In the US, this falls under part 382 - the Air Carrier Access Act. This is the ADA for the airlines.
I don't have a copy right off, but in a nutshell if the airline determines that someone is not capable of flying on their own due to a disability (and mental would certainly apply) then the airline is required to allow an attendant to fly for free with the passenger. The rule is, however that the airline is does not have to let the attendant stay with them until they return. In other words Gerry (original poster) could have flown with her mother, but when they arrived and her mother was situated with a ride home, Gerry would then be required to fly back to the origin airport. When it's time for her mother to return, she can then fly back and meet up with her for the return.
This might sound like a lot, but they don't want people claiming a disability to get an extra ticket for free for their friend to go on vacation with them.
The whole point of the attendant is what would happen if there were an evacuation? It is possible for Gerry to find another passenger in the gate area and ask if they would be the attendant. The FAA does not frown upon that. But that would be completely up to Gerry. I never saw that in this case, but I did have an 11 year old child in that situation. Grandma just found someone on the same flight and asked if they would look after her grandchild.
The part about limiting such passengers again is a safety issue. Under US rules, the airline MUST evacuate ALL passengers in 90 seconds or less weather that's a 19 seat prop job or a 747. I don't know what the Canadian rules are, but probably the same. If you have someone who requires a wheelchair, then they are going to need someone to carry them off that aircraft. So what happens is you would end up having a flight attendant have to carry someone off, somehow get back on, and get the next person. That put's passenger #2 in danger as well as the flight crew. So they limit it to a number that is less than the number of the crew, in this case 2 passengers on an A320 which will have 3 flight attendants.
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