Annexes to COM(2021)90 - Application of Directive 2015/2302 on package travel and linked travel arrangements

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dossier COM(2021)90 - Application of Directive 2015/2302 on package travel and linked travel arrangements.
document COM(2021)90 EN
date February 26, 2021
Annex I, Part A, B and C.

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     Annex II, Part A, B, C, D and E.

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Ref. no. ARES(2020)270448.

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   Regulation (EC) No 261/2004 of the European Parliament and of the Council of 11 February 2004 establishing common rules on compensation and assistance to passengers in the event of denied boarding and of cancellation or long delay of flights, and repealing Regulation (EEC) No 295/91 (OJ L 46, 17.2.2004, p. 1); Regulation (EC) No 1371/2007 of the European Parliament and of the Council of 23 October 2007 on rail passengers’ rights and obligations (OJ L 315, 3.12.2007, p. 14); Regulation (EU) No 1177/2010 of the European Parliament and of the Council of 24 November 2010 concerning the rights of passengers when travelling by sea and inland waterway and amending Regulation (EC) No 2006/2004 (OJ L 334, 17.12.2010, p. 1); Regulation (EU) No 181/2011 of the European Parliament and of the Council of 16 February 2011 concerning the rights of passengers in bus and coach transport and amending Regulation (EC) No 2006/2004 (OJ L 55 28.2.2011, p. 1).

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   See no. 53 of Annex I of Directive (EU) 2020/1828 of the European Parliament and of the Council of 25 November 2020 on representative actions for the protection of the collective interests of consumers and repealing Directive 2009/22/EC, OJ L 409, 4.12.2020, p. 1.

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     Regulation (EU) 2017/2394 of the European Parliament and of the Council of 12 December 2017 on cooperation between national authorities responsible for the enforcement of consumer protection laws and repealing Regulation (EC) No 2006/2004, OJ L 345, 27.12.2017, p. 1, point 25 of the annex.

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   Directive 2013/11/EU of the European Parliament and of the Council of 21 May 2013 on alternative dispute resolution for consumer disputes and amending Regulation (EC) No 2006/2004 and Directive 2009/22/EC (Directive on consumer ADR), OJ L 165, 18.6.2013, p. 63.

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   Regulation (EU) No 524/2013 of the European Parliament and of the Council of 21 May 2013 on online dispute resolution for consumer disputes and amending Regulation (EC) No 2006/2004 and Directive 2009/22/EC (Regulation on consumer ODR), OJ L 165, 18.6.2013, p. 1.

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   See Report from the Commission to the European Parliament, the Council and the European Economic and Social Committee on the application of Directive 2013/11/EU of the European Parliament and of the Council on alternative dispute resolution for consumer disputes and Regulation (EU) No 524/2013 of the European Parliament and of the Council on online dispute resolution for consumer disputes, COM(2019) 425 final, 25.9.2019.

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     Information about the areas of competence of ADR bodies is available on the ODR platform: https://ec.europa.eu/consumers/odr/main/?event=main.adr.show2

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   During the period March to December 2020, consumers submitted 323 complaints via the Commission’s ODR platform against online traders in the field of package travel.

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   E.g. the German conciliation body for passenger transport söp and general consumer conciliation body.

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   See MTV’s 2019 annual report, www.mtv.travel/wp-content/uploads/2020/05/RAPPORT-2019.pdf

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   See also the 2020 annual report of the Universalschlichtungsstelle des Bundes, https://www.verbraucher-schlichter.de/media/file/84.Taetigkeitsbericht2020.pdf  

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   ECC Net is a network of independently-managed offices co-funded by the European Commission. It provides free information and advice to consumers who purchase products and services within the EU and assists with out-of-court settlement of disputes arising between traders and consumers from different EU Member States.

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   Queries cover all requests for information and assistance received by ECCs; complaints cover cases where ECCs contact the trader to find a solution.

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   Further information about the context in which the increase in travel related queries occurred is available in the report 15 Years of ECC Net: https://assets.website-files.com/5f9fdbf6d1bfacd47b425986/5fa40a62acd24ca8c8ddc07c_2020-10-30-Report-ECCNET-Web.pdf

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   Neutral outcome is when the case is referred to an ADR body or when the consumers fail to progress their case (e.g. does not supply documentation requested by ECC).

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   The comparison is between complaints that were both made and resolved in 2020 and complaints that were made and resolved in 2019.

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      https://www.epc.si/media/2020/Package-travel-across-the-EU_ENG.pdf

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    https://www.caa.co.uk/News/99--of-Thomas-Cook-claims-now-settled/?catid=159  

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   https://www.newsroom.zurich.de/pressreleases/zurich-startet-mit-erstattungen-an-kunden-der-insolventen-thomas-cook-deutschland-gmbh-bundesregierung-stellt-ausgleich-fuer-thomas-cook-kunden-in-punkt-punkt-punkt-2952671

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   See https://www.newsroom.zurich.de/pressreleases/thomas-cook-insolvenz-zurich-startet-zweiten-zahlungslauf-3041808

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   See the Federal Government’s press communication 417 of 11 December 2019, https://www.bundesregierung.de/breg-de/aktuelles/pressemitteilungen/bundesregierung-laesst-thomas-cook-kunden-nicht-im-regen-stehen-1705836 . As reaction to the Thomas Cook bankruptcy, the German Government decided to reform the insolvency protection system for package travel, see https://www.bmjv.de/SharedDocs/Pressemitteilungen/DE/2020/061020_Insolvenzsicherung_Reiserecht.html

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   See also information about the procedure to register claims on the website of the German Ministry of Justice and for Consumer protection https://www.bmjv.de/SharedDocs/Pressemitteilungen/DE/2020/111220_Thomas_Cook.html (accessed on 15 December 2020) .

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See recital 7 of the Commission Decision of 4.2.2021 in State aid case SA.60521, https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_60521

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   See minutes of the 4th meeting of the PTD stakeholder expert group (24.11.2020).

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   See minutes of the 3rd meeting of the PTD stakeholder expert group (3.12.2019).

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   See judgments of the Bundesgerichtshof of 9.12.2014, X ZR 13/14, and of 25.7.2017, X ZR 71/16, http://juris.bundesgerichtshof.de/cgi-bin/rechtsprechung/document.py?Gericht=bgh&Art=en&sid=4803bc48cdfac870b7acb7fba96c1c46&nr=70492&pos=0&anz=1 , Urteil des X. Zivilsenats vom 25.7.2017 - X ZR 71/16 - (bundesgerichtshof.de)

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   See §4(4) of the Package Travel Order (Pauschalreiseverordnung): pre-payments may only be accepted 11 months before the agreed end of the trip; pre-payments of more than 20% may only be requested 20 days before the start of the trip, unless unlimited insolvency protection is available.

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   See position paper of the Verband Deutsches Reisemanagement e.V. of May 2020 at https://www.vdr-service.de/fileadmin/der-verband/politische-arbeit/vdr-positionen/2020-05_VDR-Position_Payment-Practice-Airline-Tickets_Pay-As-You-Check-In.pdf ; Gutachten Vorkasse im Reise- und Flugbereich (Dec. 2020) commissioned by the German consumer organisation vzbv (not yet published); minutes of the 3rd meeting of the PTD stakeholder expert group (3.12.2019). See also Commission Staff Working Document SWD(2020) 331 final, 9.12.2020, point 947.

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   According to the UK consumer organisation Which?, package holidays are cheaper for 2021 summer holidays than ‘do it yourself’ bookings, see https://www.which.co.uk/news/2020/11/package-holiday-deals-cheaper-for-summer-2021-versus-booking-diy/ (accessed on 16.12.2020)

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   European Parliament resolution of 24 October 2019 on the negative impact of the bankruptcy of Thomas Cook on EU tourism ( 2019/2854(RSP) ), https://www.europarl.europa.eu/doceo/document/B-9-2019-0120_EN.pdf  

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    https://a4e.eu/wp-content/uploads/aviation-round-table-report-16-11-2020.pdf , page 10.

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   Communication from the Commission COM(2020) 789 final, point 91.

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     United Nations World Tourism Organization (UNWTO), expressed in international tourist arrivals, see https://www.unwto.org/international-tourism-and-covid-19 . The European Travel Agents’ and Tour Operators' Associations (ECTAA) reports an average of minus 80% of turnover compared to 2019, see https://www.ectaa.org/Uploads/press-releases/PUBS-PR-20201218-2020-The-year-travel-stopped.pdf . Eurostat data show a 49% decline in the number of nights spent in EU tourist accommodation establishments for the period January-September 2020, see https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Tourism_statistics_-_nights_spent_at_tourist_accommodation_establishments&stable=1#First_semester_of_2020:_dramatic_drop_in_number_of_nights_spent_in_EU_tourist_accommodation . Based on April-May 2020 data, the Commission’s Joint Research Centre estimated a 68% decline by the end of the year in case of a ‘second wave scenario`, Behavioural changes in tourism in times of COVID-19, https://publications.jrc.ec.europa.eu/repository/bitstream/JRC121262/report_covid_tour_emp_final.pdf .

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   Behavioural changes in tourism in times of COVID-19, https://publications.jrc.ec.europa.eu/repository/bitstream/JRC121262/report_covid_tour_emp_final.pdf .

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   See BEUC’s Evaluation of the Member States Implementation of the EU Commission Recommendation on ‘vouchers’ of 14.12.2020, https://www.beuc.eu/publications/travel-voucher-chaos-continues-several-eu-countries-and-travel-industry-still-flouting/html

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     According to the minutes of the 2nd transposition workshop of 13 June 2016 (p. 19) “unavoidable and extraordinary circumstances” within the meaning of the PTD imply that the relevant event was not predictable or foreseeable at the time of the booking, available at
https://ec.europa.eu/newsroom/just/item-detail.cfm?item_id=35324 . Those minutes do not reflect the official position of the Commission regarding the interpretation of the PTD. Article 4(6)(ii) of Council Directive 90/314/EEC used the term “force majeure, i.e. unusual and unforeseeable circumstances beyond the control of the party by whom it is pleaded, the consequences of which could not have been avoided even if all due care had been exercised”.

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      https://ec.europa.eu/info/sites/info/files/coronavirus_info_ptd_19.3.2020.pdf , published on the Commission’s COVID-19 response website https://ec.europa.eu/info/live-work-travel-eu/health/coronavirus-response/travel-and-transportation_en

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   See in this respect e.g. the decision of the German Government of 2 April 2020 to request the Commission to submit at EU level proposals on package travel and passenger rights that should temporarily replace cash refunds by vouchers in case of COVID-19 related cancellations, https://www.bundesregierung.de/breg-de/aktuelles/im-sogenannten-corona-kabinett-der-bundesregierung-wurde-heute-folgender-beschluss-fuer-eine-gutscheinloesung-bei-pauschalreisen-flugtickets-und-freizeitveranstaltungen-gefasst--1738744

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   Ref. no ARES(2020)1801052.

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   OJ L 151, 14.5.2020, p. 10–16.

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   Ref. no. ARES(2020)2559372.

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   See also FAQ document on Commission’s coronavirus response website: https://ec.europa.eu/info/sites/info/files/passenger-rights-faqs_3107_en.pdf

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     In its resolution of 19 June 2020 on transport and tourism in 2020 and beyond the European Parliament called on the Commission to propose common EU rules on the terms and conditions of the vouchers issued related to COVID-19 while maintaining a high level of consumer protection; it also suggested exploring the possibility of establishing a European Travel Guarantee scheme for companies to secure financial liquidity in order to guarantee refunds to travellers as well as repatriation costs, together with fair compensation for any damages incurred in the event of bankruptcy, see https://www.europarl.europa.eu/doceo/document/TA-9-2020-0169_EN.html , points 14 and 15.

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   E.g. Cyprus, Germany, Hungary, Latvia provided a regulatory framework for voluntary vouchers; Greece and Italy did the same after the opening of infringement procedures. Denmark, Germany, the Netherlands, Poland adopted State aid measures in support of insolvency protection systems.

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   See Communication from the Commission of 19 March 2020 - Temporary Framework for State aid measures to support the economy in the current COVID-19 outbreak, OJ C 91I, 20.3.2020, p. 1 . The Temporary Framework was amended on 3 April, 8 May, 29 June, 13 October 2020 and 28 January 2021, see informal consolidated version on the Commission’s website under https://ec.europa.eu/competition/state_aid/what_is_new/covid_19.html

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   Under Article 107(3)(b) of the TFEU, whilst taking into account, by analogy, certain requirements of the Temporary Framework.

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   See BEUC’s report “Covid-19 and EU Travellers’ Right - Evaluation of the Member States Implementation of the EU Commission Recommendation on ‘vouchers’” of 14.12.2020, https://www.beuc.eu/publications/travel-voucher-chaos-continues-several-eu-countries-and-travel-industry-still-flouting/html  

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     See Commission’s press communications of 2 July and 30 October 2020 (under point 5 – Justice): https://ec.europa.eu/commission/presscorner/detail/en/INF_20_1212 and https://ec.europa.eu/commission/presscorner/detail/en/inf_20_1687

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Letter of 30.10.2020 addressed to ten Member States, ref. no ARES(2020)6156146.

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     See footnote 68.

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See footnote 69.

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      https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_56856

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      https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_57741

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      https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_58102  

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   https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_59755

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https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_57985

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    https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_59990

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    https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_59668  

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   https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_59639

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   https://ec.europa.eu/competition/elojade/isef/case_details.cfm?proc_code=3_SA_60521

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   See BEUC’s report referred to in footnote 70 and its survey among their members regarding complaints in the package travel sector (not published).

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   Recital 13 of the Commission Recommendation (EU) 2020/648.

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   The Commission proposal for the PTD, COM(2013) 512 final of 9.7.2013, stated in its recital 26: “Unavoidable and extraordinary circumstances should in particular be deemed to exist where reliable and publicly available reports, such as recommendations issued by Member State authorities, advise against travelling to the place of destination.” This statement was deleted during the legislative negotiations.

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     Council Recommendation (EU) 2020/1475 of 13 October 2020 on a coordinated approach to the restriction of free movement in response to the COVID-19 pandemic, OJ L 337, 14.10.2020, p. 3.

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      https://reopen.europa.eu/en

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   Council Recommendation (EU) 2021/119 of 1 February 2021 amending Recommendation (EU) 2020/1475 on a coordinated approach to the restriction of free movement in response to the COVID-19 pandemic, OJ L 36I, 2.2.2021, p. 1.

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   Act of 10 July 2020 to mitigate the consequences of the COVID-19 outbreak in package travel contract law, BGBl 2020 Teil I Nr. 35 of 16.7.2020, p. 1643.

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   Government Decree 242/2020 of 27 May on the special rules applicable to contracts for travel services during an emergency.

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     Law on the Management of the Spread of COVID-19 Infection, chapter V, section 46, Latvijas Vēstnesis, 110A, 09.06.2020, OP number: 2020/110A.1.

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   The Emergency Measures in the Tourism Sector Law of 2020, Law 59(I)/2020 of 22 May 2020.

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     https://www.gov.ie/en/publication/1ae3d-refund-credit-note/ 

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   See Recital 14 of Recommendation 2020/648. See also page 6 of the minutes of the 3rd transposition workshop of the PTD (25 Oct. 2016) which state: “The wording of Article 17(1) suggests that, if the contract was terminated before the insolvency occurs, the performance was no longer due at the time when the insolvency occurred, meaning that the insolvency did not cause the lack of performance of the travel services. Under Article 17 (1), insolvency protection seems to cover only loss of money due to lack of performance, but not claims for refunds which existed already at the time of insolvency.” The minutes, which are available at https://ec.europa.eu/newsroom/just/item-detail.cfm?item_id=35324 , do not reflect the official position of the Commission with regard to the interpretation of the PTD.

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   According to information available to the Commission, the value of ‘mandatory’ Corona vouchers issued in France is around 850 million EUR and in Belgium around 300 million EUR. The main Dutch guarantee fund covers vouchers with a value of around 400 million EUR.

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     Recital 40 of the PTD states: “However, effective insolvency protection should not have to take into account highly remote risks, for instance the simultaneous insolvency of several of the largest organisers, where to do so would disproportionately affect the cost of the protection, thus hampering its effectiveness. In such cases the guarantee for refunds may be limited”.

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   See e.g. the analysis of the Belgian consumer organisation Test Achats published on 22.10.2020, https://www.test-achats.be/argent/assurances-assistance-voyage/dossier/coronavirus .

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   Communication from the Commission to the European Parliament and the Council, New Consumer Agenda - Strengthening consumer resilience for sustainable recovery, COM(2020) 696 final, 13.11.2020.

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Annex to COM(2020) 789 final, action 63.

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Annex to COM(2020) 789 final, action 64.

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149 respondents to the public consultation for the New Consumer Agenda replied to question 3 that EU rules on passengers’ and travellers’ rights in the passenger rights regulations and the PTD should be more aligned (37,91%); 43 replied that differences in the rules are appropriate (10,94%) and 201 replied with “don’t know” (51,15%), see summary report available at https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/12464-A-New-Consumer-Agenda/public-consultation .

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159 respondents to the public consultation for the New Consumer Agenda replied to question 2 whether specific rules (e.g. longer reimbursement deadlines or vouchers) should apply in a situation where worldwide travel restrictions have caused almost a standstill of travel with “yes” (40,46%); 56 respondents replied “no” (14,25%) and 178 replied “don’t know” (45,29%), see summary report available at https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/12464-A-New-Consumer-Agenda/public-consultation .