A strategy for reducing unruly and disruptive passenger incidents.

 

The terms “unruly passengers”, “disruptive passengers” and “unruly and disruptive passengers” are commonly understood to refer to passengers who fail to respect the rules of conduct on board aircraft or to follow the instructions of crew members and thereby create a threat to flight safety and/or disturb the good order and discipline on board aircraft. It seems that hardly a week goes by without the media reporting on a high-profile unruly and disruptive passenger incident onboard a flight. While it’s true that only a tiny minority of the 4.3 billion passengers that travel by air each year (pre-COVID19 pandemic) become unruly, they have a disproportionate impact. Such incidents may: ▪ threaten the safety and security of the aircraft, other passengers, and crew ▪ cause physical, mental, and emotional harm to other passengers and crew; ▪ result in inconvenience to other passengers due to operational disruption (e.g., delays and diversions).

International air travel is by far the safest form of transport with over 4 billion passengers traveling safely each year (pre-pandemic). This remarkable safety record is a result of the collective efforts and partnership between governments, manufacturers, airlines, and many other industry stakeholders. The overwhelming majority of customers simply want to get to their destination safely, conveniently and without disturbance. However, the unruly and disruptive behavior of a small minority of passengers has a disproportionate adverse impact on other passengers and cabin crew, whose primary job is to ensure the safety, security, and comfort of all onboard. In 2014, Member States of the International Civil Aviation Organization (ICAO) recognized the growing frequency and severity of such incidents and agreed significant changes to international air law, adopting the Protocol to Amend the Convention on Offences and Certain Other Acts Committed on Board Aircraft (known as the Montréal Protocol 2014 or MP14). They also developed significant new guidance for States in the form of Manual Doc. 10117 which also provides more information and even model legislation relating to civil and administrative penalties as a means of enhancing enforcement to ensure there are sanctions appropriate to all types of unruly and disruptive offenses and acts. More recently, the COVID-19 pandemic brought the issue of unruly and disruptive behavior to the attention of governments and regulators vividly because of non-compliance with face mask mandates. Thankfully, as the public health situation has improved, most of these mask mandates have now been removed, through many governments, regulators, and law enforcement authorities have started to review and implement new, more robust ways to deter unruly and disruptive passenger incidents. The strategy and examples of good practice set out in this document highlights four key areas where governments can help make flying even safer by strengthening the deterrent against unruly and disruptive behavior, namely: ▪ Implement Standard 6.45 of Annex 9 Facilitation to raise traveller awareness by communicating what is unacceptable conduct onboard aircraft and what legal and other sanctions are in place. ▪ Ensure that any remaining jurisdictional gaps are removed that prevent law enforcement and prosecutors dealing with unruly passenger upon landing in their territory by ratifying the Montreal Protocol 2014. ▪ Undertake a thorough review of enforcement mechanisms in place for unruly and disruptive behavior and ensure a range of different measures are available based on the nature of the offense or act committed – with an emphasis on civil and administrative sanctions to supplement criminal prosecutions, where appropriate. ▪ Support industry stakeholders as they work on prevention and management initiatives. ICAO has developed all the tools necessary to support governments on this issue. If implemented, IATA considers that the measures above, together with industry initiatives, will contribute to an overall reduction in unruly and disruptive passenger incidents. This will help to create an even safer and more enjoyable air travel experience for all. IATA stands ready to work with governments and support them in this important work.