UKBA To Charge For EEA Applications

I read the UK charges the same fee for the registration certificate which in my opinion is incorrect.
The only requirements are stated in art. 8 par. 3 of Directive 2004/38/EC.
No fee is mentioned there. So the certificate has to be issued free as do other member states.
Anyone ever challenged this?

Besides such certificates do not seem to be issued as required in art. 8 par. 2:
A registration certificate shall be issued immediately, stating the name and address of the person registering and the date of the registration.

The fees are mentioned in Article 25, Paragraph 2 of the same Directive.

2. All documents mentioned in paragraph 1 shall be issued free of charge or for a charge not exceeding that imposed on nationals for the issuing of similar documents.