Changes from report parliamentary committee draft to plenary report

DRAFT EUROPEAN PARLIAMENT LEGISLATIVE RESOLUTION

▸11 unchanged paragraphs

on the proposal for a Regulation of the European Parliament and of the Council on passenger rights in the context of multimodal journeys

(COM(2023)0752 – C9-0435/2023 – 2023/0436(COD))

(Ordinary legislative procedure: first reading)

The European Parliament,

– having regard to the Commission proposal to Parliament and the Council (COM(2023)0752),

– having regard to Article 294(2) and Articles 91(1) and 100(2) of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C9-0435/2023),

– having regard to Article 294(3) of the Treaty on the Functioning of the European Union,

– having regard to the opinion of the European Economic and Social Committee of 20 March 2024,

– having regard to the opinion of the Committee of the Regions of [...],

– having regard to Rule 60 of its Rules of Procedure,

– having regard to the opinion of the Committee on the Internal Market and Consumer Protection,

Changed– having regard to the report of the Committee on Transport and Tourism (A10-0000/2025),(A10-0120/2025),

1. Adopts its position at first reading hereinafter set out;

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.

Change 1

RemovedRecital 4: (4) The Union standards of protection set by Regulations (EC) No 261/2004, (EC) No 1107/2006, (EU) 2021/782, (EU) No 1177/2010 and (EU) No 181/2011 for travelling using one mode of transport should therefore be extended to cover the rights of passengers switching between modes of transport and to ensure that undertakings which are involved in a multimodal journey operate under harmonised rules. As this Regulation leaves transport operators and intermediaries the free choice to decide whether to offer multimodal tickets, it does not require the introduction of any additional exemptions or limitations in scope beyond those already specified in the sectoral passenger rights Regulations.

AddedRecital 3 a (new): (3 a) In order to foster the development of multimodal travel, the Union legislative framework should not remain limited to granting multimodal passenger rights. Further aspects such as digital ticketing, liability, data sharing and access should also be addressed. Any future regulatory framework on such issues would need to be reflected within the applicable passenger rights legislation. The Commission should therefore reevaluate the scope of combined tickets under this Regulation by 1 year after any future proposal on digital ticketing of relevance for this Regulation has been published.

RemovedUnder the sectoral Union legislation certain carriers or services are exempted or can be exempted by the Member States. According to Art. 2 (1) of this Regulation, these would not be covered by this Regulation as well.

AddedRecital 4: (4) This Regulation leaves operators and intermediaries the freedom to decide whether to offer multimodal tickets. Nevertheless, the Union standards of protection set by Regulations (EC) No 261/2004, (EC) No 1107/2006, (EU) 2021/782, (EU) No 1177/2010 and (EU) No 181/2011 for travelling using one mode of transport should be extended to cover the rights of passengers switching between modes of transport and to ensure that undertakings which are involved in a multimodal journey operate under harmonised rules. Any exemptions or limitations on the scope specified in the sectoral passenger rights regulations shall also apply mutatis mutandis to this Regulation.

Change 2

ChangedRecital 9: (9) Member States shouldshould, in particular, ensure that carriers and intermediaries offering transport contracts for the purpose of a multimodal journey informinform, in a clearclear, unambiguous and accessiblecomprehensible mannermanner, the passenger of the type of ticket or tickets associated to that journey and their corresponding rights, in particular with regard to missed connections.connections, assistance and reimbursement.

Change 3

RemovedInformation to passengers about the type of ticket they are purchasing should be clear and accessible in order to allow an informed purchase decision.

AddedRecital 11: (11) Carriers and intermediaries that are small and medium-sized enterprises (SMEs) fulfilling the criteria laid down in Annex I to Commission Regulation (EU) No 651/20146 often have limited resources, which may restrict their access to information, notably in the context of new technology. Therefore, carriers and intermediaries that are SMEs should be exempted from the requirements on the provision of real-time information to multimodal passengers, while carriers that are SMEs should also be exempted from the reporting obligation on service quality standards.

Change 4

ChangedRecital 14: (14) Correct information13: as(13) regardsWhere a multimodalsingle transportmultimodal servicecontract is also essential when passengers buy tickets from intermediaries or carriers. Where intermediaries or carriers are selling separate tickets for different transport services asbooked avia bundlean inintermediary, the form of aintermediary combinedand multimodalthe ticket,contracting theycarrier should clearly inform the passenger that thoseabout ticketsthe doreimbursement notprocess offerat the same leveltime of protection asthe singlebooking multimodaland contractswhen anda thattravel thosedisruption ticketsoccurs havethat notentitles beenthe issuedpassenger asto singlea multimodalrefund. contractsIn byparticular, the contracting carrier orshould carriersstate providingpublicly thewhether service.it Wherecooperates intermediarieswith orintermediaries carriersfor thatthe soldprocessing aof combinedreimbursements, multimodaland contractif failso towith complywhich withit thisdoes requirement,so. theirSimilarly, liabilityintermediaries should includeinform thepassengers reimbursementprior ofto the ticketpurchase amountas andto anwhether additionalthey compensationhave equivalentagreements with carriers to 75%sell oftickets thatand amount.handle reimbursements.

Change 5

RemovedClarification that also carriers can sell combined multimodal tickets.

AddedRecital 14: (14) Correct information as regards a multimodal transport service is also essential when passengers buy tickets from intermediaries or carriers. Where intermediaries or carriers are selling separate tickets for different transport services or combine them into a bundle in the form of a combined multimodal ticket, they should clearly inform the passenger that those tickets do not offer the same level of protection as single multimodal contracts and that those tickets have not been issued as single multimodal contracts by the carrier or carriers providing the service. Where carriers or intermediaries fail to comply with this requirement, their liability should include the reimbursement of the ticket amount and an additional compensation equivalent to 75% of that amount.

RemovedRecital 27: (27) The European Data Protection Supervisor was consulted in accordance with Article 42(1) of Regulation (EU) 2018/1725 of the European Parliament and of the Council and delivered an opinion on [24 January 2024],

AddedRecital 14 a (new): (14 a) Separate multimodal tickets refer to tickets for a multimodal journey that are advertised together by a carrier or intermediary but represent distinct transport contracts, each concluded through a separate payment transaction by the passenger, without the direct involvement of the carrier or intermediary that advertised those tickets in the first place. In such cases, sector-specific passenger rights legislation continues to apply independently to each segment of the journey, according to the mode of transport concerned.

RemovedArticle 3 – paragraph 1 – point 23: (23) ‘missed connection during a multimodal journey’ means a situation where a passenger misses one or more transport services in the course of a multimodal journey, as a result of the delay at departure or on arrival, or cancellation of one or more preceding transport services, or of the departure of a transport service before the scheduled departure time;

AddedRecital 15: (15) Persons with disabilities and persons with reduced mobility have the same right as all other citizens to free movement and to non-discrimination. In light of the United Nations Convention on the Rights of Persons with Disabilities and in order to give persons with disabilities and persons with reduced mobility opportunities for multimodal travel comparable to those of other citizens, rules for non-discrimination and assistance during their multimodal journey should be established. In particular, special attention should be given to the provision of information to persons with disabilities and persons with reduced mobility concerning the accessibility of transport services, access conditions of vehicles and the facilities on board when switching modes. If information to persons with disabilities and reduced mobility is provided in accessible formats, it should be provided in accordance with the applicable legislation such as the accessibility requirements set out in Annex I to Directive (EU) 2019/8827 . In light of the benefits in terms of security, convenience and accessibility, Member States should encourage the use of European digital identity wallets for identification and authentication in multimodal transport scenarios, particularly aiding vulnerable persons or persons with disabilities.

RemovedClarification

AddedRecital 15 a (new): (15 a) As regards persons with disabilities and persons with reduced mobility, special attention should be paid to ensuring that they can make the transition from one means of transport to another. Carriers and, where applicable, terminal managers should provide assistance in such a way that the person is able to get to the connecting transport services for which he or she holds a reservation as part of the single multimodal ticket. Subsequent assistance should be provided in accordance with the sectoral Union legislation on passenger rights.

RemovedArticle 5 – paragraph 1: 1. Carriers and intermediaries offering transport contracts on behalf of one or more carriers shall provide the passenger with information prior to purchase on whether the ticket or the tickets offered for a multimodal journey constitute a single multimodal contract, a combined multimodal ticket or separate multimodal tickets, as well as on the rights or limitations associated with the type of contract or ticket.

AddedRecital 18: (18) Carriers and terminal managers should define, manage and monitor service quality standards for multimodal passenger services. Carriers which are not SMEs should also make information on their service quality performance publicly available.

RemovedCarriers and intermediaries should clearly indicate which rights are included with each ticket and which are not. This helps consumers make more informed purchasing decisions.

AddedRecital 22: (22) In order to ensure that a passenger receives travel information about a multimodal journey, both before and during that journey, the sharing of passenger contact details with the carrier could be necessary. The carrier may use these contact details exclusively for the purpose of fulfilling the information obligation under this Regulation and to fulfil the carrier’s obligations under applicable Union law on safety and security. This personal data should not be processed for any marketing purposes and they should be processed in accordance with the applicable Union law.

RemovedArticle 5 – paragraph 2: 2. Prior to purchase, carriers and intermediaries offering transport contracts on behalf of one or more carriers for the purpose of a multimodal journey shall provide the passenger with general guidance on average connecting times between the different types of transport services offered in a multimodal journey.

AddedRecital 27: (27) The European Data Protection Supervisor was consulted in accordance with Article 42(1) of Regulation (EU) 2018/1725 of the European Parliament and of the Council and delivered an opinion on 24 January 2024,

RemovedThe term 'minimum' should be replaced by 'average' in order to make clear that the stated connecting time is only an estimate by the carrier or intermediary.

AddedArticle 3 – paragraph 1 – point 2 a (new): (2 a) ‘operating carrier’ means a natural or legal person who, de facto, provides at least one transport service as part of a multimodal journey, at the request of a carrier;

RemovedArticle 5 – paragraph 2 a (new): 2 a. Intermediaries shall inform passengers, prior to purchase, of the fees they apply and of the amount of those fees that can be reimbursed pursuant to Article 8.

AddedArticle 3 – paragraph 1 – point 3: (3) ‘ticket vendor’ means any natural or legal person, other than a carrier, acting on behalf of one or more carriers or a passenger for the conclusion of transport contracts;

RemovedConsumer need transparency about the price and service offered by an intermediary.

AddedArticle 3 – paragraph 1 – point 4 a (new): (4 a) “intermediation fee” means any difference between the amount paid by the passenger and the amount received by the carrier for the same service, and which is collected by the intermediary;

RemovedArticle 5 – paragraph 2 b (new): 2 b. Intermediaries shall inform passengers at the time of booking if they have a commercial relationship with the carriers involved in the multimodal journey they are selling.

AddedArticle 3 – paragraph 1 – point 8: (8) ‘combined multimodal ticket’ means a ticket or tickets for a multimodal journey representing separate transport contracts which are combined and sold together by a carrier or intermediary on its own initiative, and which are purchased by means of a single payment by the passenger;

RemovedAddition increases transparency about the commercial relationship between carriers and intermediaries so that the consumer can make an informed purchase decision.

AddedArticle 3 – paragraph 1 – point 23: (23) ‘missed connection during a multimodal journey’ means a situation where a passenger misses one or more transport services in the course of a multimodal journey, as a result of the delay at departure or arrival, or cancellation of one or more preceding transport services, or of the departure of a transport service before the scheduled departure time;

RemovedArticle 5 – paragraph 3: 3. Multimodal hub managers shall also provide general guidance on average connecting times between the different types of transport services that operate at the multimodal hub.

AddedArticle 3 – paragraph 1 – point 24 a (new): (24 a) ‘accessible format’ means a format that enables a person with disabilities or with reduced mobility to access any relevant information, as easily and comfortably as a person without any impairments or disabilities, and that meets the accessibility requirements set out in the applicable law, in particular Annex I to Directive (EU) 2019/882;

RemovedThe term 'minimum' should be replaced by 'average' in order to make clear that the stated connecting time is only an estimate by the carrier or intermediary.

AddedArticle 3 – paragraph 1 – point 25 a (new): (25 a) ‘service quality standards’ means key performance indicators used to measure performance levels and elements of compliance with Union law on passenger rights;

RemovedArticle 5 – paragraph 6: 6. The information referred to in paragraphs 1 to 5 shall be provided in the most appropriate format, including by using appropriate communication technologies. This information shall be provided in an easily understandable and accessible format.

AddedArticle 4 – paragraph 1: 1. Without prejudice to social tariffs, carriers or intermediaries shall offer contract conditions and tariffs for multimodal journeys to the general public without direct or indirect discrimination on the basis of the passenger’s nationality or of the carrier's or intermediary's place of establishment within the Union.

RemovedArticle 5 – paragraph 9 a (new): 9 a. Where an intermediary acquires a ticket on behalf of a passenger, the intermediary shall inform the respective carrier(s) at the time of booking about the fact that it has booked the ticket as an intermediary. It shall provide the respective carrier with its own postal and electronic contact details.

AddedArticle 5 – paragraph 1: 1. Carriers and intermediaries offering transport contracts on behalf of one or more carriers shall provide the passenger with information prior to purchase on whether the ticket or the tickets offered for a multimodal journey constitute a single multimodal contract, a combined multimodal ticket or separate multimodal tickets, as well as on the rights or limitations, including on the provision of real-time information, associated with the type of contract or ticket.

RemovedBased on Regulation 2023/0437 Art. 14a (4).In order to increase transparency and accountability, intermediaries should inform carriers if they buy a ticket on behalf of a consumer and provide contact details so that the carrier can contact them, if necessary.

AddedArticle 5 – paragraph 2: 2. Prior to purchase, carriers and intermediaries offering transport contracts on behalf of one or more carriers for the purpose of a multimodal journey shall provide the passenger with general guidance on average connecting times between the different types of transport services offered in a multimodal journey. Such guidance shall also take into account the requirements of passengers with disabilities and reduced mobility.

RemovedArticle 7 – paragraph 3: 3. Re-routing transport service providers shall provide persons with disabilities and persons with reduced mobility with a level of assistance and accessibility comparable to the missed transport service when offering an alternative service. Re-routing transport service providers shall pay particular attention to provide persons with disabilities and persons with reduced mobility with alternative services which are appropriate to their needs, and which might differ from those offered to other passengers.

AddedArticle 5 – paragraph 2 a (new): 2 a. Intermediaries shall inform passengers, prior to purchase, of the intermediation fees applied and of the amount of those fees that may be reimbursed pursuant to Article 8.