Why Hand Luggage Rules Are Causing Turbulence in Europe

Friday, October 17th, 2025

If you’ve ever wondered why some airlines charge for your hand luggage while others don’t, and why the rules seem to change every few months, you’re not alone. Across Europe, and especially in Spain, a major debate is under way over whether airlines should be allowed to charge passengers for bringing a small cabin bag on board. Here’s a clear guide to what’s happening, why it matters, and how it could affect your travel experience.

Hand Luggage Charges: A Source of Confusion

Airlines across Europe have very different rules when it comes to hand luggage. Some allow a small suitcase plus a personal item for free, while others only permit a handbag or laptop case unless you pay extra. The rules can change without much notice, leaving passengers confused at the gate about what’s allowed.

For budget airlines, charging for cabin luggage beyond a minimal “personal item” has become a significant source of extra income. These “ancillary revenues” help keep ticket prices low, but from the consumer’s perspective, such fees are often viewed as unclear or unpredictable “add-on charges”, where costs are revealed gradually throughout the booking process.

Why Has the Debate Come About?

The core question is simple: should hand luggage, traditionally seen as part of the ticket price, now be treated as an optional extra?

Consumer advocates argue that basic cabin bags are essential for short trips and should be included in the fare. Airlines, particularly low-cost carriers, counter that optional luggage charges allow them to keep fares flexible and competitive.

The clash reflects broader concerns over transparency in airfares, as passengers increasingly face a complex web of add-on fees for baggage, seats, and boarding preferences.

The History of the Dispute

The controversy isn’t new. Back in 2014, the European Court of Justice (ECJ) ruled that “the carriage of hand luggage cannot be subject to a surcharge” as long as it meets reasonable size and weight requirements and complies with safety rules.

However, airlines and several EU member states challenged the ruling’s interpretation. They argued that the law left too much room for debate, particularly over what counts as “reasonable” dimensions, and that airlines should retain the freedom to price their services as they see fit.

As a result, the European Union has been considering reforms to passenger rights legislation for several years, aiming to clarify baggage rules and ensure greater pricing transparency across the single market.

Spain’s Air Navigation Act vs EU Law

In Spain, the Air Navigation Act (Ley de Navegación Aérea), dating back to 1960, includes a key provision on passenger rights. Article 97 states that:

“The passenger has the right to carry, free of charge, as hand luggage, the objects and small items they carry with them, unless for safety reasons or size/weight they must be transported separately.”

Spain’s consumer authorities have interpreted this as a clear ban on charging passengers for normal hand luggage.

However, the airlines point to EU Regulation 1008/2008, particularly Articles 22 and 23, which state that airlines operating within the EU have the freedom to set their own airfares and rates, including optional charges for ancillary services such as baggage. This EU rule, they argue, overrides national laws like Spain’s when it comes to pricing freedom within the single market.

Recent Developments: What’s Been Happening in 2025

In mid-2025, the European Parliament’s Transport Committee backed a proposal that would ban extra fees for small hand luggage. Under the proposal, passengers would be entitled to carry:

• One personal item, such as a handbag or small backpack (maximum 40 × 30 × 15 cm), and
• One hand luggage item weighing up to 7 kg, with a combined size limit of 100 cm.

Airlines would not be allowed to charge extra for these two items.

This plan forms part of a wider EU Passenger Rights reform package, which also aims to make airfares clearer by requiring airlines to display the total price (including all mandatory fees) earlier in the booking process.

However, it’s important to note that this parliamentary vote does not automatically make the rule law. It must still be negotiated with the EU Council, representing member states, before becoming binding legislation.

What the Airlines Say

Airlines argue that banning carry-on charges would undermine their flexible pricing models. Low-cost carriers, in particular, depend on ancillary revenues, from seat reservations to luggage and food sales, to sustain low base fares.

They warn that if the EU forces them to include cabin baggage for free, they may have to raise ticket prices for everyone, effectively making passengers who travel light subsidise those carrying more.

Spain’s Role in the Dispute

Spain has been one of the most active countries in Europe in challenging carry-on charges. In November 2024, Spain’s Ministry of Consumer Affairs fined five low-cost airlines, namely Ryanair, easyJet, Vueling, Norwegian, and Volotea, a total of €179 million for what it called “abusive practices”. These included fees for hand luggage, seat selection, printing boarding passes, and a lack of transparency.

Spain also took a leading role in rallying other countries and consumer groups, inviting 11 EU consumer organisations to join a coordinated complaint against “unfair” luggage fees. The Spanish government has consistently opposed EU Council votes that would legitimise charging for cabin baggage.

Airlines and their associations, including Spain’s Airline Association (ALA) on the other hand, argue that these fines contradict EU law and restrict the freedom of pricing guaranteed under Regulation 1008/2008.

The Latest Twist: The October 2025 EU Ruling

On the 15th October 2025, the European Commission ruled that Spain’s €179 million in fines against low-cost airlines breached EU law.

The Commission stated that:

• Spain’s sanctions limited airlines’ freedom to set prices for ancillary services under EU Regulation 1008/2008.
• It would open a formal infringement procedure against Spain, giving the government two months to respond.

While the decision does not immediately cancel the fines, it challenges Spain’s legal basis and leaves the wider issue of what exactly counts as “free” hand luggage unresolved.

What Happens Next?

The debate is far from over. If the proposed EU framework is eventually approved, airlines across Europe would have to allow two free hand luggage items per passenger:

• One personal item (around 40 × 30 × 15 cm), and
• One small cabin bag (up to 7 kg, 100 cm combined dimensions).

Currently, most low-cost airlines only include the first of these, the small under-seat bag, in their cheapest fares.

The coming months will determine whether:

• The EU Council accepts or amends the parliamentary proposal.
• A definition of “reasonable” size and weight can be agreed upon without ambiguity.
• Airlines adjust their pricing models, potentially shifting costs elsewhere (for example, into higher base fares or checked-baggage fees).
• Further legal challenges and enforcement battles arise between national regulators and EU institutions.

A period of fragmentation and transition is likely, with airlines and governments taking time to align with any new EU standard.

What This Means for Passengers Flying via Palma de Mallorca

For travellers to and from Palma de Mallorca Airport, and indeed across Europe, this debate could shape how much you pay, what you can bring, and how clearly fares are presented in the future.

In the short term, expect airlines to maintain their current rules while lobbying intensively in Brussels. But if EU reforms go ahead, a new uniform hand-luggage policy could bring welcome clarity, and possibly lower stress levels at the boarding gate.

Until then, do make sure to check your airline’s specific cabin-baggage policy before flying, as these rules continue to differ — and to change.

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Featured image courtesy of Magda Ehlers – Pexels

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