Spain in breach of EU legislation over airline hand luggage fines, Commission says

The European Commission has weighed in on a dispute between the Spanish government and a group of budget airlines, including Ireland’s Ryanair, with European lawmakers coming down for now, on the side of the carriers.

In November 2024, Spain’s Ministry of Social Rights and Consumer Affairs imposed financial sanctions on five airlines (easyjet, Norwegian, Ryanair, Vueling, Volotea) over their charges for hand luggage. Making customers pay for small items of hand luggage was in contravention of European Union Court of Justice rules that say customers must be allowed to take such baggage on board free of charge.

The airlines protested and, after appeal, the European Commission has said Spain’s fines, which ranged from €107.7 million for Ryanair to €1.2 million for Volotea, are in breach of EU legislation that gives airlines “freedom to set their prices.” As a result, the Commission has put Spain on formal notice with two months to respond.

Spain’s Social Rights and Consumer Affairs minister Pablo Bustinduy has accused the Commission of defending the rights of multinationals instead of standing up for consumers. It is not the first time Bustinduy has railed against big business as he attempts to implement the coalition government’s social agenda. In this instance, he is backed, according to Europa Press, by sources in the Spanish ministry that have questioned the Commission’s authority to act in the case, arguing that the competence to decide on the viability of the sanctions or interpret community legislation lies with the EU Court of Justice (CJEU). If that’s true, “this file does not alter the sanctions against the five airlines,” the sources said.

‼️ Lamentamos que la @EU_Commission impugne las multas impuestas a las aerolíneas españolas ✈️

‼️ Con esta actuación se señala a quienes están protegiendo a las personas consumidoras, en vez de a las compañías que están vulnerando sus derechos.

Más información ⬇️…

— CECU (@CECUconsumo) October 8, 2025

Meanwhile, Ryanair has reacted jubilantly, with an announcement following up winter schedule cuts with a further reduction of 1.2 million summer seats from Spain’s 2026 schedules, in response to rising regional airport costs and the “illegal fines.” Other airlines appeared to leap on that opportunity, immediately announcing increases to their own routes.

The dispute goes beyond individual airlines and personalities. The European Parliament and the EU transport committee could be set on a collision course with the Commission’s latest ruling, with proposals in the offing that would allow air passengers to carry on not only a personal bag, but also a small piece of hand luggage, both free of charge.

The vote on that is due on Monday, 13 October 2025, and, if approved, would see MEPs negotiating a bundle of laws on passenger rights and multimodal journeys, with the first trilogue talks scheduled for 15 October.