This decision comes after years of institutional discussion about the balance between entrepreneurial freedom and consumer protection. For European lawmakers, the current system has evolved into a framework that systematically disadvantages passengers, particularly when essential services are converted into paid add-ons. According to industry estimates, in 2025 European airlines generated close to $16 billion in baggage-related revenues, and approximately 60% of that figure came from low-cost carriers—underscoring the strategic importance of this stream within their income structure.
The low-cost business model is built precisely on breaking down the ticket price to offer lower entry fares, allowing customers to add services according to their needs. Policymakers, however, contend that this practice makes it harder to compare real prices across airlines and fuels a perception of opacity. From a regulatory standpoint, the aim is not to eliminate pricing flexibility, but to establish a common framework that defines which elements should be considered part of the basic air transport service.
The airlines concerned have reacted cautiously, and with a degree of concern. They argue that requiring free cabin baggage could have a direct impact on their cost base and force them to raise base fares for all travellers, including those who choose to fly without a suitcase. In their view, the current system enables demand segmentation and more personalised choices, while keeping fares competitive in a market that is highly price-sensitive.
The debate also incorporates operational variables. Increased weight carried on board has direct consequences for fuel consumption and operational efficiency. On short-haul aircraft with around 150 passengers, adding between two and four kilograms per person can amount to up to 500 additional kilograms, implying an estimated fuel cost increase of roughly €15–€20 per flight hour. For an airline accumulating close to one million operating hours per year, this extra cost could exceed €28 million—an important figure in a sector characterised by tight margins.
Logistical considerations add to these factors. More cabin baggage often translates into slower boarding processes, reducing aircraft turnaround and affecting the fleet’s daily productivity. For airlines, this is particularly sensitive because the low-cost model depends heavily on optimising ground time to maximise aircraft utilisation.
Consumer associations, by contrast, have welcomed the initiative. From their perspective, the ability to bring a small cabin bag at no extra cost is a basic passenger right, not a premium service. They also argue that charging for baggage distorts the true price of the ticket and disproportionately affects families and frequent travellers. Some organisations even suggest that the seven-kilogram limit could be increased in the future if the new regulatory framework is consolidated.
Politically, the European Parliament maintains that the proposal is not intended to penalise airlines, but rather to strengthen legal certainty and trust in the European air travel market through clear, harmonised rules. The strategic objective is to balance business competitiveness with user protection, preventing abuses without curbing commercial innovation.
The legislative process is not yet complete, and the final outcome will depend on interinstitutional negotiations. Even so, the message from Brussels is unequivocal: the airline pricing model is under scrutiny and could undergo structural changes in the coming years. If the regulation is adopted, the sector will enter a new regulatory phase that will redefine the relationship between airlines and passengers, as well as the minimum service standards for air travel in Europe.
