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Coverage

Baggage

EU air carrier liability for baggage (Regulation (EC) No 2027/97)

SupranationalEURead off primary law

European Union / EEA (air carrier liability for baggage)

Rule id
baggage.eu
Version
2.0.0
In force from
June 28, 2004
Last read against its sources
August 5, 2026
Countries bound
31 countries

In plain language

What this regime says.

Regulation (EC) No 2027/97, as amended in 2002, makes the Montreal Convention liability rules binding on EU and EEA airlines for all of their carriage of passengers and baggage — including flights that never leave one country, which the Convention itself does not cover. The baggage ceiling is the Convention ceiling: 1,519 SDR per passenger since 28 December 2024.

Who is covered

Anyone flying with a carrier licensed in an EU or EEA State, or in Switzerland under the EU–Swiss air transport agreement, on any route — international, intra-EU or purely domestic.

What you get

Proven baggage loss up to 1,519 SDR per passenger, on the same strict-liability basis as the Convention, plus an EU regulator with a mandate to enforce it and an ADR route that the Convention alone does not give you.

Where claims go wrong

  • Airlines tell domestic passengers the Convention does not apply. It does not — but the Regulation does, and it imports the same limits.
  • The Annex to the Regulation still prints the original 1,000 SDR figure. The operative figure is 1,519 SDR after the ICAO revisions.
  • The Regulation imports the Convention's deadlines too: 7 days for damage, 21 for delay, and 2 years to sue. These are much shorter than the national limitation periods that apply to EU261 compensation.
  • A special declaration of interest at check-in raises the ceiling, and Art. 6 obliges the carrier to tell you the option exists.
  • EU261 compensation and a baggage claim are different losses, though Art. 12(1) of Regulation 261/2004 lets the carrier set one off against genuinely overlapping damages.
The official claim route

Authority

Every citation,
with its pinpoint.

A claim that cites “EU law” gets filed. A claim that cites Article 7(1)(c) gets answered. These are the exact coordinates this entry rests on.
  1. Regulation (EC) No 2027/97, Art. 1 (as amended by Regulation (EC) No 889/2002)Council Regulation (EC) No 2027/97 of 9 October 1997 on air carrier liability in respect of the carriage of passengers and their baggage by air, as amended by Regulation (EC) No 889/2002URL verified 2026-08-05Art. 1
  2. Regulation (EC) No 2027/97, Art. 3(1)Council Regulation (EC) No 2027/97 of 9 October 1997 on air carrier liability in respect of the carriage of passengers and their baggage by air, as amended by Regulation (EC) No 889/2002URL verified 2026-08-05Art. 3(1)
  3. Regulation (EC) No 2027/97, Art. 6 and AnnexCouncil Regulation (EC) No 2027/97 of 9 October 1997 on air carrier liability in respect of the carriage of passengers and their baggage by air, as amended by Regulation (EC) No 889/2002URL verified 2026-08-05Art. 6 and Annex
  4. Regulation (EC) No 889/2002Regulation (EC) No 889/2002 of the European Parliament and of the Council of 13 May 2002 amending Council Regulation (EC) No 2027/97URL verified 2026-08-05
  5. Montreal Convention 1999, Art. 17(2)Convention for the Unification of Certain Rules for International Carriage by Air (Montreal, 28 May 1999), ICAO Doc 9740URL verified 2026-08-05Art. 17(2)
  6. Montreal Convention 1999, Art. 19Convention for the Unification of Certain Rules for International Carriage by Air (Montreal, 28 May 1999), ICAO Doc 9740URL verified 2026-08-05Art. 19
  7. Montreal Convention 1999, Art. 22(2)Convention for the Unification of Certain Rules for International Carriage by Air (Montreal, 28 May 1999), ICAO Doc 9740URL verified 2026-08-05Art. 22(2)
  8. Montreal Convention 1999, Art. 31(2)–(4)Convention for the Unification of Certain Rules for International Carriage by Air (Montreal, 28 May 1999), ICAO Doc 9740URL verified 2026-08-05Art. 31(2)–(4)
  9. Montreal Convention 1999, Art. 35(1)Convention for the Unification of Certain Rules for International Carriage by Air (Montreal, 28 May 1999), ICAO Doc 9740URL verified 2026-08-05Art. 35(1)

Sources

Where a figure is indexed, converted or published by a regulator rather than fixed in the instrument, the provenance is recorded separately. Anything marked as a modelled estimate is exactly that — a model, not a statutory number.

What it imposes

Clocks, defences and the ladder.

A rule module builds these while it evaluates, because a limitation period depends on which forum is open to you. What follows is the structure this regime produces — deliberately with no dates and no figures, because those belong to your facts rather than to the law.

The clocks it starts

  • Twenty-one days to complain in writing about delay (Montreal Art. 31(2))Satisfied: the baggage was placed at your disposal on 2026-07-15 and you complained in writing on 2026-07-12.Montreal Convention 1999, Art. 31(2)–(4) — Art. 31(2)–(4)Notice period
  • Two years to bring an action (Montreal Art. 35)Fatal if missedThe Regulation applies the Convention in full, including the Art. 35 two-year period, which extinguishes the right rather than merely barring the remedy. Complaining to the airline or to a national enforcement body does not suspend it. Note the contrast with EU261 compensation, where the limitation period is a matter of national law and can be much longer.Montreal Convention 1999, Art. 35(1) — Art. 35(1)Limitation period

What it entitles you to, beyond money

  • The carrier must have told you the limitsArt. 6 and the Annex require every Community carrier to give passengers a summary of the liability rules, including the baggage limits and the availability of a special declaration of interest. If you were never told you could declare a higher value, say so — it undercuts any argument that you accepted the standard limit with your eyes open.Art. 6 and Annex
  • Reimbursement of reasonable interim purchasesBuy what you reasonably need while the bag is missing and claim it. The carrier's published daily allowance is a settlement policy, not the measure of damages under Art. 19.Art. 19
  • Complain to the national enforcement bodyEach Member State designates a body to enforce EU air passenger law. Unlike the Convention, the Regulation is enforceable in EU administrative law, so there is a regulator with a mandate — use it, and use the European Consumer Centre if you bought the ticket in a different Member State from the one you are complaining in.Art. 1

What the other side will say

Each of these is a refusal this regime lets a counterparty attempt, paired with the answer to it. Reading them before you write is worth more than any amount of polish on the letter itself.

The Montreal Convention does not apply to domestic flights

high likelihood

On an intra-Member-State flight the carrier says the Convention is confined to international carriage, so only its own conditions of carriage apply.

What answers it

The premise is right and the conclusion is wrong. Art. 1 of Regulation 2027/97, as amended by Regulation 889/2002, extends the Convention rules to carriage by air within a single Member State, and Art. 3(1) makes the liability of a Community air carrier governed by all relevant provisions of the Convention. The 1,519 SDR ceiling applies to your domestic flight as a matter of directly applicable EU law.

Regulation (EC) No 2027/97, Art. 1 (as amended by Regulation (EC) No 889/2002) — Art. 1

The limit is per bag, not per passenger

high likelihood

The airline offers one limit per checked bag, or divides the limit between the bags on the ticket, so that a passenger who lost two bags is told each is worth half.

What answers it

Art. 22(2) fixes the limit "for each passenger". It is a single ceiling covering destruction, loss, damage AND delay of all of that passenger's baggage combined — one limit per passenger, however many bags. It is also a ceiling, not a tariff: below it, the passenger recovers proven loss.

Montreal Convention 1999, Art. 22(2) — Art. 22(2)

We apply depreciation to your items

high likelihood

The airline applies a standard depreciation schedule — often 10–20% per year of age, or a flat percentage of purchase price — and pays a fraction of what replacement actually costs.

What answers it

The Convention says nothing about depreciation. Art. 17(2) makes the carrier liable for the damage sustained, and Art. 22(2) caps it; neither authorises a deduction schedule. Depreciation is the carrier's internal settlement policy, not law, and it is negotiable. Ask for the contractual or statutory basis for the schedule in writing — there is none — and claim the cost of replacing the items.

Montreal Convention 1999, Art. 17(2) — Art. 17(2)

You have not proved what was in the bag

high likelihood

The airline pays only for items backed by an original purchase receipt and refuses the rest.

What answers it

Proof of loss is a question of evidence, not of a receipt rule. Bank and card statements, photographs, warranty registrations, insurance schedules and a signed inventory are all evidence a court will weigh. The Convention imposes no receipts-only standard, and requiring one for ordinary clothing would make the Art. 17(2) liability illusory.

Montreal Convention 1999, Art. 17(2) — Art. 17(2)

Here is a travel voucher instead

high likelihood

The airline offers a flight voucher, loyalty miles or a goodwill credit rather than money, often expiring within a year.

What answers it

The Convention entitlement is to damages, payable in money. Art. 23(1) even prescribes how the SDR figure converts into national currency. A voucher is an offer to settle, and accepting it usually extinguishes the claim; there is no obligation to take one.

Montreal Convention 1999, Art. 23(1) — Art. 23(1)

The limit is 1,000 SDR — it says so in the Annex

medium likelihood

The carrier quotes the passenger-information notice in the Annex to the Regulation, which still recites the original 1999 figures of 1,000 SDR for baggage.

What answers it

The Annex is an information notice that was never updated, not the operative limit. Art. 3(1) applies "all provisions of the Montreal Convention relevant to such liability", and Art. 22(2) of the Convention is subject to the Art. 24 revision mechanism, under which ICAO raised the figure to 1,288 SDR from 28 December 2019 and to 1,519 SDR from 28 December 2024. The carrier is quoting a superseded number.

Montreal Convention 1999, Art. 24 — Art. 24

We already paid you EU261 compensation

medium likelihood

Where the flight was also delayed or cancelled, the carrier treats the EU261 payment as discharging the baggage claim too.

What answers it

They are different losses. EU261 compensates the disruption of the journey; this compensates the baggage. Art. 12(1) of Regulation 261/2004 does allow EU261 compensation to be deducted from further damages arising out of the same facts, so expect an argument about overlap where you are claiming for the same expenses twice — but a lost suitcase is not a delayed arrival, and the carrier must identify the actual double recovery it says exists.

Regulation (EC) No 261/2004, Art. 12(1) — Art. 12(1)

Where to take it next

  1. Written claim to the airlineCite Art. 3(1) of Regulation (EC) No 2027/97 and Montreal Art. 17 or 19 and 22(2). On a domestic flight, cite Art. 1 as well — it is the provision the carrier will overlook.Claim directtypically 30 days
  2. Escalate within the airlineReject a depreciation-based part payment or a voucher in writing and ask for the legal basis of the deduction.Internal appealtypically 30 days
  3. Approved ADR body or European Consumer CentreMost Member States have an approved ADR scheme covering air travel, and the ECC-Net will take up a cross-border complaint free of charge. ADR is quicker than court and free to the passenger in most schemes.Alternative dispute resolutiontypically 90 daysofficial page
  4. National enforcement body for air passenger rightsThe designated national body in the Member State of departure, or of the carrier's licence. It enforces the Regulation as EU law, which is a stronger position than a Convention complaint with no regulator behind it.Regulatortypically 120 days
  5. European Small Claims Procedure or national small claimsBinding on themThe European Small Claims Procedure covers cross-border claims up to EUR 5,000 and is designed to be used without a lawyer. Issue before the Montreal two-year period expires — an ADR complaint does not stop that clock.Small claimstypically 120 days

Documents

What this regime can produce.

Every one of these is a document you send yourself, in your own name. Duesday never writes to anybody on your behalf and is never anyone’s agent.

Other rights in the same countries

Austria — ÖBB FahrgastrechteATNationalAustriaRegulation (EU) 2021/782 as applied in AustriaConfidence: lowAustria — rental deposit (Allgemeines Bürgerliches Gesetzbuch (ABGB) § 16b, and the Mietrechtsgesetz (MRG))ATNationalAustriaAllgemeines Bürgerliches Gesetzbuch (ABGB) § 16b, and the Mietrechtsgesetz (MRG)Confidence: lowBelgium — action en réparation collective (Code de droit économique, Book XVII)BENationalBelgiumCode de droit économique / Wetboek van economisch recht, Livre XVII, Titre 2 (arts. XVII.35 et seq.)Confidence: lowBelgium — rental deposit (Regional housing codes: Vlaams Woninghuurdecreet, Décret wallon relatif au bail d’habitation, Code bruxellois du Logement)BENationalBelgiumRegional housing codes: Vlaams Woninghuurdecreet, Décret wallon relatif au bail d’habitation, Code bruxellois du LogementConfidence: lowBelgium — SNCB/NMBS compensation for delays and for repeated delays on season ticketsBENationalBelgiumRegulation (EU) 2021/782 as applied in BelgiumConfidence: lowBulgaria — rental deposit (Закон за задълженията и договорите (Obligations and Contracts Act), наем)BGNationalBulgariaЗакон за задълженията и договорите (Obligations and Contracts Act), наемConfidence: lowCroatia — rental deposit (Zakon o najmu stanova and the Zakon o obveznim odnosima)HRNationalCroatiaZakon o najmu stanova and the Zakon o obveznim odnosimaConfidence: lowCyprus — rental deposit (Rent Control Law of 1983 (23/1983) for controlled tenancies, and the general law of contract)CYNationalCyprusRent Control Law of 1983 (23/1983) for controlled tenancies, and the general law of contractConfidence: low

Does this one reach your facts?

The engine runs every regime that could apply at once and reconciles them, rather than making you guess which page to read.

Not a law firm. Not legal advice. You send it yourself. This page describes a law; it is not advice about your situation and no outcome is promised.