Regulated Agent & Known Consignor: the Secure Air Cargo Chain

A regulated agent and a known consignor are the two approved roles that make the secure air cargo supply chain work. A regulated agent handles and secures other parties' cargo — a freight forwarder or ground handler approved to apply security controls. A known consignor secures its own cargo at the point of origin so it can enter the chain without being screened again. Both are approved and audited by the state's aviation security authority, and together they let cargo be trusted from the factory door to the aircraft hold.

This explainer sits under the air cargo security pillar. For who carries which duty across the whole chain, see who is responsible for air cargo security.

What is a regulated agent?

A regulated agent is an approved handler of secure cargo. ICAO Annex 17 defines a regulated agent as an agent, freight forwarder, or other entity that conducts business with an operator and provides security controls that are accepted or required by the appropriate authority.

In practice, the regulated agent is where most cargo is actually screened. A forwarder consolidating shipments from many customers screens or verifies each consignment, protects it from interference, and passes it on with a documented security status. The regulated agent is the connective tissue of the chain: it accepts cargo from consignors, applies or confirms controls, and hands secured cargo to the airline.

What is a known consignor?

A known consignor is an approved shipper that originates secure cargo. Annex 17 defines a known consignor as a consignor who originates cargo or mail for its own account and whose procedures meet common security rules and standards sufficient to allow that cargo to be carried on any aircraft.

The known consignor secures cargo at source — inside its own premises — so that downstream parties can accept it without re-screening. This is efficient for manufacturers that ship regularly, but it carries an ongoing burden: approved premises, vetted staff, controlled access, and tamper-evident packaging. A known consignor is vouching, under audit, that its cargo was secure before it ever left the building.

Regulated agent vs known consignor: what is the difference?

The difference is whose cargo each one secures. A known consignor secures its own cargo at origin. A regulated agent secures other parties' cargo as it moves through the chain.

A useful way to see it: the known consignor is the trusted starting point, and the regulated agent is the trusted courier and checkpoint. A known consignor's secured cargo is typically accepted by a regulated agent, which maintains that security and delivers it to the aircraft operator. Both roles are approved by the same authority against the same national programme, but they occupy different positions in the flow.

How does cargo move between them?

Cargo moves through a documented chain of custody. Under Annex 17, once cargo has been confirmed and accounted for, it is issued a security status that accompanies the consignment — electronically or in writing — throughout the secure supply chain.

Each handoff carries that status forward. A known consignor originates secured cargo with a status; a regulated agent accepts it, maintains protection, and confirms the status; the aircraft operator makes the final acceptance decision and cannot load cargo whose controls are not confirmed. If protection is broken at any point, the status is invalidated and the cargo must be screened before it can continue.

What is an account consignor?

An account consignor is a lower-tier shipper with narrower privileges. Unlike a known consignor, an account consignor's cargo is generally restricted to all-cargo (freighter) aircraft rather than passenger aircraft, reflecting the higher bar applied where passengers are on board.

The account consignor exists because not every regular shipper needs — or can meet — full known-consignor approval. It is a controlled way to keep lower-risk business cargo moving on freighters while reserving passenger-aircraft carriage for the more strictly validated sources.

How does an entity become a regulated agent or known consignor?

Approval comes from the state, not self-declaration. The appropriate authority — the national aviation security regulator — sets the requirements in the national civil aviation security programme, assesses the applicant's site and procedures, and adds approved entities to a register. Approval is conditional and audited, and it can be withdrawn if controls lapse.

For cargo bound into the European Union from third countries, these ICAO roles take named, separately validated forms: RA3 for regulated agents and KC3 for known consignors, both feeding the ACC3 carrier requirement. See ACC3, RA3 & KC3 explained for how that validation regime works.

Frequently asked questions

What is the main difference between a regulated agent and a known consignor?

A known consignor secures its own cargo at the point of origin, while a regulated agent secures other parties' cargo as it moves through the supply chain. The known consignor is the trusted origin; the regulated agent is the trusted handler and checkpoint. Both are approved and audited by the state's aviation security authority.

Does a known consignor's cargo need to be screened again?

Not routinely, provided the known consignor keeps its approved status and the security status is unbroken. The cargo was secured at origin and travels with that status. If the status cannot be verified, the cargo is treated as unknown and must be screened.

What is the difference between a known consignor and an account consignor?

A known consignor's cargo can be carried on any aircraft, including passenger flights, once secured at origin. An account consignor's cargo is generally limited to all-cargo aircraft. The account consignor is a lower tier with narrower privileges.

Who approves regulated agents and known consignors?

The state's appropriate authority — the national aviation security regulator — approves both, against the requirements in the national civil aviation security programme. Approval is audited and can be withdrawn if security controls are not maintained.