The limping implementation of low emission zones (ZBE), urban areas that ban the entry of the most polluting vehicles (those that do not have the DGT label), has a new chapter from 1 January 2026. If the 2021 climate change law forced the 153 municipalities with more than 50,000 inhabitants to implement veto areas for the most polluting cars in 2023, but more than half do not it is compliant and some of those who have it are not well; On January 1, 2026, it is expected to be implemented by more than 20,000 citizens exceeding official pollution limits. Meanwhile, beyond the capitals, Barcelona and Madrid, many of the city councils of these cities that have implemented them or are in the process of doing so in a permissive way or without sanctions, and if they are tightened, it will be from 2028, when the current mandate of the mayors expires.
The fiasco is so big that the Environment Unit of the State Attorney General’s Office is requesting documentation from the competent administrations to verify the level of compliance with the ZBE. The idea is to study whether measures are taken against municipalities that do not comply. Furthermore, the Ministry of Ecological Transition and the Interior is finalizing a decree to force municipalities to fine. Despite these violations, associations opposing the veto have called for protests this weekend. In Barcelona they are led by ASOPARC, the platform for people affected by circulation restrictions. And in Madrid AVARM, the Association of Vehicles Affected by Mobility Restrictions. The entities assure that there are no political parties among their organizers, but Vox, which rejects the ZBE, supports some of the protests online.
In Barcelona, Mònica In Madrid, the vice-president of the AVARM, Miriam Cubero, says: “We demonstrate in favor of freedom of movement”. According to him, ZBEs are discriminatory towards citizens with lower purchasing power. “How will they buy a vehicle that they need to get to work, with those features and at those prices?” he asks. He is in favor of the European Union initiative establishing limit values for air pollutants, but believes that Spain should opt for alternative measures. “In other places the focus has been on large companies and vehicle fleets, not on individuals,” he protests despite the existence of ZBEs across Europe.
“I demand that the sentences against ZBEs in Spain be carried out,” says Cubero. In Barcelona there are firm rulings that annulled the original 2019 ordinance, but the City Council approved a new version in 2023, so the ZBE is still active. In Madrid, the sentences questioning the ZBE are not yet final, as they have been appealed, and the rules and fines continue to apply. In both cases, the adjustments to the ordinances allow the restrictions to be maintained.
Below are the main cities with ZBE in Catalonia and Madrid.
Barcelona. It was pioneered in 2020 and (after some moratoriums due to the pandemic) is fully operational and operates in the largest area of Spanish cities, almost 100 square kilometers. In the area around the Catalan capital, in recent months or in 2026, ZBEs will have been activated in municipalities with more than 20,000 inhabitants such as Gavà, Barberà del Vallès, Ripollet or Montcada i Reixac. The situation in the other three provincial capitals is many years behind.
Lleida. It was implemented on July 1 and limits entry to vehicles from outside the municipality only. Those who pay road tax in the city can access the ZBE without restrictions, regardless of the sticker they wear. Outside cars can be fined up to 200 euros if they do not have a number plate, but can also apply for exemptions in a wide range of situations and for between 12 and 52 days a year. Authorizations are also provided for commercial and industrial vehicles, users of private garages, historic vehicles, removals, events or hotels.
Girona. It has been operational since September 15th. It will be revised before 2028 and is also permissive with vehicles registered in the city: if they have a circulation permit before 2024, they have no restrictions, regardless of emissions. Unmarked extra-urban vehicles may continue to enter without restriction for up to 24 days a year. Furthermore, temporary authorizations are provided for service vehicles. Fines are triggered when unauthorized vehicles enter 24 times in a calendar year, they are 200 euros, but can be reduced by half if they are paid within 20 days.
Tarragona. This ZBE is scheduled to come into force on December 31st. City residents will have temporary permission to enter without a permit and those living in the ZBE zone will be allowed to enter for two years. The review of permits is scheduled for January 2028 and is expected to take place when B-labeled vehicles will no longer have free access. Anyone without a badge can request authorization if the usual cases occur. The most polluting and unauthorized vehicles that enter the ZBE and belong to unregistered neighbors will be fined 200 euros.
Madrid. On the mandate of Mayor Manuela Carmena, Madrid Central was inaugurated in 2018, the first limited access zone in the city center. The most polluting vehicles were only allowed to circulate with exceptions. With the arrival of José Luis Martínez-Almeida, the Madrid 360 plan was presented in 2019, which makes restrictions more flexible, while maintaining the expectation of more severe bans in the future. This transition laid the foundations for the municipal ZBE, which came into force on 1 January 2022. The fines, initially light (90 euros), became serious (200 euros) after the reform of the Highway Code.
The traffic restriction for unmarked vehicles (“label A”) has been in force throughout the municipality since 1 January 2025, but the City Council has established a notice period during this year. The fines of 200 euros will be applied from 1 January. In the Special Protection Zones – Centro and Plaza Elíptica – the fines continue. The Climate Change Law requires 24 municipalities in the region to have a restricted zone for polluting cars, but most have not yet activated it.
Rivas Vaciamadrid It was one of the first, since it developed its ZBE in 2021 and started fining in April 2024, being also one of the most restrictive in the community, with several closed areas, including school environments where not even electric cars can pass during school hours.
Boadilla del Monte. In March it began sanctioning vehicles accessing the ZBE, but the City Council in its report X boasts that it is “the most light of the country” to avoid inconvenience to neighbors.
Arganda del Rey. Its mayor, Alberto Escribano, said in an interview with EL PAÍS in July 2024: “We will not implement a low emissions zone”, more than a year later the situation remains the same. Municipal councils like that of Alcala de Henares, who activated it in January, AND Las Rosasin late 2024, they followed a different strategy to launch it: activate it only when contamination is reported.
