The European Union wants to force airlines to include carry-on bags in fares, upending the way that many airlines do business. Is this a pro-consumer move, or a simple form of government overreach?
In this post:
European Parliament wants to update airline carry-on rules
The European Parliament is in the process of making changes that impact the transportation experience. For example, I’ve already covered how we could see reforms to Europe’s generous flight delay compensation scheme. That’s not all that’s under consideration.
Members of the European Parliament are also pushing to introduce common dimensions for hand luggage. They believe that passengers should have the right to carry one personal item, such as a handbag, backpack, or laptop (maximum dimensions of 40x30x15 centimeters), plus one carry-on item weighing up to seven kilograms (maximum dimensions 100 centimeters), onboard flights.
On June 24, 2025, the European Parliament’s transport committee voted in favor of this proposal. However, let me emphasize that this doesn’t mean that this will become law. Quite to the contrary, there’s still quite a road ahead for this to become a reality.
In order for this policy to be implemented, negotiations would need to take place with the European Commission and the Council of the EU, and there would need to be an additional vote. So it’s anyone’s guess if something comes of this, but it’s at least supported in theory.
Is this a consumer friendly change, or a step too far?
European politicians are positioning this policy change as requiring airlines to provide “free” carry-on bags. That sounds great, but that’s a bit misleading, if you ask me. Really, they’re pushing for fares to be bundled, and to simply include a certain baggage allowance with each fare.
There’s nothing “free” about this, since obviously you’d expect that airlines like Ryanair would increase their lowest fares in order to facilitate this.
Call it a hot take, but I’m not sure I’m actually in favor of this policy. Look, I’m not some uber-libertarian person who thinks governments shouldn’t get involved in anything, but I just don’t see an issue with airlines charging for carry-on bags, assuming they are transparent about it.
Like, why should the government dictate what should and shouldn’t be included with an airline ticket? Consumers should be able to vote with their wallets, and if a carrier’s carry-on policy is unacceptable, they can fly a different airline.
Make no mistake, this will lead to a fare increase for those passengers who don’t travel with a full size carry-on (I’m not sure I fully understand how people travel without carry-ons, but some people do!).
Also, I have a bit of a logistical issue with this concept. The weight limit for bags would be seven kilograms. Just to be clear, an empty Rimowa carry-on weighs about two-thirds of that. I know that many airlines already technically have similarly low weight limits, but don’t always enforce them.
To me, a seven kilogram weight limit on a carry-on is nearly useless. For example, if Ryanair were forced to follow this policy, you know the airline would suddenly have a €100 fee if you go even an ounce over the weight limit (which a majority of passengers likely would). I feel like this is a solution that will just create a new problem.
Bottom line
The European Union is considering implementing new rules, whereby airlines need to allow all passengers to include a carry-on bag and personal item with fares. Of course nobody likes to pay fees, but I also don’t necessarily think the government should tell airlines what kind of a product they should offer passengers, as long as they’re being transparent.
After all, there are some people who travel without carry-on bags, and those people would no doubt be looking at higher fares if something like this were implemented. At least that’s my take…
What do you make of the concept of the European Union requiring airlines to include carry-ons with fares?
This is an idiotic policy, written by people who don't understand the facts: the majority of B737
A320 in use by EU LLC can't fit the amount of luggage some EU MEPs are trying to regulate! Ryan Air doesn't have overhead bin space for 180+ carry ons, just about 1/2 to 2/3s...
The personal item size suggested is smaller than any in use today, so all the people who have bought specific backpacks...
This is an idiotic policy, written by people who don't understand the facts: the majority of B737
A320 in use by EU LLC can't fit the amount of luggage some EU MEPs are trying to regulate! Ryan Air doesn't have overhead bin space for 180+ carry ons, just about 1/2 to 2/3s...
The personal item size suggested is smaller than any in use today, so all the people who have bought specific backpacks for RyanAir will have to buy new ones...
And, as you point out, 7kg is useless. I can fit that into the RyanAir personal item! And the LCC will just charge people for being overweight carry on, as now for oversize...
Big fan of EU consumer protection, but this regulation is ill conceived and needs to die..
It's a complicated one.
Current LCC (Ryanair, easyJet, Wizz,.. ) rules are clear and for many the bare fare is enough. For most actually. And if you pay priority+full size cabin bag = guaranteed onboard. Only people who intentionally brings bigger bags may be in trouble. Which is completely fair!
If EU pushes for full size bag included in price = higher basic fares ( as ancillary revenue would go down). Not good...
It's a complicated one.
Current LCC (Ryanair, easyJet, Wizz,.. ) rules are clear and for many the bare fare is enough. For most actually. And if you pay priority+full size cabin bag = guaranteed onboard. Only people who intentionally brings bigger bags may be in trouble. Which is completely fair!
If EU pushes for full size bag included in price = higher basic fares ( as ancillary revenue would go down). Not good for most of the travellers.
I think the big airlines are nowadays able to market it's full size cabin bag rules and almost everyone knows the rules.
What may help would be a industry wide agreement on the size and max weight of personal item and full size cabin bag. The seats and planes are all the same.
At the end, shame on Vueling, which charges like 60+ EUR for any add-on bag. Ryanair on the other side is for sure the most transparent and cost friendly of all ULCC in Europe.
It's absolutely a waste of time to check what the carryon bag charge for booking Ryanair or similar UCC is unless one goes through the booking process and then understand their cabin size is for each of them because they intentionally make the initial price low and high fees for anything else. Ryanair charges different fees for the same bag based on the route so it is impossible to know what the true cost of...
It's absolutely a waste of time to check what the carryon bag charge for booking Ryanair or similar UCC is unless one goes through the booking process and then understand their cabin size is for each of them because they intentionally make the initial price low and high fees for anything else. Ryanair charges different fees for the same bag based on the route so it is impossible to know what the true cost of the flight is unless one goes through the tedious process of booking. This really creates a hidden cost and waste of time for customers. For EU's defence, they gave the airlines more than 18 months to come with the industry wide agreement on the carry on bag size but they just simply ignored it so EU finally had to impose a rule.
In the end, UCCs are posting quite a lot of profit from the fees so I don't necessarily agree with your argument that the new rule is going to increase the fare. The competitive nature of each market will determine the price and removing the hidden fees is only to create an environment where competitive market can be created with fairness.
From a selfish perspective this is bad. I check bags on every flight, and my only carryon is small enough to be free on all carriers. Thus, eliminating fees for some carryons saves me nothing and costs the airlines money. Thus, they will have pressures to raises other fees, which will cost me. For a similar reason, I would not want a law requiring hotels to offer "free" breakfast. It would raise rates for all....
From a selfish perspective this is bad. I check bags on every flight, and my only carryon is small enough to be free on all carriers. Thus, eliminating fees for some carryons saves me nothing and costs the airlines money. Thus, they will have pressures to raises other fees, which will cost me. For a similar reason, I would not want a law requiring hotels to offer "free" breakfast. It would raise rates for all. Since I skip breakfast, that law would make me pay for others' breakfasts.
While on this topic, you take a not too subtle shot EU 261. That is the most beloved Law ever enacted in Europe. Ryanair and others overtly go out of their way to deny you valid compensation for an airline fault.
"Cheap" airlines go the extra mile to screw you.
Last year, on our way to Bergen, to get on the Hurtigruten Coastal Express, Finnair, cancelled a flight, refused to book us on a...
While on this topic, you take a not too subtle shot EU 261. That is the most beloved Law ever enacted in Europe. Ryanair and others overtly go out of their way to deny you valid compensation for an airline fault.
"Cheap" airlines go the extra mile to screw you.
Last year, on our way to Bergen, to get on the Hurtigruten Coastal Express, Finnair, cancelled a flight, refused to book us on a competitor's flight, etc. Long story, short. Finnair put us up in hotel and meals.
Since Finnair didn't have availability to get us to ship's next stop, Hurtigruten booked us an alternative next day flight.
Before going to sleep that night, I went online and filed an EU 261. Money was deposited in our account three days later.
I would offer up this sage comment for your thought. In Europe, governments live fear of their citizens, and their responses to the government. In the United States, the citizens live in fear of their government.
That is why they want to change carry-on rules. A small step for passengers. And why EU261 was implemented. Without it, what recourse does the average passenger have against airlines like Ryanair?
If more people bring bags on board, then the overhead lockers will not be able to cope with them all. I'm happy with paying for a carryon, knowing that there will be room for it on board.
The proposed legislation doesn't require the free bag to be an actual carry-on, it's just being misinterpreted by most media. It just requires free transportation of a carry-on sized baggage. Airline may offer this in hold rather than on board.
“Just to be clear, an empty Rimowa carry-on weighs about two-thirds of that…”
I don’t think your average Ryanair passenger is walking around with a Rimowa. Just saying…
Indeed. My empty carry-on weighs a grand total of 1kg.
I’ve become really skilled at traveling with a very small carry-on that counts as a “personal item” and avoids carry-on fees with US and European airlines. The secret? Using local laundromats. I’ve also met lots of locals in interesting places this way.
I'd say it's a necessary move that may alleviate the race to the bottom, at least a little... It wasn't decades ago that "full service" European airlines would feed and water you, and you could have one hold baggage and a carry-on included in the ticket.
Light fares that allow you to take along just a personal item are an abomination. They have been "offered" on TPAC flights too, FFS.
It's an textbook...
I'd say it's a necessary move that may alleviate the race to the bottom, at least a little... It wasn't decades ago that "full service" European airlines would feed and water you, and you could have one hold baggage and a carry-on included in the ticket.
Light fares that allow you to take along just a personal item are an abomination. They have been "offered" on TPAC flights too, FFS.
It's an textbook case of shrinkflation, as somebody has suggested earlier today.
Hold luggage fees have become way too exaggerate for what is involved in the actual luggage handling. Free carry-on would be definitely a good step to balance it IMHO
Actually, may be regulating the fees for checked bags is better. That might convince more people to check a bag. Consider if carry ons are free, then people may hold up the flight more and try to bring on board even more than they should. Consider the low cost airlines claim that their boarding is faster as a result of less stuff in the cabin. Furthermore, most airlines do not charge for carry ons -...
Actually, may be regulating the fees for checked bags is better. That might convince more people to check a bag. Consider if carry ons are free, then people may hold up the flight more and try to bring on board even more than they should. Consider the low cost airlines claim that their boarding is faster as a result of less stuff in the cabin. Furthermore, most airlines do not charge for carry ons - just the discount/cheap airlines, so what does this idea really achieve.
this is kinda dumb.
The EU should, instead, say what an airfare *does* include. They'll have to make more proposals like Ben has described here to cover the other ways in which airlines will misbehave.
Well, it's targeted at low-costs. It won't change a lot on most full service airlines, neither does it intend to (although we see this trend expanding to some of them, e.g. AFKL, SK, AY).
The proposed regulation does allow the free "regulatory" allowance to be provided as a checked bag rather than carry-on.
Airlines should be forced to include a carry on bag and they should be forced to not split passengers up on the same booking.
The main problem with the eu regulation is they have picked a size thats too small for the bag
They should ban charging extra for checked bags instead. That makes more sense since cabin baggage bags are such a hindrance and always a hazard during the emergency evacuation (people slow down to retrieve them).
I think it is way overdue. I was booking ITA New York to Milano in business. ITA charged for luggage. I got cheaper delta one to ticket It’s a waste to charge
You missed the part where EP refused the Commission's proposal to remove consumer protections. You're refering to that proposal in this article as if it was still on the table.
And not everyone travels with a Rimova ;) My full size (!) suitcase weighs less than three kilos. Carry-on will be one kilo or something like that.
Regarding 'Consumers should be able to vote with their wallets, and if a carrier’s carry-on policy is unacceptable, they can fly a different airline'
That's not how it works in Europe sadly, it's often the choice of convenient low cost or a few hours by train to the capital and a more generous airline. Plus, remember these carry on prices were included before until it became a game of 'if that airline can charge for...
Regarding 'Consumers should be able to vote with their wallets, and if a carrier’s carry-on policy is unacceptable, they can fly a different airline'
That's not how it works in Europe sadly, it's often the choice of convenient low cost or a few hours by train to the capital and a more generous airline. Plus, remember these carry on prices were included before until it became a game of 'if that airline can charge for this so can we' so who's to say what would happen if it's blanket European restrictions and if they would actually raise prices by the amount they were charging before. Have to say I doubt it.
All for the EU and it's attempts to help European consumers.
Never heard of Rymowa but checked their website, where aluminum stuff sells for up to $3,450. To me an allowable carry-on should be a lightweight backpack, less than a kilo when empty.
I have a very well-traveled Rimowa cabin spinner and it weighs 3kg empty. It would be half empty if I kept it under 7kg… that’s such a silly and arbitrary weight limit… smh.
People are always trying to get services for free. So far many airlines allow 1 piece of carry on luggage in coach. And people haul big parts of their household on the plane. Now the suggestion is that on top of that one piece there is also one more smaller bag which you can take as carry on. People will argue what the size limitations actually are mean.
As a consequence boarding will take much...
People are always trying to get services for free. So far many airlines allow 1 piece of carry on luggage in coach. And people haul big parts of their household on the plane. Now the suggestion is that on top of that one piece there is also one more smaller bag which you can take as carry on. People will argue what the size limitations actually are mean.
As a consequence boarding will take much longer and will most likely be further delayed because stuff has to be offloaded into the hold.
If implemented this proposal is an absolute nightmare!
"I’m not sure I fully understand how people travel without carry-ons, but some people do!" - for me, a small backpack is usually enough for a short city break. I've actually done a 12 day RTW with just a small backpack: 3 changes of light clothes, phone, charger, passport - what else do you need? Granted, it was warm everywhere I went.
If you didn’t find a local laundromat to wash your gear halfway around the trip, you’re a stinky person I hope I don’t have to sit next to.
I have done a 3-week trip with a carry on. My trick is to wash the clothes each night when I take my shower in the evening, that way I can repeat the same clothes every 2 days. I'm not particularly fashionable neither am I looking to impress anyone so I don't care about looks.
If the airline-given criteria for bag sizes and charges are made clear, why should the government get involved to say what is a "fair" amount of personal baggage to count as a carry-on? This is not a human right, right?
Why shouldn't companies be allowed to offer what product and conditions they want, and let consumers choose whether they like it or not, with their patronage?
It does seem to me a reflection...
If the airline-given criteria for bag sizes and charges are made clear, why should the government get involved to say what is a "fair" amount of personal baggage to count as a carry-on? This is not a human right, right?
Why shouldn't companies be allowed to offer what product and conditions they want, and let consumers choose whether they like it or not, with their patronage?
It does seem to me a reflection of the amount that EU countries are willing to make such rules. The question is whether that kind of rulemaking produces good outcomes versus letting companies and customers negotiate it out via the market.
because its anti consumer and it just gets worse
@Eric Schmidt. The answer to your ending question is explained in Basic Economics by Thomas Sowell. There is a reason the book is now in its 5th edition and available in 7 languages. Mr. Sowell is a 95 year old living legend!
The highest EU court ruled that it is a right so I don't think EUs intention to decide what tis right or what is not. Its job is to provide the law that facilitates the court rulings. So if you don't agree with the highest court in EU, stay out of the EU.
The worse thing is if a gate agent is a misinformed dictator and charges you for a compliant bag. Otherwise, I do not mind if the rules and charges are clear.
If there is a common bag size, expect it to be smaller than some airlines allow now. If the allowed carry on bag size is too small, then one has to check bags, which is not good if you know how to pack light....
The worse thing is if a gate agent is a misinformed dictator and charges you for a compliant bag. Otherwise, I do not mind if the rules and charges are clear.
If there is a common bag size, expect it to be smaller than some airlines allow now. If the allowed carry on bag size is too small, then one has to check bags, which is not good if you know how to pack light. One common sized rollaboard can, in some cases, be enough for a trip of one week but the slightly smaller size probably will be increasingly difficult.
I disagree with the EU. By obliging the airlines to a standard hand baggage unit they are actually removing their competition advantages. Plus airlines that allow 10 kgs now will go down to 7 hoping that you actually pay for a checked bag. And as Ben said Ryanair will add a free handbag but it will not be free, the fares will go up. And then the weighing in gates will start, so people will...
I disagree with the EU. By obliging the airlines to a standard hand baggage unit they are actually removing their competition advantages. Plus airlines that allow 10 kgs now will go down to 7 hoping that you actually pay for a checked bag. And as Ben said Ryanair will add a free handbag but it will not be free, the fares will go up. And then the weighing in gates will start, so people will be even more agressive when charged for extra weight and boarding that took forever now will take forever+2
Unrelated (and unpopular with consumers) but has any airline looked into charging for carry ons only and allowing a checked bag or two? Carry ons take a lot longer to load and seem to be a source of headache for airlines
Not exactly the same, but Frontier, at least in the recent past, charged more for carry-ons than checked bags to encourage people to check them instead.
More EU overreach. If passengers disrespect themselves enough to fly Ryanair, they deserve to get gouged. EU should focus on ensuring robust competition.
@Jack. Of course!…but too busy playing political games to get re elected. Unfortunately, consumers don’t understand common sense
Rules like this are being proposed precisely because airlines like Ryanair and easyJet are *not* transparent about these fees. They have found new ways to go back to their old tricks - hook people on artificially low fares, and then have incredibly convoluted fare buckets to choose from afterwards. Oftentimes, there is no sequential "building up" of add-ons from one fare bucket to next - one bucket will have seat selection, a check-in bag but...
Rules like this are being proposed precisely because airlines like Ryanair and easyJet are *not* transparent about these fees. They have found new ways to go back to their old tricks - hook people on artificially low fares, and then have incredibly convoluted fare buckets to choose from afterwards. Oftentimes, there is no sequential "building up" of add-ons from one fare bucket to next - one bucket will have seat selection, a check-in bag but no carry-on, whilst the next will have no seat selection, a carry-on but no check-in bag. It makes the whole process a crapshoot, even for the experienced traveler.
I politely disagree Oscar. I flew FR a few times and i always knew what i am buying and what i can have. The problem with people is that they always think they can outsmart the airline and then cry in instastories that they had to pay for a bag that didnt fit in the sizer. The gate staff is motivated by a bonus for each bag they charge so trust me, if you carry too much, they will find you (and i am aware of some of them power tripping which is not ok)
Not true, Kat, customers cannot know the price unless they go through the entire booking process to know the real cost and then they can compare. It is a lot of time wasting and airlines do know this so they make it the entry price lowest and feels higher than competitors. Of course, if you intend to fly with an extremely small bag only, you don't need to do all of these but not everyone is so savvy and good with packing extremely light
Airlines like RyanAir and Easyjet make actually booking the ticket and paying for your carry-on unnecessarily complicated. They dight in catching you out and having to pay more than expected.
If this legislation changes that, hooray!! Many people fly carriers like BA to avoid this kind of crap anyway.
I have absolutely had it with airlines continuing to play shrinkflation games with carry on baggage allowances. I keep having to buy new bags because of this. It's ludicrous and it needs to stop, and this needs to happen globally.
Standardize what an airline ticket is, what it includes, what a carry on bag is, and what weights are allowed, and allow a competitive marketplace around that. I shouldn't have to read 15 pages of...
I have absolutely had it with airlines continuing to play shrinkflation games with carry on baggage allowances. I keep having to buy new bags because of this. It's ludicrous and it needs to stop, and this needs to happen globally.
Standardize what an airline ticket is, what it includes, what a carry on bag is, and what weights are allowed, and allow a competitive marketplace around that. I shouldn't have to read 15 pages of Terms and Conditions and baggage rules (and buy a new bag) to avoid being punched in the face with a "because we can" fine at the boarding gate.
Amen TProphet
I'm ok paying for carry-on bags, but the prices need to be kept reasonable. $30 max, and offer a discount for paying ahead.
This $100 at-the-gate crap for a bag that I had to handle/load myself needs to go.
They should not be allowed to charge more at the gate than if its booked ahead of time.
@Jack. Of course!…but too busy playing political games to get re elected. Unfortunately, consumers don’t understand common sense
@Alpha. It sounds like you have been a sucker to not reading terms of luggage. I suppose you’ve learned the hard way!
Prices are kept reasonable by free markets, supply/demand. If prices are wrong, companies will adjust and survive…or not!
Again, Basic Economics by Thomas Sowell, the book explains this concept in more depth.