This bill did not become law and is no longer proceeding.
Government & democracy
Airlines flying to, from or within Australia would have to follow new passenger protection rules for delays, cancellations and being refused boarding.
Rising airline complaints exposed weak passenger protections, with ACCCThe consumer regulator that the bill cites for airline complaint data and market monitoring. aviation complaints up nearly 200% since 2018 and major carriers left largely unaccountable. The bill requires the Transport MinisterThe federal minister the bill would require to write the new passenger rights rules and code of conduct. to write rules and a code of conduct covering delays, cancellations, denied boardingWhen an airline refuses to let a passenger board a flight, even though they have a booking or ticket. and improper conduct, including seating children beside a parent without extra fees.
Australia already had a highly concentrated airline market and weaker passenger compensation rules than places such as Europe, the United Kingdom and Canada, while ACCCThe consumer regulator that the bill cites for airline complaint data and market monitoring. aviation complaints rose by nearly 200% from 2018 and delays, cancellations and denied boardingWhen an airline refuses to let a passenger board a flight, even though they have a booking or ticket. left travellers with little practical recourse. In response, Coalition senators introduced the Airline Passenger Protections (Pay on Delay) Bill 2024 to force the Transport MinisterThe federal minister the bill would require to write the new passenger rights rules and code of conduct. to write passenger-rights rules and an airline code of conduct, but the bill stalled in debate and lapsed when Parliament ended in July 2025.
The main criticism was that the bill was a narrow, poorly designed piece of politics rather than a serious fix for airline problems, and that it risked setting rules without the broader reform needed across the aviation sector. That case was raised by Labor speakers Tony Sheldon and Catryna Bilyk, who accepted delays and high fares were real problems but argued passenger rights should be settled through the government's wider aviation white paper process instead.
Senator Bridget McKenzie and Senator Dean Smith introduced this bill. Speeches supporting it came from Liberal Party, Nationals, LNP.
Did it become law?
No
The bill did not complete passage through Parliament.
Final passage
No final passage
The bill has not completed passage and is no longer proceeding.
Time before failure
510 days
From introduction to the final recorded step before the bill stopped proceeding
Meaning
Airlines flying to, from or within Australia would have to follow new passenger protection rules for delays, cancellations and being refused boarding.
The Transport MinisterThe federal minister the bill would require to write the new passenger rights rules and code of conduct. would have to create an airline code of conduct to protect passengers and other people from improper behaviour by airlines.
Foreign airlines in Australia would face the same consumer protection duties as Australian airlines, bringing Australia closer to rules already used in Europe, the United Kingdom and Canada.
The Transport MinisterThe federal minister the bill would require to write the new passenger rights rules and code of conduct. would have 12 months to write the airline obligations rules after consulting the aviation industry, consumer advocates and relevant government agencies.
Airlines would have to seat children aged 14 and under next to a parent or guardian without charging an extra fee.
The purpose of this Bill is to require the Minister for Transport to make rules to prescribe certain obligations to passengers for airline carriers operating in Australian airspace. The obligations would be designed to protect passengers who experience a delay, cancellation or denial of boarding.Airline Passenger Protections (Pay on Delay) explanatory memorandum
The Bill also requires the Minister to establish an airline code of conduct that provides for the protection of passengers and third parties from improper conduct by carriers.Airline Passenger Protections (Pay on Delay) explanatory memorandum
In the international sector, airlines operating in Australia are already subject to similar requirements in other jurisdictions, such as the European Union, United Kingdom and Canada. The new rules would ensure foreign carriers operating in Australia are subject to the same consumer obligations as domestic carriers.Airline Passenger Protections (Pay on Delay) explanatory memorandum
4. Subclauses 4(1) and (2) would require the Minister to make rules (the carriers’ obligations rules) within 12 months of the commencement of the Act, but only after consultation with aviation industry stakeholders, consumer advocates and other relevant agencies.Airline Passenger Protections (Pay on Delay) explanatory memorandum
The Bill also requires the Minister to make rules that ensure children aged 14 and under are seated next to a parent or guardian for no additional charge.Airline Passenger Protections (Pay on Delay) explanatory memorandum
Context
Australia already had a highly concentrated airline market and weaker passenger compensation rules than places such as Europe, the United Kingdom and Canada, while ACCCThe consumer regulator that the bill cites for airline complaint data and market monitoring. aviation complaints rose by nearly 200% from 2018 and delays, cancellations and denied boardingWhen an airline refuses to let a passenger board a flight, even though they have a booking or ticket. left travellers with little practical recourse. In response, Coalition senators introduced the Airline Passenger Protections (Pay on Delay) Bill 2024 to force the Transport MinisterThe federal minister the bill would require to write the new passenger rights rules and code of conduct. to write passenger-rights rules and an airline code of conduct, but the bill stalled in debate and lapsed when Parliament ended in July 2025.
ACCCThe consumer regulator that the bill cites for airline complaint data and market monitoring. aviation complaints begin a sharp rise
The bill's explanatory material says complaints to the ACCCThe consumer regulator that the bill cites for airline complaint data and market monitoring. about aviation later rose by nearly 200% from this year, underscoring how weak consumer protections had become.
Airline Passenger Protections (Pay on Delay) explanatory memorandum ↗Sponsors cite airline concentration and weak accountability
In the second reading speech, the sponsors argued Qantas and Virgin held about 93% of the domestic market and that passengers lacked meaningful alternatives when service failed.
Second reading speech ↗Coalition senators introduce a pay-on-delay passenger rights bill
The bill was introduced to require the Transport MinisterThe federal minister the bill would require to write the new passenger rights rules and code of conduct. to set minimum obligations for delays, cancellations and denied boardingWhen an airline refuses to let a passenger board a flight, even though they have a booking or ticket., alongside a code of conduct for airlines.
Hansard ↗Senate debate links the bill to high fares and poor reliability
Supporters said Australians were fed up with higher airfares, declining service standards and cancellation rates still below long-term reliability norms.
Hansard ↗Debate highlights the extra burden on regional travellers
Speakers argued that cancellations and long delays hit regional Australians especially hard because many had already driven hours to reach an airport before a flight was disrupted.
Hansard ↗Bill lapses at end of Parliament
The proposal never passed, so the minister was not required to create the new passenger-rights rules or airline code of conduct set out in the bill.
Parliamentary timeline ↗Legislative route
The bill was formally presented to the chamber and read a first time, which starts its parliamentary journey.
Introduced and read a first time
A minister or sponsoring member moved the second reading, opening the main debate on the bill's purpose and principles.
Second reading moved
The bill reached this recorded parliamentary step.
The scrutiny committee recorded that it considered the bill in Scrutiny Digest 4 of 2024.
Considered
Collected source bundleThe bill reached this recorded parliamentary step.
Referred to Committee (16/05/2024): Senate Rural and Regional Affairs and Transport Legislation Committee; Committee report (24/03/2025)
Referred to committee
APH bill page notesThe bill reached this recorded parliamentary step.
Key criticism
The main criticism was that the bill was a narrow, poorly designed piece of politics rather than a serious fix for airline problems, and that it risked setting rules without the broader reform needed across the aviation sector. That case was raised by Labor speakers Tony Sheldon and Catryna Bilyk, who accepted delays and high fares were real problems but argued passenger rights should be settled through the government's wider aviation white paper process instead.
Recorded criticism was limited and focused on process and design, not on defending poor airline treatment of passengers.
Too narrow and not part of broader reform
Critics said the bill was not a properly designed, integrated aviation reform package and would be better considered through the government's broader white paper process. They argued it did not by itself solve deeper problems such as fares, delays and wider sector settings.
Further sources
Votes
No recorded votes were found before this bill stopped proceeding.
Parliamentary debate
Start here — lead voices
McKenzie supports the bill and says it is a necessary step to strengthen airline passenger rights and force better accountability from carriers.
Read in Hansard ↗Sheldon opposes the bill, arguing it is a political stunt rather than a serious aviation reform and saying passenger rights should be considered as part of the government’s broader white paper process.
Read in Hansard ↗Canavan supports the bill and says it is common sense because airlines should compensate passengers for cancellations, delays and lost baggage.
Read in Hansard ↗Ruston supports the bill and says it is needed because Australia’s airlines have delivered poor service, too many delays and cancellations, and inadequate compensation for passengers.
Read in Hansard ↗All speeches by bloc
2 speakers · 2 oppose
“A white paper going to the strategies, the implementation, the impacts of all those reports that for nine years those opposite have sat on needs to be properly considered and properly weighed up in the interests of all the travelling public and the Australian economy, because the aviation industry deserves something better than a political stunt by those opposite.”Read the full speech in Hansard ↗
“A reform of the kind proposed in the bill may happen, but, through the white paper process, various policy approaches are being carefully considered and compared and well designed, taking into account the extensive feedback of stakeholders. For the sake of airline competition and the true interests of the travelling public, we want to engage in genuine reform, not just stunts.”Read the full speech in Hansard ↗
8 speakers · 10 contributions · 8 support
Hansard records 2 separate contributions by Bridget McKenzie on this bill. They are grouped here so the speaker is listed once.
Second reading speech
McKenzie supports the bill and says it is a necessary step to strengthen airline passenger rights and force better accountability from carriers. She argues it is needed because poor airline performance and weak competition have left passengers without adequate protection.
“The Airline Passenger Protections (Pay on Delay) Bill 2024 addresses the growing concerns surrounding passenger protections and poor performance of participants within the Australian aviation sector. This private senators' bill put forward by the Coalition represents a necessary step forward in enhancing the rights and protections of airline passengers across Australia.”Read this contribution in Hansard ↗
Second reading speech
McKenzie supports the bill and says the opposition is moving it because the government has failed to protect airline passengers. She argues it would force a code of conduct, clearer rights and compensation rules, and better treatment for delays, cancellations and families travelling with children.
“The bill requires the transport minister to introduce an airline code of conduct and a series of obligations to protect passengers that find themselves at the mercy of airlines during significant disruptions. The code would be a significant series of reforms that enhance consumer protections. It is clear and necessary. The time for action is now. We must work together—government, industry and consumers—to improve standards and safeguards. Every single person in Australia has a story of missing significant family events, business meetings or health services as a result of the aviation sector's failure.”Read this contribution in Hansard ↗
“I'm very pleased to be standing here in support the bill. In supporting this bill, we are supporting many, many Australians who use air services—not just those who use airlines to go on a holiday, which we all love and enjoy, but many Australians who have to use air services for everything that goes on in their everyday lives.”Read the full speech in Hansard ↗
“I commend this bill. I commend what it would do for Australian airline passengers and for competition in the airline market and I again plead with the government to have a change of heart and to stop worrying about its deals with mates and start standing up for the Australian people.”Read the full speech in Hansard ↗
“I'm very pleased to rise in support of this private senators' bill, the Airline Passenger Protections (Pay on Delay) Bill 2024. I do congratulate my good friends and colleagues Senator McKenzie and Senator Smith, who have been heavily involved in this bill. I also commend them both, especially Senator McKenzie for her passionate pursuit of fairness in the aviation sector for the Australian public.”Read the full speech in Hansard ↗
“This bill will tilt the balance from market giants to everyday Australians by protecting the rights of passengers in circumstances where delays, cancellations or denial of boarding occur. This bill instructs the minister to create rules for airlines within 12 months to ensure that passengers are compensated and treated fairly when they experience disruptions and delays. That's not unreasonable.”Read the full speech in Hansard ↗
“This private senator's bill is not a complicated piece of legislation. It says that the minister representing the government must consult within a specified time period to bring forward to this parliament a range of consumer protections that will substantially improve the experience of Australia's airline consumers.”Read the full speech in Hansard ↗
Hansard records 2 separate contributions by Perin Davey on this bill. They are grouped here so the speaker is listed once.
Second reading speech
Perin Davey supports the bill because she says it will make airlines accountable, put consumers first, and establish minimum standards for passengers affected by delays, cancellations and lost baggage. She argues it is not a silver bullet, but it is needed to force action on unfair airline behaviour.
“This bill isn't a silver bullet—I admit that—but this bill will require action to be taken. This bill will put the focus back on the consumers. It will prioritise the consumers. It will actually make the airlines accountable. They will have to justify what is a fair and reasonable delay or cancellation.”Read this contribution in Hansard ↗
Second reading speech
Davey supports the bill and says it will make airlines accountable by setting minimum standards for passengers when flights are delayed, cancelled or denied boardingWhen an airline refuses to let a passenger board a flight, even though they have a booking or ticket.. She argues this is especially important for regional Australians and urges the Senate to back it so customers are put first.
“This bill will establish minimum standards, which is not too much to ask. This bill will have standards for how passengers should be treated when they experience delays, cancellations and sometimes denial of boarding because of the airlines. It's not because of the fog, not because of safety issues, but because the airlines are treating customers as fools. I commend this bill to the Senate. I implore my colleagues to support this bill, hold the airlines to account and put customers first. It is good customer service and it is good common courtesy.”Read this contribution in Hansard ↗
Record
Senate · Introduced and read a first time
Introduced
The bill was formally presented to the chamber and read a first time, which starts its parliamentary journey.
Senate · Second reading moved
Second reading opened
A minister or sponsoring member moved the second reading, opening the main debate on the bill's purpose and principles.
Senate · Second reading debate
Second reading debate
The bill reached this recorded parliamentary step.
Senate · Second reading debate
Second reading debate
The bill reached this recorded parliamentary step.
Senate · Lapsed at end of Parliament
Lapsed at end of Parliament
The bill reached this recorded parliamentary step.
Senate Standing Committee for the Scrutiny of Bills
Considered
The scrutiny committee recorded that it considered the bill in Scrutiny Digest 4 of 2024.
Considered by scrutiny committee (20 Mar 2024): Senate Standing Committee for the Scrutiny of Bills; Scrutiny Digest 4 of 2024
Collected source bundleSenate Rural and Regional Affairs and Transport Legislation Committee; Committee report (24/03/2025)
Referred to committee
Referred to Committee (16 May 2024): Senate Rural and Regional Affairs and Transport Legislation Committee; Committee report (24 Mar 2025)
APH bill page notes
