[invisible]

Weird -- why not make the fine $604 million (or whatever they truly should owe in refunds) and allow all but, say, 4 million to be reduced?

[988747]

That would create a weird dynamic: is it more beneficial to the airline to issue refunds to passengers, or is it better to give money directly to the DOT, which, as most government institutions, is probably underfunded and will appreciate the "donation"? Cost for the airline is the same if both cases, but indirectly funding DOT might win you some friends there :)