Spain’s Push for Free Carry‑On Luggage
Spain fought hard to guarantee that every air passenger could bring a free carry‑on suitcase onto the plane. After thirteen years of negotiations, EU member states reached an agreement on Friday, and the European Parliament is expected to vote in favor on Monday. Despite the effort, the final deal fell short of Spain’s original goal, which the government calls its “main failure.”
What the Agreement Actually Says
- Airlines must let passengers bring one personal item (like a backpack or purse) into the cabin at no extra cost.
- A second piece of hand luggage is allowed only if the aircraft cabin has enough space.
- Ticket prices must display the allowed hand luggage by default before any booking begins.
- Airlines and travel agents may offer cheaper “no‑luggage” fares for travelers who voluntarily choose to fly without a carry‑on.
In practice, this means airlines can sell a basic ticket that includes a carry‑on suitcase and a cheaper ticket that does not. The result is essentially the same as charging extra for a trolley‑type bag, which is exactly what Spain wanted to avoid.
Why Spain Voted Against the Deal
The Spanish government considered a free carry‑on suitcase a non‑negotiable red line. Officials from the Ministry of Consumer Affairs said the final text is less protecting and ambitious than they hoped for. They pointed out that Spanish courts have repeatedly ruled that free hand luggage is a passenger right.
Minister Pablo Bustiduy had previously fined airlines such as Ryanair, Vueling, EasyJet, Norwegian and Volotea a total of 179 million euros for charging extra for carry‑on bags. Ryanair alone received a 107 million‑euro fine, and its CEO Michael O’Leary called the minister a “fool.” The ministry notes that these fines were issued under the old rules and will remain valid regardless of the new regulation.
Other Improvements in the New Rules
Beyond luggage, the agreement introduces several passenger‑friendly measures:
- No fees for seat selection when traveling with children or dependent persons.
- No charges for printing tickets at the airport or for correcting a typo in a reservation.
- Boarding cannot be denied on a return flight if the outbound leg was not used (ending the “no‑show” penalty).
Consumer groups acknowledge that while the text isn’t perfect, it is a step forward compared to earlier Council proposals that threatened to roll back rights.
Delay Compensation – The Toughest Negotiation Point
The most contentious issue during the talks was the right to compensation for flight delays. The Council wanted to limit access and lower payouts, but the European Parliament held firm.
The final compromise keeps the existing standard:
- Compensation starts after a three‑hour delay.
- Amounts range from 250 € to 600 €, depending on flight distance and delay length.
Parliament negotiator Andrey Novakov celebrated the outcome, saying the Parliament kept its promise not to weaken passenger rights.
Thirteen Years in the Making
The European Commission first proposed updating Regulation 261/2004 back in 2013, citing gaps, inconsistent interpretations, and uneven application. After the European Parliament’s initial opinion in 2024, the process stalled when it was the Council’s turn.
For thirteen years, negotiations dragged on, with the Council seeking to cut delay‑compensation rights and the Parliament refusing to back down. A political agreement finally emerged in June 2025 when EU transport ministers concurred, leading to the conciliation commission—a rare step used in less than 10 % of EU legislation since 1999.
What Happens Next?
If the European Parliament ratifies the text on Monday, the regulation will become directly applicable in all Member States, overriding any conflicting national laws. No additional national legislation will be required for it to take effect.
Conclusion
Spain’s campaign for a guaranteed free carry‑on suitcase did not achieve its ideal outcome, but the new air‑passenger‑rights package still brings meaningful improvements—clearer luggage rules, eliminated junk fees, and preserved delay compensation. After more than a decade of debate, travelers across Europe can expect a slightly fairer flying experience, even if the dream of a completely free trolley‑size bag remains unfulfilled for now.
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