Text · Report parliamentary committee draft
On the proposal for a directive of the European Parliament and of the Council amending Directive (EU) 2015/2302 to make the protection of travellers more effective and to simplify and clarify certain aspects of the Directive
Full title
On the proposal for a directive of the European Parliament and of the Council amending Directive (EU) 2015/2302 to make the protection of travellers more effective and to simplify and clarify certain aspects of the Directive
Document IMCO-PR-768075 · COM(2023)0905 – C90436/2023 – 2023/0435(COD)
- Kind
- Report parliamentary committee draft IMCO-PR-768075
- Date
- 25 February 2025
- Committee
- Committee on the Internal Market and Consumer Protection
- Rapporteur
- Alex Agius Saliba
- Dossier
- 2023/0435(COD)
More facts (3)
- Formats
- Official page PDF Word
- Subject matter
- MARI, RAPL, PROT
- Reference
- COM(2023)0905 – C90436/2023 – 2023/0435(COD)
In short
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The draft report proposes amendments to the Commission's proposal amending the Package Travel Directive to strengthen traveller protection and simplify rules. It redefines when bookings constitute a package, limits downpayments to 25% with exceptions, clarifies termination rights, regulates vouchers, and strengthens insolvency protection and enforcement.
Position. The rapporteur proposes amendments to the Commission proposal, simplifying the package definition, adjusting downpayment rules, clarifying termination rights, and strengthening enforcement.
Key points
- Travel services booked within the same booking process are considered a package; when the trader invites additional bookings, the window extends to 72 hours after the first contract.
- Downpayments are capped at 25% of the total price, except for packages booked less than 28 days before start; higher downpayments allowed to cover advance payments and costs.
- Member States may require retailers to place downpayments in a trusted account to secure consumer pre-payments until the start of the package.
- The information form in Annex I must be attached to the contract or made available electronically at the time of concluding the contract.
- Travellers can terminate without fee for unavoidable and extraordinary circumstances at the destination, departure, or affecting the journey; official travel warnings within 28 days before start give a right to terminate and full refund.
- Vouchers must be usable for all travel services, redeemable in parts, transferable once free of charge; further transfers may incur a reasonable administrative fee.
- Insolvency protection must cover refunds and repatriations at all times, considering periods of highest payments; proof of contract and payment is sufficient for refund requests.
- The Commission must centralise and publish information on insolvency protection schemes and central contact points on its website.
- Organisers and retailers must set up complaint-handling mechanisms, acknowledge complaints within 7 days, and reply within 21 days.
- Penalties for infringements must include fines of at least 4% of annual turnover or at least 2 million EUR when turnover is unavailable.
- Participation in alternative dispute resolution is mandatory for organisers, retailers, and intermediaries, with binding decisions.
Who is affected
- Travellers: benefit from clearer package definitions, downpayment limits, termination rights, and easier refunds.
- Organisers and retailers: face new obligations on downpayments, information, complaint handling, and penalties.
- Member States: must enforce penalties, may set up trusted accounts, and designate central contact points.
- The Commission: must centralise and publish insolvency protection information.
Figures and deadlines
- 72 hours after the first contract for additional bookings invited by the trader.
- 25% of the total price as maximum downpayment.
- 28 days before the start of the package for remaining payment and for official travel warnings.
- 14 days after the validity period for voucher refunds.
- Three months after submitting documents for insolvency refunds.
- 7 days to acknowledge a complaint and 21 days to reply.
- 4% of annual turnover as minimum maximum fine.
- 2 million EUR as minimum maximum fine when turnover is unavailable.
Legal basis. Article 294(2) and Article 114 of the Treaty on the Functioning of the European Union
Text
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Jump to an amendment (19)
Draft european parliament legislative resolution
–having regard to Article 294(2) and Article 114 of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C9 0436/2023),
–having regard to the reasoned opinions submitted, within the framework of Protocol No 2 on the application of the principles of subsidiarity and proportionality, by the Czech Senate and the Spanish Parliament, asserting that the draft legislative act does not comply with the principle of subsidiarity,
–having regard to the report of the Committee on the Internal Market and Consumer Protection (A100000/2025),
2.Calls on the Commission to refer the matter to Parliament again if it replaces, substantially amends or intends to substantially amend its proposal;
3.Instructs its President to forward its position to the Council, the Commission and the national parliaments.
| Text proposed by the Commission | Amendment |
|---|---|
| (7) In the context of bookings made within a short period of time at one point of sale, it is appropriate to replace the rather vague criterion of ‘a single visit or contact’. Therefore, bookings of different types of travel services for the same trip of holiday made within three hours should always be considered as packages. The same should apply where, before the completion of a first booking, a trader invites a traveller to book additional services for the same trip or holiday after completing the first booking, and where subsequent bookings take place within 24 hours after the conclusion of the first contract. | (7) In the context of bookings made within a short period of time at one point of sale, it is appropriate to replace the rather vague criterion of ‘a single visit or contact’. Therefore, bookings of different types of travel services for the same trip of holiday where, before the completion of a first booking, a trader invites a traveller to book additional services for the same trip or holiday after completing the first booking, and where subsequent bookings take place within 72 hours after the conclusion of the first contract should be considered as packages. |
| Text proposed by the Commission | Amendment |
|---|---|
| (25a) Compliance with this Directive should be enforceable by means of the imposition of penalties and other enforcement measures. Member States should take all necessary measures to ensure that the provisions of this Directive are implemented, including by laying down effective, proportionate and dissuasive penalties applicable to infringements of national provisions adopted pursuant to this Directive, and to respect the ne bis in idem principle. When assessing the amount of fines, Member States should, in each individual case, take into account all relevant circumstances of the specific situation, with due regard in particular to the nature, gravity, scale and duration of the infringement and of its consequences and to the size of the provider, in particular if the provider is an SME, including start-ups. |
| Text proposed by the Commission | Amendment |
|---|---|
| ‘The purpose of this Directive is to contribute to the proper functioning of the internal market and to the achievement of a high and as uniform as possible level of consumer protection by approximating certain aspects of the laws, regulations and administrative provisions of the Member States in respect of contracts between travellers and traders relating to package travel and linked travel arrangements, as well as certain aspects of contracts between organisers of packages and service providers’. | ‘The purpose of this Directive is to contribute to the proper functioning of the internal market and to the achievement of a high and as uniform as possible level of consumer protection by approximating and simplifying certain aspects of the laws, regulations and administrative provisions of the Member States in respect of contracts between travellers and traders relating to package travel and linked travel arrangements, as well as certain aspects of contracts between organisers of packages and service providers’. |
We should be clear about the objective to simplify certain aspects of the law related to Package Travel.
| Text proposed by the Commission | Amendment |
|---|---|
| – other types of travel services are booked within 3 hours after the traveller agreed to pay for the first travel service, or | – other types of travel services are booked within the same booking process, or |
Different stakeholders have indicated that it will be technically and operationally difficult to keep track of the 3 hours limit when the initiative comes from the consumer to return and book additional travel services. We maintain that travel services booked within the same booking process will constitute a package, but without the specific time limit.
| Text proposed by the Commission | Amendment |
|---|---|
| – other types of travel services are booked within 24 hours after the traveller agreed to pay for the first travel service and if, before the traveller agreed to pay for the first travel service, the trader invited the traveller to subsequently book one or more additional types of travel services, or | – other types of travel services are booked within 72 hours after the traveller agreed to pay for the first travel service and if, before the traveller agreed to pay for the first travel service, the trader invited the traveller, for example by means of retargeting through its digital channels, to subsequently book one or more additional types of travel services, or |
When the trader takes the initiative to retarget the consumer to buy additional travel services they can keep track of the time limit and we propose a 3 day time limit for the constitution of a package. Instead of the 3 hour limit for booking additional travel services on the initiative of the consumer we add to this paragraph that travel services bought within the same booking process will constitute a package.
| Text proposed by the Commission | Amendment |
|---|---|
| Member States shall ensure that, except for packages as defined in Article 3, point (2)(b)(iv), and packages booked less than 28 days before the start of the package, the organiser or, where applicable, the retailer shall not request downpayments exceeding 25% of the total price of the package and shall not request the remaining payment earlier than 28 days before the start of the package. The organiser, or where applicable, the retailer may request higher downpayments where this is necessary to ensure the organisation and the performance of the package. The downpayments may cover advance payments to providers of services included in the package and costs incurred by the organiser, or where applicable the retailer, specifically in relation to the organisation and performance of the package insofar as it is necessary to cover those costs at the time of booking. | Member States shall ensure that, except for packages as defined in Article 3, point (2)(b)(iv), and packages booked less than 28 days before the start of the package, the organiser or, where applicable, the retailer shall not request downpayments exceeding 25% of the total price of the package and shall not request the remaining payment earlier than 28 days before the start of the package. The organiser, or where applicable, the retailer may request higher downpayments where this is necessary to cover for advance payments and to ensure the organisation and the performance of the package. The downpayments may cover advance payments to providers of services included in the package and costs incurred by the organiser, or where applicable the retailer, specifically in relation to the organisation and performance of the package insofar as it is necessary to cover those costs at the time of booking. |
| Member States may decide to require retailers, that an amount or percentage of the down payment, or financial guarantees to be paid or provided by the traveller, shall put in a trusted account to hold and secure consumers pre-payments until the start of the package. The amount or percentage requested cannot be higher than 25% of the total price of the package and will exclude the advance payments to providers of services included in the package and costs incurred by the organiser, or where applicable the retailer, specifically in relation to the organisation and performance of the package. |
A limit of 25% for down payments of travel packages protects the consumer against insolvency or other risks, but we want to clarify that the organisers of package travel need to be able to request the costs they need to cover, for example on advance payments to service providers and transport companies. In addition, we insert the possibility for Member States to introduce a system of a trusted account to hold and secure consumers pre-payments until the beginning of the performance of the package travel contract.
| Text proposed by the Commission | Amendment |
|---|---|
| 2a. The relevant information form set out in Annex I shall be attached to the contract. The contract shall contain a clear reference to that information form. | 2a. The relevant information form set out in Annex I shall be attached to the contract or made available electronically at the time of concluding the contract. The contract shall contain a clear reference to that information form. |
The information set out in Annex I can be sent to the traveller electronically via email or a link to the website of the organiser.
| Commission proposal | Amendment |
| (6a) in Article 11, the following paragraph is added | |
| ‘6. If a change likely to alter the performance of the package travel contract occurs, between the conclusion of the package travel contract and the start of the package, organisers and, where applicable retailers, should immediately inform traveller about that change.’ |
We aim to strengthen the requirement to provide the traveller with immediate information on the changes to the performance of the package travel contract.
| Text proposed by the Commission | Amendment |
|---|---|
| 2. Notwithstanding paragraph 1, the traveller shall have the right to terminate the package travel contract before the start of the package without paying any termination fee in the event of unavoidable and extraordinary circumstances occurring at the travel destination or its immediate vicinity, at the place of the traveller’s residence or departure or affecting the journey to the destination, where such circumstances significantly affect the performance of the package. The traveller may terminate the contract where it can be reasonably expected that the performance of the package travel contract will be significantly affected by unavoidable and extraordinary circumstances. If the package travel contract is terminated in accordance with this paragraph, the traveller shall be entitled to a full refund of any payments made for the package but shall not be entitled to additional compensation. | 2. Notwithstanding paragraph 1, the traveller shall have the right to terminate the package travel contract before the start of the package without paying any termination fee in the event of unavoidable and extraordinary circumstances occurring at the travel destination or its immediate vicinity, at departure or affecting the journey of the traveller to the destination, where such circumstances significantly affect the performance of the package. The traveller may terminate the contract where it can be reasonably expected that the performance of the package travel contract will be significantly affected by unavoidable and extraordinary circumstances. If the package travel contract is terminated in accordance with this paragraph, the traveller shall be entitled to a full refund of any payments made for the package but shall not be entitled to additional compensation. |
We want to specify that the travel package organiser cannot be held accountable for any unavoidable and extraordinary circumstances occurring at the place of the traveller’s residence, but that these circumstances should be linked to the departure or affecting the complete journey of the traveller, often starting from his or her residence.
| Text proposed by the Commission | Amendment |
|---|---|
| 3a. Official warnings against travel to a particular destination issued by the authorities of the Member State of departure or traveller’s residence or the country of destination, or the fact that travellers will be subject to serious restrictions at the travel destination or in the Member State of residence or departure after returning from the trip or holiday, shall be important elements to be taken into account in the assessment of whether a termination of the contract based on paragraph 2 and paragraph 3, point (b), is justified.. | 3a. Official warnings against travel to a particular destination issued by the authorities of the Member State of departure or traveller’s residence or the country of destination, or the fact that travellers will be subject to serious restrictions at the travel destination or in the Member State of residence or departure after returning from the trip or holiday, for example related to obligatory quarantine requirements against the spread of contagious diseases, shall be important elements to be taken into account in the assessment of whether a termination of the contract based on paragraph 2 and paragraph 3, point (b), is justified. |
| Where the traveller provides the organiser with an official travel warning as referred to in the first subparagraph of this paragraph within 28 days before the start of the package travel contract, the traveller shall have the right to terminate the package travel contract and be entitled to a full refund of any payments made for the package. |
We aim to clarify that the restrictions are connected to the obligatory quarantine requirements against the spread of contagious diseases and that an official travel warning gives the traveller the right to terminate the package travel contract and receive a refund.
| Text proposed by the Commission | Amendment |
|---|---|
| 6. If the voucher is not redeemed within its validity period, the organiser shall refund the amount specified in the voucher as soon as possible and at the latest within 14 days after the end of the validity period without the need of any prior request by the traveller. | 6. Vouchers shall be usable for all travel services proposed by the organiser and travellers may use vouchers for one or more services offered by tour organisers and in parts on different occasions. If the voucher is not redeemed within its validity period, the organiser shall refund the amount specified in the voucher as soon as possible and at the latest within 14 days after the end of the validity period without the need of any prior request by the traveller. |
Vouchers should be valid for all travel services and travellers should be able to redeem the voucher in parts and on different occasions.
| Text proposed by the Commission | Amendment |
|---|---|
| 7. Vouchers shall be transferable to another traveller without any additional cost. | 7. Vouchers shall be transferable to another traveller only once without any additional cost. The traveller shall inform the organiser in writing of the transfer of the voucher and provide the organiser with the transferee’s personal data necessary to redeem the voucher or to receive a refund at the end of its validity period. If the traveller chooses to transfer the voucher more than once, the organiser shall be entitled to charge a reasonable fee corresponding to the administrative cost. |
In order to prevent potential fraud and keep the administrative burden of the use of vouchers reasonable for organisers, we limit the transfer of vouchers without additional costs. From the second transfer, organisers can charge a reasonable fee corresponding to the administrative costs.
| Text proposed by the Commission | Amendment |
|---|---|
| 2. The security referred to in paragraph 1 shall be effective and shall cover reasonably foreseeable costs. It shall cover the amounts of payments made by or on behalf of travellers in respect of packages, taking into account the length of the period between the receipt of any payments and the completion of the packages, as well as the estimated cost for repatriations in the event of the organiser’s insolvency. The security shall be sufficient to cover costs for refunds and, where applicable, repatriations and vouchers, at all times. The coverage shall take into account periods where organisers hold the highest amounts of payments and any changes in the volume of sales of packages. | 2. The security referred to in paragraph 1 shall be effective and shall cover reasonably foreseeable costs. It shall cover the amounts of payments made by or on behalf of travellers in respect of packages, taking into account the length of the period between the receipt of any payments and the completion of the packages, as well as the estimated cost for repatriations in the event of the organiser’s insolvency. The security shall be sufficient to cover costs for refunds and, where applicable, repatriations and vouchers, at all times. The coverage shall take into account periods where organisers hold the highest amounts of payments. |
We aim to strike the right balance between solid consumer protection against insolvency and over insurance with the accompanying costs for organisers.
| Text proposed by the Commission | Amendment |
|---|---|
| 3. To ensure the effectiveness of insolvency protection, Member States shall supervise the insolvency protection arrangements of organisers established on their territory, monitor the market for the provision of insolvency protection, and may, if necessary, require a second level of protection. Any co-financing by Member States is possible only in exceptional and duly justified circumstances and shall be conditional on approval under the Union State aid provisions. | 3. To ensure the effectiveness of insolvency protection, Member States shall supervise the insolvency protection arrangements of organisers established on their territory, monitor the market for the provision of insolvency protection. Any co-financing by Member States is possible only in exceptional and duly justified circumstances and shall be conditional on approval under the Union State aid provisions. |
We aim to strike the right balance between solid consumer protection against insolvency and over insurance with the accompanying costs for organisers.
| Text proposed by the Commission | Amendment |
|---|---|
| 6. Refunds of payments affected by the organiser’s insolvency shall be provided without undue delay after the traveller’s request and at the latest within three months after the traveller has submitted the documents necessary to examine the request. | 6. Refunds of payments affected by the organiser’s insolvency shall be provided without undue delay after the traveller’s request and at the latest within three months after the traveller has submitted the documents necessary to examine the request. Proof of a concluded contract or a confirmation of booking and a proof of the payment made to the organiser, or where applicable retailer, shall be considered sufficient for the traveller to request a refund. |
| Text proposed by the Commission | Amendment |
|---|---|
| 2. Member States shall designate central contact points to facilitate the administrative cooperation and supervision of organisers operating in different Member States and to exchange information in relation to insolvency protection and any mechanisms put in place to ensure the effectiveness of refunds for terminated package travel contracts. Member States shall notify the contact details of those contact points to all other Member States and the Commission. | 2. Member States shall designate central contact points to facilitate the administrative cooperation and supervision of organisers operating in different Member States and to exchange information in relation to insolvency protection and any mechanisms put in place to ensure the effectiveness of refunds for terminated package travel contracts. Member States shall notify the contact details of those contact points to all other Member States and the Commission. The Commission shall centralise the information related to insolvency protection schemes, central contact points, and make this information publicly available on its website. |
The information on insolvency protection and the central contact points should be available on the website of the European Commission.
| Present text | Amendment |
|---|---|
| (12a) Article 24 is replaced by the following: | |
| ‘Article 24 | ‘Article 24 |
| Enforcement | Enforcement |
| Member States shall ensure that adequate and effective means exist to ensure compliance with this Directive. | 1. Member States shall ensure that adequate and effective means exist to ensure compliance with this Directive. |
| 2. Each organiser and retailer shall set up a complaint-handling mechanism for the rights and obligations covered by this Directive. They shall make their contact details and working language, or languages, known to travellers and available to consumers at the same time of the documents to be supplied before the start of the package in accordance with Article 7(g). | |
| 3. The organiser or retailer shall confirm the receipt with a copy of the exchanges, within 7 days of receiving the complaint. The organiser or the retailer shall give a reasoned reply to the traveller within 21 days. Organisers and retailers shall keep the data necessary to assess the complaint for the duration of the entire complaint-handling procedure and shall make that data available to national enforcement bodies upon request. | |
| 4. Details of the complaint-handling procedure shall be made available on the website of the organisers and retailers offering services covered by this Directive. | |
| ‘ |
We aim to strengthen the enforcement of the Directive as a means to make sure it is effective in protecting consumers.
| Present text | Amendment |
|---|---|
| (12b) Article 25 is replaced by the following: | |
| Article 25 | ‘Article 25 |
| Penalties | Penalties |
| Member States shall lay down the rules on penalties applicable to infringements of national provisions adopted pursuant to this Directive and shall take all measures necessary to ensure that they are implemented. The penalties provided for shall be effective, proportionate and dissuasive. | 1. Member States shall lay down the rules on penalties applicable to infringements of national provisions adopted pursuant to this Directive and shall take all measures necessary to ensure that they are implemented. The penalties provided for shall be effective, proportionate, and dissuasive and shall include the possibility either to impose fines through administrative procedures or to initiate legal proceedings for the imposition of fines, or both, the maximum amount of such fines being at least 4% of the trader’s annual turnover in the Member State or Member States concerned. |
| 2. For cases where a fine is to be imposed in accordance with paragraph 1, but information on the trader’s annual turnover is not available, Member States shall introduce the possibility to impose fines, the maximum amount of which shall be at least 2 million EUR. | |
| 3. Member States shall ensure that the following non-exhaustive and indicative criteria are taken into account for the imposition of penalties, where appropriate: | |
| (a) the nature, gravity, scale and duration of the infringement; | |
| (b) any action taken by the trader to mitigate or remedy the damage suffered by consumers; | |
| (c) any previous infringements by the trader; | |
| (d) the financial benefits gained, or losses avoided by the trader due to the infringement, if the relevant data are available; | |
| (e) penalties imposed on the trader for the same infringement in other Member States in cross-border cases where information about such penalties is available through the mechanism established by Regulation (EU) 2017/2394 of the European Parliament and of the Council; | |
| (f) any other aggravating or mitigating factors applicable to the circumstances of the case.’ |
To ensure that all organisers comply with the rules in this Directive, we introduce penalties on infringement of the Directive.
| Present text | Amendment |
|---|---|
| (12c) the following article is inserted: | |
| ‘Article 26a | |
| Alternative Dispute Resolution Mechanism | |
| The participation of organisers, retailers, intermediaries and other actors falling within the scope of this Directive to alternative dispute resolution procedures shall be mandatory and their decisions binding, without prejudice to the right of parties to access the judicial system.’ |
Back matter, 2
Parts that accompany the text rather than belong to it: explanatory statement, annexes, opinions appended by other committees. Collapsed.
Explanatory statement 18 blocks
There is nothing more enjoyable than a good holiday. For many Europeans, this means purchasing a travel package. Coming from a country that attracts visitors seeking sun and culture, and where the tourism sector employs a significant portion of the workforce, the Rapporteur can relate to this proposal to review the Package Travel Directive.
The Rapporteur would like to highlight that this proposal has an impact on about 10% of the tourism trips in the EU, valuing 20% of the money spent in the tourism. The decisions that co-legislators will take can therefore have a direct and positive impact on our citizens and protect holidaymakers from unexpected developments. We should also be aware of the many jobs at stake in the tourism industry around Europe.
Therefore, a balanced approach is needed, where by combining strong and effective consumer protection with the request to keep rules simple and understandable for businesses. The Rapporteur wants to protect travellers from insolvency, while keeping in mind the financial burden for the travel organisers to provide for this protection. In the view of the Rapporteur, the European Commission has put forward a good basis for the European Parliament’s work and the political negotiations to come.
To put our work in perspective, the Rapporteur reminds the two main reasons for the European Commission to propose this review of the existing Directive.
First, the bankruptcy of Thomas Cook’s German subsidiaries left around 140.000 travellers stranded abroad, who needed repatriation. The insolvency protection at that time was insufficient to cover the refunds of travellers who did pre-payments, but did not yet reach their destination.
Second, the COVID-19 pandemic that created a lot of legal uncertainty surrounding the travel restrictions imposed with significant consequences for both travellers and the tourism industry. It raised questions about what are the valid reasons for consumers to cancel a travel package if travel is restricted.
We should therefore not forget that both of these events gave rise to a resolution voted by this Parliament, which gave me guidance as rapporteur to work on this proposal.
In light of these elements, the Rapporteur aims to simplify the proposed definition in Article 3 of a package irrespective of whether separate contracts are concluded. By replacing the 3-hour requirement by a more general requirement for travel services bought within the same booking process, we make the Directive more implementable for providers. At the same time, we prolong the timeline for travel services bought upon invitation of the trader to 72 hours after the first agreement.
On prepayments, the Rapporteur keeps the limit of 25% of the total price introduced in Article 5a of the Commission proposal, but specifies more explicitly that this percentage could be higher to cover advance payments to ensure the organisation of the package, like flight tickets or other advance payments to service providers of the package travel organiser. Furthermore, the Rapporteur introduces the possibility for Member States to create a system of trusted accounts for keeping the down payments of travellers secure.
By adding a paragraph to Article 11, the Rapporteur strengthens the information position of the consumer, by requiring package travel organiser to immediately inform the traveller about changes to the package.
On the issue of unavoidable and extraordinary circumstances occurring in Article 12, the Rapporteur removes the place of the travellers’ residence, and makes it clearer that any of these events affecting the journey of the traveller should be relevant for a termination of the contract. Also, the Rapporteur specifies that obligatory quarantine requirements against the spread of contagious diseases are relevant factors and that official travel warning gives the traveller the right to terminate the contract and request a refund.
Article 12a introduced by the Commission on vouchers is amended for reasons of fraud protection, by introducing a limit on the transfer of vouchers to once free of charge, while providing the travel organiser of the necessary information on the transferee. Further transfers of vouchers should be possible, but for a reasonable administrative fee.
On the effectiveness and scope of insolvency protection in Article 17, the Rapporteur limits the aspects that should be taken into account for the coverage, by removing the element changes in the volume of sales. Also, the Rapporteur removes the possibility for Member States to require a second level of protection. Both with the intention not to hinder the package providers from offering these products by insolvency insurance costs, while balancing this interest with solid consumer protection and sufficient insurance. The Rapporteur also specifies that a confirmation of the booking and proof of payment to make sure that it is easy for travellers to request a refund.
On the designation of central contact points to facilitate administrative cooperation and supervision of organisers in Article 18, the Rapporteur introduces a requirement for the Commission to collect centrally information related to insolvency protection schemes and central contact points, and to make this information publicly available on its website.
The effectiveness all the consumer protection measures proposed in the Directive are only as strong as the potential enforcement of the rules. That is why the Rapporteur introduced several new elements in Articles 24, 25 and 26.
The first is the obligation to set up a complaint-handling mechanism on their website in relation to the rights and obligations in the Directive, with clear deadlines to answer to complaints of travellers. Organisers and retailers are required to keep the data necessary to assess the complaint for the entire period of the complaint-handling procedure and should be able to make this data available to national enforcement bodies.
Secondly, the Rapporteur introduces more detailed provisions for Member States laying down rules on penalties applicable to infringements of national provisions adopted pursuant to this Directive. The maximum amount of such fines shall be at least 4% of the trader’s annual turnover in the Member State or Member States concerned, or when no information on the trader’s annual turnover is available, a maximum fine of at least 2 million EUR.
Thirdly, the Rapporteur introduces a mandatory participation in alternative dispute resolution procedure for organisers, retailers, intermediaries and other actors falling within the scope of this Directive. The decisions resulting from those procedures shall be binding upon them, without prejudice to their right to access the judicial system.
Annex: entities or persons from whom the rapporteur has received input 4 blocks
Pursuant to Article 8 of Annex I to the Rules of Procedure, the rapporteur declares that he received input from the following entities or persons in the preparation of the draft report:
Where natural persons are identified in the list by their name, by their function or by both, the rapporteur declares that he has submitted to the concerned natural persons the European Parliament's Data Protection Notice No 484 (https://www.europarl.europa.eu/data-protect/index.do), which sets out the conditions applicable to the processing of their personal data and the rights linked to that processing.
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European Parliament (2025). “DRAFT REPORT on the proposal for a directive of the European Parliament and of the Council amending Directive (EU) 2015/2302 to make the protection of travellers more effective and to simplify and clarify certain aspects of the Directive”. Text, 25 February 2025. docId IMCO-PR-768075. EU Parl Watch Research. https://news.eu-parl.st-solutions.dev/texts/IMCO-PR-768075 (retrieved 25 September 2026). Data: EP Open Data API: document record, https://data.europarl.europa.eu/api/v2/documents/IMCO-PR-768075 (CC BY 4.0).
BibTeX
@misc{epw-text-imco-pr-768075,
author = {{European Parliament}},
title = {{DRAFT REPORT on the proposal for a directive of the European Parliament and of the Council amending Directive (EU) 2015/2302 to make the protection of travellers more effective and to simplify and clarify certain aspects of the Directive}},
year = {2025},
date = {2025-02-25},
howpublished = {\url{https://news.eu-parl.st-solutions.dev/texts/IMCO-PR-768075}},
url = {https://news.eu-parl.st-solutions.dev/texts/IMCO-PR-768075},
urldate = {2026-09-25},
publisher = {EU Parl Watch Research},
note = {Text. docId IMCO-PR-768075. Data: EP Open Data API: document record (CC BY 4.0)}
}