the aircraft 
structure, materials, and chemicals.  
 
SEC. 36. Designation of an “All-Flight” or “Per Route” Counters. – Air carriers may operate all-
flight counters which will serve passengers without regard to destination. As far as practicable, 
the air carrier shall, in addition to all-flight counters, open a separate counter dedicated for a 
flight nearing check-in deadline to facilitate the checking-in of passengers at least an hour 
before the published ETD 
.  


SEC. 37. Special Accommodation of PWDs, Persons with Special Needs, Senior Citizens, 
Pregnant Women and Unaccompanied Children. – To ensure the full enjoyment of the rights 
enumerated under this Act, the provisions of the following laws and their implementing rules 
and regulations, whenever applicable, shall form part of this Act as far as the passengers in 
this section are concerned:  
(a) Republic Act No. 7277 or the Magna Carta for Disabled Persons as amended by 
Republic Act No. 9442 and its implementing rules and regulations;  
(b) Batas Pambansa Bilang 344 or the Accessibility Law;  
(c) Republic Act No. 7432 as amended by Republic Act No. 9257 and Republic Act 
No. 9994 or the Expanded Senior Citizens Act of 2010 and its implementing rules and 
regulations.  
 
The contract of air carriage shall clearly enumerate the necessary terms and conditions 
affecting the rights of PWDs, senior citizens, persons with special needs, pregnant women 
and unaccompanied children.  
Air carriers and its agents, in coordination with the agencies charged with protecting 
the rights and welfare of the abovementioned passengers, shall implement a system allowing 
this group of persons enough and convenient opportunity to comply with aviation requirements 
and their special needs, facilities and assistance by reason of their individual circumstances 
throughout the flight.  
For this purpose, air carriers shall designate at least one (1) check-in counter 
dedicated to persons with disabilities (PWDs), senior citizens, persons with special needs, 
pregnant women, and unaccompanied children between seven (7) and twelve (12) years old.  
 
SEC. 38. Responsibility of the Air Carrier When the Number of Passengers is Beyond the 
Capacity of the Aircraft. – If a certain flight has more ticketed passengers than the allowed 
capacity of the aircraft by reason of overbooking, government requisition of space, as well as 
the downgrading of the aircraft for safety or unforeseen operational reasons as certified by the 
CAAP, the air carrier shall perform the following:  
 
(a) Determine the number of passengers in excess of the actual seat capacity of the 
aircraft;  
(b) Announce that the flight is overbooked, and that it is looking for volunteers willing 
to give up their seats in exchange for air carrier compensation;  
(c) Provide the interested passengers or volunteers a list of amenities and offers from 
which they can choose, which shall always include priority booking in the next available flight 
and/or cash incentive; and  
(d) In cases the number of volunteers is not enough, the air carrier shall increase the 
compensation package by a certain degree by adding more amenities/services until the 
required number of volunteers is met.  
 
No flight shall be delayed pursuant to the settlement of the air carrier’s obligation under 
this section.  
 
SEC. 39. Duty of the Carrier in the Event of Flight Deviation. – Flight deviation happens when 
there is a change in the airport of origin or destination. If such is the case, an air carrier shall 
provide the necessary transportation to ferry a passenger from the originally-designated 
airport of departure to the actual airport of departure or from the airport of actual destination 
to the airport of the originally-designated destination, as the case may be.  
If, by reason of the deviation, a certain right of a passenger has been violated, the 
applicable provisions of this Act shall govern the availment and grant of remedies and 
compensation.  
 
SEC. 40. Provision of Assistance Desk. – Air carriers shall provide Customer Service 
Representatives (CSR) who can address common problems on the spot, which include 


arranging for meals, hotel rooms and accommodation for stranded passengers, write checks 
for denied boarding compensation, arrange luggage resolutions, and settle other routine 
claims or complaints.  
In addition, the CAB shall provide Complaints and Assistance Desks manned by CAB 
or CAB-deputized personnel in all airports who shall assist passengers, whose rights have 
been violated, including the filing of the complaint.  
 
SEC. 41. Remedies of the Passengers. – Every passenger whose right provided in this Act 
is violated shall have the following remedies:  
(a) Go to the CSR of the air carrier at their designated counter. Ask for two (2) copies 
of the report form and write the nature of the complaint.  
(b) Submit the forms to the CSR and get acknowledgment receipt. Give one (1) copy 
to the CSR for processing. 
(c) Give the other copy at the Complaints and Assistance Desk (CAD) of CAB or CAB-
deputized personnel at the airport and attach the report form from the air carrier on the report 
form from the CAB.  
(d) Get acknowledgment receipt of complaint from the CAB.  
(e) Get resolution slip from the air carrier’s CSR and attach it on the CAB report form 
and submit it to the CAB-CAD.  
(f) If case is not resolved, go to the CAB-CAD and report such incident together with 
documents, and other evidence, to support the claim.  
 
SEC. 42. Operational Spare. – An air carrier shall, in adopting its flight schedules, exert all 
efforts to manage the disposition of its aircraft in such a way as to be able to reallocate aircraft 
to take the place of another aircraft in case the latter cannot carry the passengers due to 
operational requirement, aircraft maintenance, and other similar situations.  
 
SEC. 43. Immediate Reporting of Off-loaded Checked Baggage. – In case a checked baggage 
has been off-loaded for operational, safety, or security reasons, the air carrier shall inform the 
concerned passenger, at the soonest practicable time and in such manner that the passenger 
shall readily know of such off-loading and the reason thereof. If the passenger’s baggage has 
been off-loaded, the air carrier shall make the appropriate report and give the passenger a 
copy thereof, even if it announced that the baggage shall be on the next flight.  
 
 
 
CHAPTER V 
OBLIGATION OF THE CAAP, CAB AND AIRPORT OPERATORS 
 
SEC. 44. Availability of Check-in Counters. – The CAAP, airport authorities or airport 
operators, as the case may be, shall provide adequate number of check-in counters for every 
air carrier operating in a particular airport.  
They shall ensure that the number of check-in counters of an air carrier in a particular 
airport shall be proportionate to the volume of passengers who are checking-in for a particular 
flight. In no case shall the queue exceed twenty (20) persons per check-in counter.  
 
SEC. 45. Assignment of Technical Personnel in Airports. – The CAAP shall ensure that every 
commercial airport is manned by technical personnel capable of verifying and certifying reports 
of technical or infrastructure problems or other reasons leading to delays and cancellations. 
The technical personnel concerned shall submit a periodic report of all delays and 
cancellations and the corresponding reasons thereof to the CAAP Central Office. 
 
SEC. 46. Complaints Desk. – The CAB shall provide the necessary personnel to cater the 
unresolved complaints of passenger in every commercial airport. It shall be the duty of the 


assigned personnel to report all complaints to the CAB at the earliest time possible, taking into 
account the nature of the relief sought by the passenger.  
 
CHAPTER VI 
REMEDIES AND GRIEVANCE PROCEDURES 
 
SEC. 47. Amicable Settlement. – A passenger and air carrier shall exhaust all efforts toward 
settling dispute amicably in accordance with the provisions set forth in this Act. If no amicable 
settlement is reached, the government, through the CAB, may take cognizance of the case.  
 
CHAPTER VII 
PENAL PROVISIONS 
 
SEC. 48. Penalties. – Any violation of this Act shall be penalized in accordance with the 
pertinent provisions of Republic Act No. 776 or the Civil Aeronautics Act of the Philippines, 
Republic Act No. 7394 or the Consumer Act of the Philippines, Republic Act No. 9442, Batas 
Pambansa Bilang 344 and Republic Act No. 9994, as the case may be.  
Failure on the part of the air carrier to comply with any of the obligations stated in this 
Act, upon the order of the CAB shall, after due hearing, be a ground for suspension of its 
franchise or license to operate.  
Grave and repetitive violations after the lifting of the suspension of its franchise or 
license to operate shall be a ground for revocation of such franchise or license to operate.  
 
SEC. 49. Review of Penalties. – The CAB, in coordination and consultation with the DOTC, 
Department of Trade and Industry (DTI) and CAAP shall, after three (3) years from the 
effectivity of this Act and every three (3) years thereafter, review the applicability and 
enforcement of all foregoing pecuniary penalties and initiate actions for amending or upgrading 
the same as may be necessary in accordance with law.  
 
CHAPTER VIII 
FINAL PROVISIONS 
 
SEC. 50. Implementing Rules and Regulations (IRR). – Within sixty (60) days from the 
effectivity of this Act, the CAB shall, in coordination with the DOTC, DTI and CAAP, and after 
consultation with accredited passenger organizations, air carriers and other directly affected 
stakeholders, promulgate the necessary rules and regulations to effectively implement the 
provisions of this Act.  
 
SEC. 51. Congressional Oversight Committee. – A Congressional Oversight Committee for 
Air Passenger Rights is hereby constituted in accordance with the provisions of this Act. The 
Committee shall be composed of the Chairman of the Senate Committee on Public Services 
and the Chairman of the House Committee on Transportation and four (4) additional members 
from each House to be designated by the Senate President and the Speaker of the House of 
Representatives, respectively. The Committee shall, in aid of legislation:  
(a) Monitor and ensure the proper implementation of this Act;  
(b) Review the collection performance of the Authority; and  
(c) Review the proper implementation of the programs of the Authority and the use of 
its collected fund.  
 
In furtherance of these objectives, the Committee is empowered to require the DOTC, 
DTI, CAAP and CAB, to submit all pertinent information, including complaints filed by the 
passengers and the complaints resolved by the air carriers and the CAB.  
The Committee shall be in existence for a period of five (5) years, and thereafter, its 
oversight functions shall be exercised by the Senate Committee on Public Services and the 
House Committee on Transportation acting separately.  


 
SEC. 52. Appropriations. – The Secretary of Transportation and Communications shall 
immediately include in the Department’s program the needed operational requirement in 
upholding the enumerated rights in this Act, the initial funding of which shall be charged 
against the current appropriations for the CAB. Thereafter, such sums as may be necessary 
for the continued implementation of this Act shall be included in the annual General 
Appropriations Act.  
 
SEC. 53. Separability Clause. – If, for any reason, any provision of this Act is declared 
unconstitutional or invalid, such parts or portions not affected thereby shall remain in full force 
and effect.  
 
SEC. 54. Repealing Clause. – All laws, executive orders, presidential decrees, issuances, 
rules and regulations or parts thereof inconsistent with the provisions of this Act are hereby 
repealed or modified accordingly.   
 
SEC. 55. Effectivity. – This Act shall take effect fifteen (15) days after its publication in the 
Official Gazette or in a newspaper of general circulation.  
 
Approved,