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The Rotterdam Rules that has been ratified at 2009 is one of the most important rules with significant innovation in the regulations of international transport of goods by sea. The gradual development of the rules governing the basis of carrier’s liability since Multimodal Transport Convention 1980 to the UNCTAD/ICC Rules 1992 and then the Rotterdam Rules 2009 are discussed in this paper. While according to Multimodal Transport Convention 1980, presumed fault, was accepted as the basis of carrier`s liability, and the majority of scholars claim that the basis of liability in UNCTAD /ICC Rules 1992 is the same (presumed fault), in practice the burden of proof in both groups of the above-mentioned Rules is on carriers and they are practically subject to presumed liability. The Rotterdam Rules is based on the new structure in assigning the burden of proof to each party, and the basis of liability. While the other previous regulations governing the multimodal carriage of goods  comply with certain liability basis, in Rotterdam Rules, this liability is the combination of presumption of liability and presumption of fault, and tort law which alternatively change at each stage. Therefore, carriers in some cases have to prove lack of their fault, and in some cases, lack of their liability, and in some assumptions, the claimant has the responsibility about the burden of proof, and not the carrier.