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intelligence gathering and national security. Further, costs associated with airport security should not
be combined with security costs incurred with regard to air navigation facilities or services.
7. Guidance on accounting contained in the Manual on Air Navigation Services Economics (Doc 9161) may be found useful in this
context, although there are other approaches.
ICAO’s Policies on Charges for
16 Airports and Air Navigation Services
v) Air navigation services may produce sufficient revenues to exceed all direct and indirect operating
costs and so provide for a reasonable return on assets (before tax and cost of capital) to contribute
towards necessary capital improvements.
45. The Council observes that in determining the costs to be recovered from users:
i) Governments may choose to recover less than full costs in recognition of local, regional or national
benefits.
ii) It is for each State to decide for itself whether, when, and at what level any air navigation services
charges should be imposed, and it is recognized that States in developing regions of the world, where
financing the installation and maintenance of air navigation services is difficult, are particularly justified
in asking the international air carriers to contribute through user charges towards bearing a fair share
of the cost of the services.
iii) The approach towards the recovery of full costs should be a gradual progression.
Allocation of costs of air navigation services among aeronautical users
46. The Council recommends that the allocation of the costs of air navigation services among aeronautical
users be carried out in a manner equitable to all users. The proportions of cost attributable to international civil aviation
and other utilization of the facilities and services (including domestic civil aviation, State or other exempted aircraft, and
non-aeronautical users) should be determined in such a way as to ensure that no users are burdened with costs not
properly allocable to them according to sound accounting principles. The Council also recommends that States acquire
basic utilization data in respect of air navigation services, including the number of flights by category of user (i.e. air
transport, general aviation, and other) in both domestic and international operations, and other data such as the distance
flown and aircraft type or weight, where such information is relevant to the allocation of costs and the cost recovery
system.8
Air navigation services charging systems
47. The Council recommends that States ensure that systems used for charging for air navigation services be
established in accordance with the following principles:
i) Any charging system should, so far as possible, be simple, equitable and, with regard to route air
navigation services charges, suitable for general application at least on a regional basis. The
administrative cost of collecting charges should not exceed a reasonable proportion of the charges
collected.
ii) The charges should not be imposed in such a way as to discourage the use of facilities and services
necessary for safety or the introduction of new aids and techniques. The facilities or services provided
for in the ICAO Regional Air Navigation Plan(s) or in any recommendations of the relevant ICAO
Regional Air Navigation Meeting as are approved by the Council, are, however, considered to be
necessary for general safety and efficiency.
8. Guidance on cost allocation is contained in the Manual on Air Navigation Services Economics (Doc 9161), although States may
use any accounting approach they consider meets their particular requirements.
III. ICAO’s Policies on Charges for Air Navigation Services 17
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 system of charges must be non-discriminatory both between foreign users and those having the
nationality of the State or States responsible for providing the air navigation services 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 ANSPs on a
case-by-case basis according to national circumstances. Where any 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 costs associated with differential
　
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