Key data
| Regulation | Resolution of September 16, 2026, from the General Directorate of Civil Aviation — Airport Regulation Document 2027-2031 (DORA 2027-2031) |
|---|---|
| BOE Publication | September 19, 2026 |
| Effective date | January 1, 2027 |
| Affected parties | Aena, airlines, airport operators, users and autonomous communities with airports of general interest |
| Category | Regulatory Changes |
| Regulatory period | 2027-2031 (five-year) |
| Legal basis | Law 18/2014 |
| Supervisory bodies | CNMC, AESA, General Directorate of Economic Policy |
Airlines operating at airports in the network of general interest managed by Aena have a deadline: January 1, 2027 is when the new five-year tariff framework comes into force. The Council of Ministers approved on September 15, 2026 the Airport Regulation Document 2027-2031 (DORA 2027-2031), published in the BOE on September 19 through a Resolution from the General Directorate of Civil Aviation.
This is the third DORA approved since Law 18/2014 established this model of airport regulation in Spain. This is not a minor adjustment: it defines the rules of the tariff, investment and quality game for the next five years across the entire network of airports of general interest.
What does this regulation establish?
DORA 2027-2031 is the document that sets the complete regulatory framework under which Aena will manage its airports during the 2027-2031 period. Its pillars are four:
- Minimum standards for capacity, quality and environment: Aena is obliged to meet minimum levels in these three dimensions across its entire network.
- Investment program: DORA defines the investments planned for the five-year period, which directly impacts the future capacity of airports and operating conditions for airlines and operators.
- Tariff path through IMAP: The Maximum Annual Income per Passenger (IMAP) is the central mechanism for controlling Aena's income. It determines how much Aena can earn per passenger and therefore directly conditions the tariffs paid by airlines and operators.
- Bonuses and incentives: The document contemplates bonuses for general interest and commercial incentives, which opens opportunities for airlines operating routes of strategic interest or meeting certain criteria.
DORA replaces the previous five-year regulatory framework and has been favorably reported by three bodies: the CNMC (National Commission of Markets and Competition), AESA (State Agency for Air Safety) and the General Directorate of Economic Policy.
| Regulated element | DORA 2027-2031 content |
|---|---|
| Tariff mechanism | Maximum Annual Income per Passenger (IMAP) |
| Mandatory standards | Capacity, quality and environment |
| Investment program | Defined for the 2027-2031 five-year period |
| Bonuses | For general interest and commercial incentives |
| Supervision | Periodic by CNMC, AESA and DG Economic Policy |
| Legal basis | Law 18/2014 |
| DORA number | Third since the approval of Law 18/2014 |
Economic and operational impact
The most direct impact for airlines and operators is the review of tariffs they pay to Aena. IMAP acts as a ceiling on Aena's income per passenger, which means that the specific tariffs set within that limit will determine the cost per operation for each airline.
From an operational perspective, DORA implies:
- Review of commercial contracts with Aena: Commercial relationships must be adapted to the new tariff path before January 1, 2027.
- Bonus opportunities: Airlines operating routes of general interest or meeting commercial incentive criteria will be able to access reduced tariffs.
- 5-year capacity planning: The investment program defined in DORA conditions the available capacity at each airport, which affects slot and route planning.
- Enhanced supervision: Periodic supervision mechanisms by CNMC, AESA and the General Directorate of Economic Policy increase regulatory transparency, but also expose Aena and operators to compliance reviews.
Autonomous communities with airports of general interest in their territory are also affected, as DORA can condition investments and connectivity of their infrastructure.
Who does it affect?
- Aena: As network manager, it must apply IMAP and comply with the capacity, quality and environmental standards defined in DORA.
- Airlines: Must adapt their commercial agreements with Aena to the new tariffs and evaluate access to bonuses and incentives.
- Airport operators: Any company with activity at airports in the network of general interest is subject to the new regulatory framework.
- Airport users: Tariffs and quality standards indirectly impact passenger prices and experience.
- Autonomous communities: Those with airports of general interest in their territory are affected by DORA's investment and connectivity decisions.
Practical example
A low-cost airline that operates regular flights from several airports in the Aena network currently has its airport tariffs set in accordance with the previous DORA. From January 1, 2027, Aena will apply the new tariffs derived from the IMAP approved in DORA 2027-2031.
If this airline operates routes considered of general interest — for example, connections to island territories or areas with low connectivity — it could access the bonuses for general interest provided for in the document, reducing its tariff cost per passenger. Conversely, if it does not review its contracts with Aena before the effective date, it could automatically be subject to standard tariffs without taking advantage of available incentives.
Additionally, DORA's investment program can expand or modify the capacity of certain airports, which affects slot availability and route planning for the 2027-2031 period.
What should companies do now?
- Review current contracts with Aena: Identify which commercial agreements are affected by the change in tariff path and when they expire or can be renegotiated before January 1, 2027.
- Analyze access to bonuses: Evaluate whether the routes operated meet the criteria for general interest or commercial incentive provided for in DORA to reduce tariff costs.
- Incorporate the investment program into strategic planning: Aena's planned investments for 2027-2031 condition the future capacity of airports. Airlines must integrate this information into their route and slot planning.
- Follow periodic supervision mechanisms: CNMC, AESA and the General Directorate of Economic Policy will supervise DORA implementation. Staying aware of their reviews allows anticipating tariff or standard adjustments.
- Consult the full text of DORA: The document approved by the Council of Ministers on September 15, 2026 contains details of standards, IMAP and bonus conditions. Reading it is essential for any affected operator.
Frequently asked questions
When do the new DORA 2027-2031 tariffs come into force?
DORA 2027-2031 comes into force on January 1, 2027. From that date, Aena will apply tariffs set in accordance with the Maximum Annual Income per Passenger (IMAP) approved in the document. Airlines and operators must have adapted their contracts before that date.
What is IMAP and how does it affect the tariffs airlines pay?
IMAP (Maximum Annual Income per Passenger) is the central mechanism of DORA 2027-2031 for controlling Aena's income. It establishes a ceiling on income per passenger that Aena can obtain, and within that limit the specific tariffs paid by airlines and operators are set. It is the instrument that directly regulates airport cost per operation.
What bonuses does DORA 2027-2031 provide for airlines?
DORA 2027-2031 provides for two types of bonuses: bonuses for general interest, applicable to routes with strategic connectivity value, and commercial incentives. Airlines operating routes that meet general interest criteria can access reduced tariffs compared to standard ones.
What bodies supervise DORA 2027-2031 compliance?
DORA 2027-2031 is subject to periodic supervision by three bodies: the CNMC (National Commission of Markets and Competition), AESA (State Agency for Air Safety) and the General Directorate of Economic Policy. All three bodies also reported on the document before its approval by the Council of Ministers.
Is DORA 2027-2031 the first of its kind or does it replace a previous one?
DORA 2027-2031 is the third airport regulation document approved under Law 18/2014. It replaces the previous five-year regulatory framework and establishes the new tariff, investment and quality conditions for the 2027-2031 period.
Official source
Consult complete regulation in official source
Notice: This article is for informational purposes only and does not constitute legal advice. For specific decisions, consult a qualified professional. Source: https://www.boe.es/diario_boe/txt.php?id=BOE-A-2026-19507
