IATA Urges 4.9% Annual Cut in Spanish Airport Charges, Citing €1.3bn Overpayments

AENA, which operates the vast majority of Spain’s airports, has proposed an annual increase of 3.8% (excluding inflation) under DORA III.

The International Air Transport Association (IATA) and the Spanish Airline Association (ALA) are calling for a 4.9% annual reduction in Spanish airport charges over the next five years, warning that higher fees proposed by airport operator AENA would damage Spain’s competitiveness and repeat years of excessive overcharging.

The airlines’ proposal, covering the 2027–2031 regulatory period (DORA III), would still allow AENA to deliver its planned €10 billion airport investment programme, while ensuring fairer returns and lower costs for passengers and airlines.

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Airlines Reject AENA’s Proposed 3.8% Increase

AENA, which operates the vast majority of Spain’s airports, has proposed an annual increase of 3.8% (excluding inflation) under DORA III.

IATA and ALA have strongly rejected the proposal, arguing it is unjustified given AENA’s history of underestimating passenger growth and earning excessive regulated profits as a result.

“AENA has gamed the regulatory system for years, earning millions of euros more than it should have, at the expense of passengers, airlines, and the Spanish economy. This must stop,” said Rafael Schvartzman, IATA’s Regional Vice President for Europe.

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Forecast Errors Delivered €1.3 Billion in Excess Returns

According to IATA and ALA, AENA’s traffic forecasts have consistently fallen far below actual passenger numbers.

Between 2017 and 2025 (excluding the pandemic years), actual passenger traffic was on average:

• 15.3% higher than forecasts set out in DORA I and DORA II

This mismatch resulted in AENA earning:

• €1.3 billion in excess regulated returns, costs ultimately borne by airlines and consumers

In 2024 alone, AENA’s regulated return reached:

• 10.2%, four percentage points above its expected level

• Nearly €400 million in overpayments by airlines and passengers in a single year

“If granted, it would deliver the highest regulated return of any comparable airport operator in Europe,” Schvartzman said.

“This is unsustainable and unrealistic—we need to see a reduction in charges.”

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Charge Reductions Compatible With €10bn Investment Plan

IATA and ALA stressed that cutting charges would not undermine AENA’s ability to invest in airport infrastructure.

Separate studies commissioned from global consultancies Steer and CEPA project passenger traffic growth of:

• 3.6% per year on average

This is far above AENA’s own forecast of:

• 1.3% annual growth

Under the higher traffic growth assumptions, airlines say AENA could still:

• Fully fund its €10 billion investment programme

• Earn a return on capital of 6.35%, described as more generous than intended under DORA II

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Airlines Say Lower Charges Will Boost Spain’s Economy

IATA argues that reducing airport charges would strengthen Spain’s position as a global aviation hub and tourism destination, stimulating broader economic growth.

“Our proposal for a 4.9% cut in charges will improve Spain’s competitiveness as an international destination, stimulating investment and job creation across the wider economy,” Schvartzman said.

“At the same time, AENA can still afford its €10 billion investment plan and deliver reasonable returns to its shareholders. This is a win-win for passengers, Spain, and the aviation industry.”

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Regulatory Review Looms

The dispute comes as Spain’s regulators prepare to review the evidence underpinning airport charges for the DORA III period.

Airlines say the decision will be pivotal for:

• Passenger affordability

• Airline route development

• Tourism competitiveness

• Sustainable airport investment

IATA and ALA have urged regulators to reject further increases and instead adopt a framework that reflects realistic traffic growth, fair returns, and stronger economic outcomes for Spain.