ICAO: objectives and composition
Learning objectives
- State the aims of ICAO and the three bodies that make it up: Assembly, Council and Air Navigation Commission.
- Identify how often each body meets or is elected, how many members it has, and who appoints or elects them.
- Explain which body proposes, which adopts and which implements an Annex, and how an Annex becomes effective.
- Explain why ICAO itself does not license pilots, and how the 2026 changes make older figures obsolete.
The idea
Almost 200 countries share the same sky, so a pilot, a radio call or a chart must mean the same thing wherever the flight goes. Someone has to agree the common rules and keep them current. ICAO is the club that does this. All countries sit in a big general meeting, which picks a smaller standing board. The board gets advice from a panel of experts and then decides. The decisions are written down as shared standards. Each country then follows them or declares where it does not.
What ICAO is and what it is for
The Convention you met on the previous page does more than set rules. It also creates an organisation to look after them: the International Civil Aviation Organization, or ICAO. ICAO is made up of an Assembly, a Council and such other bodies as are necessary.
ICAO describes itself as a United Nations agency serving 193 countries. The Convention entered into force on 4 April 1947. Before that, a Provisional ICAO ran under an interim agreement signed at Chicago on 7 December 1944. Its headquarters is in Montréal. The Council can move the seat temporarily. A permanent move needs an Assembly decision, and the Assembly must set the vote at no less than three-fifths of all contracting States.
Inside each contracting State, ICAO has the legal capacity it needs to do its job, with full juridical personality where national law allows.
The aims in plain words
ICAO's mission has two halves. One is technical: develop the principles and techniques of international air navigation. The other is economic: foster the planning and development of international air transport.
Under those two halves, the aims include:
- safe and orderly growth of international civil aviation worldwide;
- promoting safety of flight in international air navigation;
- encouraging aircraft design and operation for peaceful purposes;
- encouraging airways, airports and air navigation facilities;
- meeting the world's need for safe, regular, efficient and economical air transport;
- preventing economic waste caused by unreasonable competition;
- making sure every contracting State's rights are respected and each has a fair opportunity to operate international airlines;
- avoiding discrimination between contracting States;
- promoting all aspects of international civil aeronautics.
As a pilot you will mostly feel the safety half. Do not forget the economic half, because the aims list mixes both.
The aims and objectives of ICAO cover both safety (air navigation) and economics (air transport).
Who is who: the composition
Think of three layers. The Assembly is the parliament. The Council is the standing government. The Air Navigation Commission, or ANC, is the technical advisory panel. A Secretariat does the daily work.
Describe this figure
A chart reads from top to bottom, with a badge saying the figures are as of October 2026. At the top, the Assembly, made up of 193 States, meets at least every 3 years and elects the Council. The Council has 40 States, elected every 3 years, and a President with a 3-year term who has no vote. The Council establishes two bodies: the Air Navigation Commission, with 21 experts, and the Air Transport Committee, drawn from the Council. A dashed arrow shows that the Council appoints the Secretary General, the chief executive officer, who heads the Secretariat bureaus and the Regional Offices. A note says that Commission members are experts, not State representatives.
The organisation chart shows the Assembly at the top. It elects the Council. The Council, in turn, sets up the ANC and an Air Transport Committee and appoints the Secretary General, who leads the Secretariat and the Regional Offices. A small badge on the chart marks the figures as correct for October 2026.
The Assembly
The Assembly consists of all the contracting States, which today means all 193 Member States. Each State has the same right to be represented and has one vote. Technical advisers may attend but do not vote.
It meets not less than once in three years, convened by the Council. Originally it met every year; the three-year rhythm came later. An extraordinary session can be held at any time, either when the Council calls one or when at least one-fifth of all contracting States ask the Secretary General.
A majority of contracting States forms a quorum. Unless the Convention says otherwise, decisions are taken by a majority of votes cast.
What does the Assembly do? It elects its own President and officers, and above all it elects the contracting States that sit on the Council. It examines Council reports, votes the budget, approves the accounts, considers proposals to amend the Convention, and can delegate powers to the Council. Notice what is not on the list: the Assembly does not adopt Annexes.
The Council
The Council is a permanent body, responsible to the Assembly and made up of contracting States that the Assembly elects. Elections happen every three years, and members serve until the next election.
The Convention now sets the Council at 40 Member States. That figure comes from an amendment to the Convention that entered into force on 12 June 2026, when the 128th ratification arrived. ICAO has announced an Extraordinary Session of the Assembly on 19 and 20 November 2026 in Montréal to elect the four additional Member States, so those seats are not yet filled.
The older text of the Convention gave 36, and you will still see that number in older books and question banks.
When it elects the Council, the Assembly gives adequate representation to three groups: the States of chief importance in air transport, States that contribute most to facilities for international air navigation, and States whose presence ensures that all major geographic areas are represented. Representatives on the Council must not be actively associated with, or financially interested in, an international air service.
The Council elects its own President for three years, and the President can be re-elected. The President has no vote and need not be a Council representative. The Council also elects one or more Vice-Presidents, who keep their vote when acting as President. The President convenes the Council, the Air Transport Committee and the Air Navigation Commission, and represents the Council.
Council decisions need approval by a majority of its members. Any State may take part, without a vote, when the Council considers a question that especially affects it, and a Council member may not vote on a dispute to which it is a party.
The Air Navigation Commission
The ANC is the technical brain. Its members are appointed by the Council from persons nominated by contracting States. They must have suitable qualifications and experience in the science and practice of aeronautics. The Council asks all States for nominations and appoints the ANC President. So these are experts, not national delegates.
The Convention now sets the ANC at 21 members, under the same 2026 amendment. The Council appoints its members. The older text gave 19, which is another number still found in older material.
Its duties are to consider and recommend to the Council modifications of the Annexes, to set up technical subcommissions on which any State may be represented, and to advise the Council on collecting and communicating the information needed to advance air navigation.
Describe this figure
A step chart plots number of members against the year the size took effect, starting in 1947 when the Convention entered into force. The Council, a solid line with round markers, starts at 21 and rises to 27 in 1962, 30 in 1973, 33 in 1980, 36 in 2002 and 40 in 2026. The Air Navigation Commission, a dashed line with square markers, starts at 12 and rises to 15 in 1974, 19 in 2005 and 21 in 2026. Both bodies reached their current size in 2026. Each step is labelled with its value and its year.
The step chart shows both bodies growing. The Council grew from 21 originally to 27, then 30, 33, 36 and now 40 in 2026. The ANC grew from 12 originally to 15, then 19 in 2005, and now 21 in 2026. Each step reflects an amendment to the Convention coming into force.
The Convention sets the Council at 40 Member States and the ANC at 21 members. Both figures have applied since 12 June 2026, and the extra seats are being filled. Older sources say 36 and 19.
The Secretariat
The Council appoints a chief executive officer, the Secretary General, and provides for the other staff. The Council sets their conditions of service within rules from the Assembly and may employ nationals of any contracting State. ICAO's website lists bureaus for Air Navigation, Air Transport, Capacity Development and Implementation, Legal Affairs and External Relations, and Administration, plus Regional Offices.
How ICAO makes standards
Here is the part that matters most for the exam, and the part many students get wrong.
Describe this figure
A vertical flow has six numbered steps joined by arrows. A proposal is studied by the Air Navigation Commission, which prepares and recommends. The Council then adopts the text by a two-thirds vote, shown with a heavier outline, and a note says that the Assembly does not adopt Annexes. The text is sent to all contracting States and takes effect after 3 months unless a majority of States disapprove. In the last step, States implement the text or notify differences. A bracket beside the first three steps shows that going from proposal to adoption typically takes about two years.
Read the flow chart from top to bottom. A proposal starts the process. The ANC studies it and recommends a change to the Council. The Council adopts it by a two-thirds vote. The adopted text is sent to all States. It becomes effective after three months unless a majority of States disapprove. Finally, each State implements it or notifies its differences.
In one sentence: the ANC prepares and recommends, the Council adopts, and States implement. The Assembly does not adopt Annexes.
Among its mandatory functions the Council adopts international standards and recommended practices and designates them, for convenience, as Annexes. It also considers ANC recommendations for amending the Annexes.
Adoption needs a two-thirds vote of the Council at a meeting called for that purpose. The Annex or amendment goes to all States and becomes effective within three months, or a longer period set by the Council, unless a majority of contracting States register disapproval with the Council meanwhile. The Council then notifies all States immediately that it has come into force.
So an Annex does not wait for every State to ratify it. Silence by a majority means it takes effect. A State that cannot comply says so by notifying a difference, which is the topic of the previous page.
There are now 19 Annexes and six sets of Procedures for Air Navigation Services (PANS), containing over 12 000 standards and recommended practices. Writing one typically takes about two years from proposal to adoption.
Annex adoption: two-thirds of the Council; effective in three months (or longer if the Council sets it) unless a majority of contracting States disapprove.
When you read an old summary that says the Assembly "passes" the Annexes, translate it in your head: the Assembly elects the Council, and the Council passes the Annexes.
What ICAO does not do
ICAO adopts standards. It does not issue your licence or fine you for breaking the rules of the air. Each State writes the binding rules and issues the licences. In the EU that happens through EU regulations such as SERA and the EU licensing rules, and States notify differences from ICAO where they have them.
In the real world
On 12 June 2026, Ecuador deposited the 128th ratification of the 2016 protocols amending the Convention. That brought them into force, expanding the Council to 40 and the ANC to 21. ICAO reported this on 15 June 2026 at icao.int/news.
Following that, ICAO announced an Extraordinary Session of the Assembly on 19 and 20 November 2026 in Montréal to elect the four additional Council members. This is a live example of the chain: the Assembly elects, the Council grows, and the new members take part in future Annex decisions.
This lesson is educational and does not replace ATO instruction.
Exam traps
"The Assembly adopts the Annexes." Wrong. The Council adopts them by a two-thirds vote, on the recommendation of the ANC. The Assembly elects the Council and handles proposed amendments to the Convention.
"The Assembly meets every year." That was the original rule. Today it meets at least once in three years.
"The Council has 36 members and the ANC has 19." These were the figures from the older text. The amended Convention in force since 12 June 2026 gives 40 and 21. If a question bank still says 36 or 19, it predates the change.
"ANC members represent their States." No. States nominate persons, but the Council appoints them for their qualifications and experience in aeronautics.
"The Council President votes like every other member." No. The President has no vote, though a Vice-President acting as President keeps the vote.
"ICAO objectives are only about safety." The aims also cover economic matters: avoiding waste from unreasonable competition, a fair opportunity for each State to operate airlines, and no discrimination between States.
Explain it back
Imagine a classmate says that an ICAO Annex only applies once every State has ratified it, and that the Assembly votes it in. In your own words, walk through who proposes, who adopts, how the Annex becomes effective, and what a State does if it cannot comply.
Self-check
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Which ICAO body adopts a new or amended Annex?mcq · easy
Show answer
The Council adopts Annexes by a two-thirds vote at a meeting called for that purpose. The Assembly elects the Council but does not adopt Annexes, so the first option is wrong. The ANC only prepares and recommends, so the second is wrong. The Secretary General heads the Secretariat and has no power to adopt, so the fourth is wrong.
Reference: Doc 7300 Art. 54(l); Doc 7300 Art. 90(a)
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Which of these is an aim of ICAO that concerns air transport economics rather than technical air navigation?mcq · medium
Show answer
Preventing economic waste caused by unreasonable competition is one of the economic aims, alongside fair opportunity for each State and no discrimination. Safety of flight, peaceful design and operation, and airways and facilities are all air navigation aims, so the other three options are wrong.
Reference: Doc 7300 Art. 44
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Which statement about the members of the Air Navigation Commission is correct under the Convention as amended and in force since 12 June 2026?mcq · medium
Show answer
The ANC has 21 members, appointed by the Council from persons nominated by States and chosen for their expertise. The first option is wrong on the number (19 is the older figure), on who chooses them and on representation. The second is wrong because members are experts, not State delegates. 36 is the former Council size, not the ANC's, so the third is wrong.
Reference: Doc 7300 Art. 56 as amended
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How is the ICAO Council put together and led?mcq · medium
Show answer
The Assembly elects the Council's member States every three years. The Council then elects its own President for three years, and the President has no vote. The first option is wrong on who elects, on the interval and on the vote. The third is wrong because the ANC does not appoint Council members and the Secretary General does not chair. The fourth is wrong because the Council, not the Assembly, elects its President, who has no vote.
Reference: Doc 7300 Art. 50(a); Doc 7300 Art. 51
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Scenario: your instructor's older question bank states that the ICAO Council has 36 members. A colleague says this is out of date. What is the best response?mcq · hard
Show answer
The Council grew from 21 to 27, 30, 33, 36 and, since 12 June 2026, to 40. The first option ignores the amendment. The figure 27 is a historical step from 1962, so the second is wrong. The size is set in the Convention and changes only by amendment, not at each Assembly, so the third is wrong.
Reference: Doc 7300 Art. 50(a) as amended
Key concepts
Written with ASD-STE100 writing principles: short sentences, one topic per sentence, active voice, one word for one meaning.
ICAO and its objectives
The Convention creates the International Civil Aviation Organization (ICAO). Its aims include safe and orderly growth of international civil aviation and promotion of safety of flight.
Rule: Art. 43; Art. 44
Assembly of Contracting States
The Assembly has all 193 Contracting States, and each State has one vote. The Assembly meets at least once every 3 years and elects the Council. A majority of contracting States forms the quorum.
Rule: Art. 48(a)–(c)
Council of 40 Contracting States
The Council is a permanent body, responsible to the Assembly, and the Assembly elects its members every 3 years. The Council has 40 Contracting States, in force since 12 June 2026. The 9th edition text shows 36 Contracting States, and that text no longer applies.
Rule: Art. 50(a), as amended by the 2016 Protocol
Adoption of Annexes
The Council adopts standards and recommended practices as Annexes. Adoption needs a two-thirds vote of the Council, at a meeting called for that purpose. An adopted Annex takes effect after 3 months or a longer period the Council sets, unless a majority of contracting States disapprove.
Rule: Art. 54(l); Art. 90(a)–(b)
Do not: Assume that the Assembly adopts Annexes.
Air Navigation Commission (ANC)
The ANC has 21 members under the amended Convention, in force since 12 June 2026. The Council appoints the members from persons nominated by States, and they are experts, not State representatives. The ANC prepares and recommends changes to the Annexes for the Council.
Rule: Art. 56; Art. 57(a)
Division of labour
The ANC recommends changes, the Council adopts them, and States implement them or notify differences. ICAO does not license pilots or enforce rules on them. Each State writes the binding rules for its pilots.
Rule: Art. 12; Art. 37; Art. 38; Art. 54(l)
Do not: Expect ICAO to issue pilot licences.
Council President and Secretary General
The Council elects its President for 3 years, and the President can be re-elected. The President has no vote. The Council appoints the Secretary General as chief executive officer, who heads the Secretariat.
Rule: Art. 51; Art. 54(h); Art. 58
Flashcards
Print them: A6 landscape cards (PDF, front and back) · 4 cards per A4 landscape sheet (PDF, cut lines) · Key figures deck (PDF, 23 figures)
Print double-sided, flip on the short edge.
010-01-02-01What does the Chicago Convention create?
ICAO, made up of an Assembly, a Council and such other bodies as may be necessary.
010-01-02-02Which ICAO objective covers safety of flight?
To promote safety of flight in international air navigation.
010-01-02-03How often does the Assembly meet in ordinary session?
At least once in 3 years.
010-01-02-04Who can call an extraordinary Assembly session?
The Council, or one-fifth of all contracting States asking the Secretary General.
010-01-02-05How many votes does each State have in the Assembly?
1 vote per State. Technical advisers may take part but cannot vote.
010-01-02-06What is the quorum of the Assembly?
A majority of contracting States.
010-01-02-07How does the Assembly take decisions?
By a majority of votes cast, unless the Convention says otherwise.
010-01-02-08How many contracting States does ICAO have?
193 Contracting States, and each one sits in the Assembly.
010-01-02-09How many contracting States does the Council have now?
40 Contracting States, in force since 12 June 2026.
010-01-02-10What Council size do older texts show?
36 Contracting States, from the older edition of the Convention text. That text no longer applies.
010-01-02-11What was the original Council size in 1944?
21 Contracting States.
010-01-02-12How often does the Assembly elect the Council?
Every 3 years.
010-01-02-13How long is the Council President's term?
3 years. The President can be re-elected.
010-01-02-14Does the Council President have a vote?
No. The President has no vote.
010-01-02-15What majority does a Council decision need?
A majority of Council members.
010-01-02-16What vote does the Council need to adopt an Annex?
Two-thirds of the Council, at a meeting called for that purpose.
010-01-02-17When does an adopted Annex take effect?
After 3 months, or a longer period the Council sets, unless a majority of contracting States disapprove.
010-01-02-18Who adopts standards as Annexes?
The Council adopts them. The Assembly does not adopt Annexes.
010-01-02-19How many Annexes does the Convention have?
19 Annexes, with over 12 000 SARPs and six PANS.
010-01-02-20How long does developing a standard typically take?
About two years, from proposal to adoption.
010-01-02-21How many Air Navigation Commission members does the Convention now set?
21 members, in force since 12 June 2026.
010-01-02-22What was the Air Navigation Commission size before 12 June 2026?
19 members, from the older edition of the Convention text. That text no longer applies.
010-01-02-23What was the original Air Navigation Commission size?
12 members.
010-01-02-24How many ratifications did each 2016 Protocol need?
128 ratifications, reached on 12 June 2026.
010-01-02-25Who are the Air Navigation Commission members?
Experts nominated by States and appointed by the Council. They are not State representatives.
010-01-02-26What does the Air Navigation Commission do for Annexes?
It prepares and recommends changes to the Annexes to the Council.
010-01-02-27Does ICAO license pilots?
No. ICAO adopts standards, and each State writes the binding rules.
010-01-02-28Who recommends, adopts and implements the standards?
The Air Navigation Commission recommends, the Council adopts, and States implement or notify differences.
010-01-02-29Who heads the ICAO Secretariat?
The Secretary General, the chief executive officer appointed by the Council.
010-01-02-30What vote permanently moves the ICAO seat?
An Assembly decision with at least three-fifths of all contracting States.
010-01-02-31Who chooses the Air Transport Committee?
The Council, from its own representatives.
Sources
- Convention on International Civil Aviation (Chicago, 1944), ICAO Doc 7300, 9th edition (2006): Part II (Articles 43–66) and Article 90.
- ICAO, International community enhances governance of global aviation, 15 June 2026: icao.int.
- ICAO, International Civil Aviation Organization convenes Extraordinary Assembly, 3 July 2026: icao.int.
- ICAO, About ICAO: icao.int.
This page is educational. It does not replace instruction at your ATO or your aircraft's POH/AFM. Rules change: check the regulation in force.