Who remembers when air travel was chic? The price of the ticket being prohibitive, only the elite had to remember this. The price was unique. A combo of five items was sold: transportation, on-board services, seat selection, baggage check-in and carry-on baggage. What about bill (PL) 5.041/25, which modifies these rules?
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In the 2000s, low-cost companies appeared, charging separately for baggage and transportation services, making it an international rule. The consequence was that more people had access to air service, thanks to the reduction in prices. In Brazil, Anac Resolution 400 of December 13, 2016 authorized separate fees for advance seats and checked baggage.
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The argument in favor of the service segmentation policy is price discrimination according to the type of consumer: the airline separates passengers based on their sensitivity to the value of the services offered, generating more efficient pricing, because everyone pays for what they want and the costs of each service are shared only with those who wish to consume them.
This separation aligns prices, costs and individual preferences, thereby generating greater allocative efficiency. When services are sold as a combination, there is in return a cross subsidy. Passengers traveling with only carry-on baggage pay for those who check their bags, as the costs are shared by everyone.
Segmentation also leaves everyone in the same or better situation than before: the airlines, with the same or better profits; elite passengers, with the same possibilities as before; and new customers, with the joy of using air transport. In addition, the increase in the number of travelers strengthens other sectors of the economy such as tourism, services, events and commerce.
In October 2025, Gol announced charging for 10 kilos of hand luggage, in accordance with international regulations. Due to truncated communication, there was a backlash. The Chamber of Deputies immediately approved PL 5,041, worse, with several amendments, including the free return of checked baggage. The PL is in the Senate. After the appointment of a rapporteur, the text must go through the infrastructure or economic affairs committee before being voted on in plenary. It is time to clarify that the PL goes against the interests of Brazilians.
Charging segmented rates for services is an established practice internationally. It is an arrangement that corrects distortions, expands choice, makes air travel more accessible and strengthens competition. Countries that have adopted this model have expanded regional roads and connected small towns. Economic rationality shows that the policy is appropriate. In a continental country like Brazil, more people have started to travel, with largely positive effects. It is respectfully recommended that the Senate archive PL 5,041/25.
*Cristiane AJ Schmidt, economist, president of the Brazilian Association of Law and Economics and MSGas, was advisor to Cade and economic secretary of Goiás.
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