Spain’s government has approved DORA III, locking in a minimal rise in airport fees and a €13 billion investment plan. The move has drawn sharp criticism from coalition partner Sumar and major airlines, exposing deep divisions over the future of Spanish aviation infrastructure.
Spain’s Council of Ministers has approved the new Documento de Regulación Aeroportuaria (DORA III) for 2027–2031, setting a 0.33% annual increase in airport fees and authorizing a €13 billion investment plan for the country’s airports. The timing was driven by a regulatory deadline at the end of September, allowing the new rules to take effect without delay. Instead of bringing agreement, the decision has highlighted divisions within the government and the aviation industry.
Sumar, a coalition partner, quickly criticized the plan. Culture Minister Ernest Urtasun rejected the push for more airport growth, especially the planned extension of Barcelona’s El Prat runway. He warned that the project would damage protected wetlands and worsen unsustainable tourism. Urtasun called on the European Union to block the expansion, which threatens La Ricarda, a Natura 2000-listed lagoon.
A significant portion of the €13 billion DORA III investment is already earmarked for specific airports: approximately €1.765 billion for Barcelona–El Prat and €4.4 billion for Madrid–Barajas, with El Prat’s funds focused on preparatory works for future expansion.
The government describes the fee increase as minor—about three cents per year after an 11% rise since 2024—but airlines are not convinced. Ryanair, which has already cut three million seats from Spanish regional airports for 2025 and 2026, blames high Aena charges for limiting growth. CEO Michael O’Leary and Transport Minister Óscar Puente have publicly argued over the cause of the cuts, with O’Leary pointing to airport tariffs and Puente blaming Boeing delivery delays. Ryanair’s official statement on DORA III was direct: “The government has missed a major opportunity to boost traffic, tourism and jobs by not reducing Aena’s already excessive fees.”
The Association of Líneas Aéreas (ALA) shares Ryanair’s concerns. While it acknowledges the fee path is “moderate,” the group warns that Aena could end up with excessive regulated profits, hurting airlines and passengers. Even a small increase, after recent hikes, could make Spain less competitive and reduce passenger numbers. According to industry reports, ALA has specifically warned that the new rules could weaken Spain’s position as an aviation hub if not managed carefully.
On the local level, the investment plan is also under scrutiny. In Menorca, the Partido Popular has called for Aena to prioritize urgent needs like a new control tower instead of expansion. Recent flooding in the current tower, highlighted by unions CCOO and USCA, has exposed the vulnerability of existing infrastructure and the gap between large investment announcements and day-to-day problems.
DORA III’s funding will largely come from the revenues generated by the Aena-managed airport system itself, not from Spain’s general state budget. This approach is seen as a way to ensure financial sustainability without direct reliance on public funds, according to industry sources.
Despite the criticism, the government is moving forward. DORA III sets aside €191.25 million for preparatory work on the El Prat runway extension, making it clear that environmental and political objections are unlikely to stop the project for now. Officials present the plan as a balance between maintaining infrastructure and allowing for future growth, but the ongoing disputes with Sumar and the airlines show that agreement is still out of reach.
The government is trying to project stability and ambition, while airlines and coalition partners accuse it of ignoring environmental limits and economic pressures. The approval of DORA III is less about consensus and more about a calculated risk: hoping that small fee increases and major investments will keep Spain’s airports competitive, even as political and environmental costs rise. For now, the government’s approach is to press ahead, take the criticism, and wait to see if the promised benefits appear before the disagreements deepen.
