About the Commission

Role of the Commission | Members of the Commission | The Secretariat

Role of the Commission

The Commission was established under the International Air Services Commission Act 1992. The object of the Act is to enhance the welfare of Australians by promoting economic efficiency through competition in the provision of international air services, resulting in:

  • increased responsiveness by airlines to the needs of consumers, including an increased range of choices and benefits; and
  • growth in Australian tourism and trade; and
  • the maintenance of Australian carriers capable of competing effectively with airlines of foreign countries

The Commission's role is to determine the outcomes of applications by existing and prospective Australian airlines for capacity and route entitlements available under air services arrangements. These determinations allocate the available capacity on a route to one or more carriers and set conditions, where these are considered appropriate. The Commission may conduct a review of a determination at any time, either at the request of the carrier concerned or if the Commission believes that there may be grounds for doing so. The Commission is also responsible for reviewing determinations after a specified period and providing advice to the Minister for Transport about any matter referred to the Commission by the Minister concerning international air operations.

In allocating capacity, the Commission assesses the merits of claims by applicants under specified public benefit criteria. These criteria are detailed in Policy Statements issued, from time to time, by the Minister.

The Government, through the Department of Infrastructure, Transport, Regional Development and Communications, continues to have the responsibility for administering and negotiating Australia's air services arrangements. In this role, the Department is responsible for maintaining a Register of Available Capacity for use by the Commission and applicants. This register details the capacity available under each air services arrangement, and is updated to reflect changes in capacity entitlements arising from new negotiations and determinations by the Commission. The Department is also responsible for making operational decisions that authorise carriers to fly on each route based on the Commission's determinations.

Members of the Commission

The Commission is comprised of a Chairperson and a Member, appointed on a part-time basis. Its office in Canberra is assisted by a small Secretariat.

Ms Genevieve Butler, Chairperson

Genevieve Butler

On 5 August 2021, the Governor-General appointed Ms. Genevieve Butler as Chairperson of the Commission for a period of three years. The appointment is on a part-time basis.

Ms Genevieve Butler was appointed by the Deputy Prime Minister and Minister for Infrastructure, Transport and Regional Development as Member of the International Air Services Commission, pursuant to subsection 48(1) of the International Air Services Commission Act 1992, with effect from 14 May 2021.

Ms Butler is a government lawyer with a broad governance background. She is currently a national Board Member and ACT President of the Association of Corporate Counsel Australia. She also serves on the ACT Brand Strategic Advisory Board and is Chair of the ACT Animal Welfare Advisory Committee. Ms Butler is a Member of the ACT Law Society’s Government Law Committee and Military Law Committee. She has previously served on the Board of Directors of Community Services #1 and is a former editor of the Aviation Law Association of Australia and New Zealand’s periodical.

Ms Butler has provided in-house legal advice to the Australian Transport Safety Bureau since 2016. Previously, she provided legal advice and conducted litigation for the ACT Government Solicitor. She also worked as a Senior Legal Researcher in the Department of Parliamentary Services, focusing on intellectual property law, international human rights and administrative law. Ms Butler’s international career includes working in the United Nations Department of Peacekeeping Operations as External Affairs Officer, based in New York and Addis Ababa. She was also based in Brussels as Public Affairs Manager at the Australian Embassy to Belgium and Mission to the European Union and NATO.

Ms Butler holds the following degrees: Bachelor of Laws (Hons), Graduate Diploma of Legal Practice, Master of Journalism and Bachelor of Arts. She is admitted as a practitioner of the Supreme Court of NSW and holds an Unrestricted Government Practicing Certificate from the ACT Law Society. She speaks fluent French.

Ms Karen Gosling, Member

Ms Karen Gosling

Ms Karen Gosling was initially appointed as Commission Member by the Governor-General for a three-year term on 1 November 2017.  She was subsequently appointed as Acting Member of the Commission by the Deputy Prime Minister and  Minister for Infrastructure, Transport and Regional Development for the period of 31 October 2020 to 30 January 2021.  On 2 March 2021, the Governor-General re-appointed Ms Gosling as Commission Member for a two-year period until 1 March 2023.

Ms Gosling’s Australian Public Service career included leadership roles in the cultural, regional development and transport portfolios. From 2005 to 2012 Ms Gosling was in the Infrastructure, Transport and Regional Development department/s. Her senior executive focus in transport was industry consultation, administering legislation and regulatory reform. In the aviation group, Ms Gosling administered legislation governing leased federal airports and chaired the Sydney Airport Slot Management Committee. As Executive Director of the Surface Transport Policy Division, Ms Gosling advised on maritime, coastal shipping, road transport, vehicle and road safety standards and national transport regulatory reforms. Prior to 2005, Ms Gosling was in the arts portfolio working with the boards of Australia’s national cultural institutions on funding, governance and risk.

Ms Gosling has advised several Ministerial Councils, including as national coordinator of the Transport and Infrastructure Council and the Cultural Ministers Council. Ms Gosling has been executive officer to independent bodies such as the National Council for the Centenary of Federation and the Review of Exhibitions and Public Programs of the National Museum of Australia in 2003. In addition, Ms Gosling has represented the Australian Government internationally including at the International Maritime Organisation and UNESCO.

Since leaving the public service, Ms Gosling was engaged as a consultant to the National Heavy Vehicle Regulator in 2012-2013. More recently, her focus has been on volunteer roles in her local area of the Sunshine Coast Hinterland, Queensland.

Ms Gosling graduated from the Australian National University with a degree in Arts/Law in 1984 and with a Graduate Diploma in Public Law in 1990. In 2001 Ms Gosling received the Centenary of Federation Medal in recognition of her outstanding contribution to the Centenary of Federation program.

Ms Jane McKeon


Ms Jane McKeon was appointed, pursuant to section 48 of the International Air Services Commission Act 1992, as Acting Member of the Commission by the Deputy Prime Minister and Minister for Infrastructure, Transport and Regional Development from 1 October 2021. 

Ms McKeon is currently a consultant providing government and regulatory affairs advisory services, principally in the aviation and tourism sectors. Since 2019, she has been working with Cover-More travel insurance in relation to reforms arising from the Financial Services Royal Commission and advising Western Sydney Airport Corporation on regulatory matters.

Prior to establishing her advisory business, Ms McKeon had a long career in the airline industry.

As Group Executive – Government Relations for Virgin Australia from 2010 to 2018, Ms McKeon was responsible for advancing the airline’s interests, profile and reputation with governments, regulators and industry stakeholders in Australia and internationally. In this role, she led Virgin Australia’s engagement to influence policy and regulatory frameworks to support the airline’s strategic transformation program, which included a corporate restructuring to enable greater shareholder investment; significant expansion in the regional, freight and charter market segments; and the development of new international routes and associated commercial cooperation agreements with airline partners and tourism marketing organisations. Ms McKeon also worked with her industry counterparts to establish the Airlines for Australia and New Zealand advocacy body in 2017, serving as an inaugural Director, and was a member of the Tourism and Transport Forum Advisory Board and the International Air Transport Association Industry Affairs Committee.

From 2002 to 2010, Ms McKeon was employed by Qantas Airways. She was appointed General Manager – Government and International Relations in 2004, with responsibility for promoting the carrier’s interests in the development of Australia’s aviation and related policy settings, including at bilateral air services negotiations with other countries. Ms McKeon managed regulatory activities to safeguard access to capacity and traffic rights for Qantas’ international passenger and freighter services, and led engagement with local and overseas authorities to secure economic regulatory approvals to support Jetstar Airways’ launch as an Australian international carrier. She also represented the Qantas Group on the Board of Airline Representatives of Australia, the Aeropolitical Committee of the Association of Asia Pacific Airlines and the Australian Tourism Export Council.

Ms McKeon joined Ansett Australia as a graduate management trainee in 1998 and held various roles in the Commercial and Corporate Affairs divisions over the following four years.

Ms McKeon served as a Board member of the Council of Australia Latin America Relations from 2013 to 2017 and as a Commissioner of Tourism Western Australia from 2011 to 2013.

She holds Bachelor of Arts (First Class Honours) and Bachelor of Science degrees from the University of Melbourne and is a graduate of the Australian Institute of Company Directors.

Commission Chairpersons and Members since 1992

The following table sets out the Chairpersons and Members of the Commission since the Commission was founded in 1992.

Chairpersons Period Members Period
Stuart Fowler July 1992 to
April 1993
Brian Johns July 1992 to
June 1997
James Bain July 1993 to
June 1998
Russell Miller July 1992 to
June 1998
Russell Miller July 1998 to
January 2000
Michael Lawriwsky December 1997 to February 2007
Michael Lawriwsky and Stephen Lonergan (Members presiding at alternate meetings) January 2000 to August 2000 Stephen Lonergan August 1998 to August 2004
Ross Jones August 2000 to August 2003 Vanessa Fanning November 2004 to November 2007
John Martin November 2003 to November 2009 Philippa Stone July 2007 to July 2010
Philippa Stone and Ian Smith (Members presiding at alternate meetings) November 2009 to June 2010 Ian Smith November 2007 to February 2011
Ian Smith and Stephen Bartos (Members presiding at alternate meetings) July 2010 to February 2011    
Jill Walker 9 February 2011 to 11 August 2014 Stephen Bartos 1 July 2010 to 30 June 2013
Ian Douglas and John King (Members presiding at alternate meetings) September 2014 to November 2015 Ian Douglas 8 November 2012 to 7 November 2015
Ian Douglas (Acting) November 2015 to May 2016 John King 1 July 2013 to 31 December 2016
Ian Douglas 5 May 2016 to 13 August 2021 Jan Harris 24 November 2016 to 1 September 2019
    Karen Gosling 1 November 2017 to present
    Genevieve Butler 14 May 2021 to 4 August 2021
    Jane McKeon 1 October 2021 to present
Genevieve Butler

5 August 2021 to 4 August 2024


The Secretariat

The Commission is assisted in its work by a small secretariat. The secretariat is staffed by officers of the Department of Infrastructure, Transport, Regional Development and Communications. The secretariat is headed by an Executive Director, supported by a Senior Adviser and a Regulatory and Administrative Officer. These officers provide advice and assistance to the Commissioners on all aspects of the Commission’s operations.

Further, the Commission has delegated certain powers and functions

to the Executive Director, and in the absence of the Executive Director, the Senior Adviser. These arrangements enable the delegate to make a range of determinations and decisions on behalf of the Commissioners. Generally, these relate to cases that are straightforward. More complex matters are dealt with by the Commissioners.