Garuda Indonesia’s new baggage policy is drawing criticism from consumer advocates, who argue the change could end up costing passengers more, despite staying within existing weight limits.
The new policy applies to domestic flights booked from September 1, 2026 onward. Under the change, Garuda Indonesia has shifted its baggage calculation method from a weight-based concept to a piece-based concept, meaning the number of bags checked now factors directly into cost, not just total weight.
What’s Changing, and Why It Matters
The shift has drawn scrutiny because, previously, economy class passengers received a free baggage allowance of up to 20 kilograms with no restriction on the number of bags. Under the new system, the number of suitcases or pieces a passenger brings now factors into the cost calculation. As a result, passengers could end up facing additional charges even if their total baggage weight remains within the 20-kilogram limit.
Consumer Group Says the Policy Conflicts With Existing Regulations
Alvin Lie, Chairman of the Indonesian Air Transport Consumers Association (APJAPI), argues that this policy doesn’t align with regulations currently in effect. He points to Ministry of Transportation Regulation No. PM 30 of 2021 on Minimum Service Standards for Air Transport Passengers, and Regulation No. PM 35 of 2021 on Air Transport Operations.
“We believe this change has the potential to disadvantage passengers, since their total baggage weight remains under the maximum limit set by existing regulations. Yet under the new rule, passengers can still be charged extra simply because the number of bags exceeds what’s allowed,” Alvin said in Jakarta on Wednesday, September 9, 2026.
According to Alvin, as a full-service airline, Garuda Indonesia is obligated to provide a free 20-kilogram baggage allowance for domestic economy class passengers based on weight. He’s calling on Garuda to continue honoring that standard until any formal regulatory change occurs.
A Real-World Example of the Problem
The objection centers on how the piece-based system can trigger extra charges even when total baggage weight stays within limits.
Alvin gave an example: a passenger carrying two bags weighing 11 kilograms and 9 kilograms respectively. The combined weight still totals exactly 20 kilograms, but under the new system, the second bag could be classified as additional baggage, potentially triggering an extra fee despite the total weight being fully compliant.
“This clearly conflicts with Law No. 8 of 1999 on Consumer Protection, specifically Article 4 Letter C and Article 7 Letter B, which guarantee consumers’ right to receive, and require businesses to provide, complete, transparent, and honest information about the services they offer,” he said.
“This is what we consider incomplete and non-transparent. This lack of clear information makes it difficult for consumers to make a well-informed decision when choosing an airline, without properly accounting for the additional costs they might end up bearing,” Alvin added.
Timing of the Policy Rollout Also Under Fire
Beyond the policy itself, APJAPI has also raised concerns about how the change was communicated. Garuda Indonesia reportedly began socializing the new rule on July 10, 2026, while the policy itself took effect September 1, 2026.
Alvin argues that this notice period was too short compared to the required minimum of two months.
“We also noted that Garuda began its outreach on July 10, with implementation following on September 1, that’s less than two months. So it doesn’t meet the minimum two-month notice requirement before implementation,” he said.
Formal Complaint Filed With the Government
APJAPI has formally submitted its objections regarding the baggage policy to the Director General of Air Transportation at the Ministry of Transportation on September 2, 2026. The organization is asking the government to follow up on the issue and provide guidance to Garuda Indonesia to ensure its baggage service policy aligns with existing regulations.
APJAPI Isn’t Against the Concept Itself, Just the Timing
Alvin clarified that APJAPI isn’t opposed to the piece-based concept in principle, noting that it’s already used by several airlines internationally.
“We’re not rejecting the weight concept, but our current regulations are still weight-based, so the existing rules need to be followed. If the regulation eventually changes to allow either weight or piece-based systems, we won’t have any objection,” he said.
What This Means for Garuda Passengers
If you’re flying domestic with Garuda Indonesia after September 1, 2026, it’s worth double-checking how your baggage will be counted before packing, splitting your belongings across multiple bags could now trigger extra fees, even if your total weight stays under 20 kilograms. Until this dispute is resolved, consolidating into fewer, heavier bags rather than multiple lighter ones may help you avoid unexpected charges at check-in.
