Services Directive

Services Directive: Assessment of Implementation
Measures in Member States
National Report for Spain
Part One: Analysis of the
implementation of the
freedom
to
provide
services clause
This National Report has been prepared by Ana Barreira for Milieu Ltd. under Contract No
MARKT/2011/035/E1/ST/OP with the European Commission, DG Internal Market and
Services.
The views expressed herein are those of the consultants alone and do not necessarily represent
the official views of the European Commission.
Milieu Ltd. (Belgium), 15 rue Blanche, B-1050, Brussels, tel: 32 2 514 3601; Fax 32 2 514
3603; e-mail: emma.psaila@milieu.be; web address: www.milieu.be
National Report Part One
Analysis of the implementation of the freedom to provide services clause laid
down in Article 16 of the Services Directive
TABLE OF CONTENTS
ABBREVIATIONS
1. Legal analysis .................................................................................................................................... 1
1.1 Overview of national measures implementing Article 16 of the Services Directive ................................ 1
1.2 Summary of correctness and completeness of implementing measures (Articles 16(1) and (2)).....…...11
1.3 The right of Member States to impose certain requirements (Article 16(3)) .............................................. 12
1.4 Hierarchical status of the implementing measures...................................................................................... 14
2. Practical implementation ................................................................................................................ 18
2.1 The application of the transposing measures by national authorities and courts......................................... 18
2.2 Gaps and deficiencies in implementation.................................................................................................... 20
3. Conclusions ..................................................................................................................................... 21
ANNEX I
ANNEX II
ANNEX III
Table of concordance
List of national legislation
Sources of information
ABBREVIATIONS
BOA
Official Journal of Aragón
BOC
Official Journal of Canary Islands
DOCM
Official Journal of Castilla-La Mancha
BOE
Spanish Official Journal
BOPV
Official Journal of Basque Country
BOTHA
Official Journal of the Historical Territory of Alava
CC.AA
Autonomous Communities
CE
Spanish Constitution
DOCV
Official Journal of the Comunidad de Valencia
RD
Royal Decree
TC
Spanish Constitutional Court
TFEU
Treaty on the Functioning of the European Union
1. Legal analysis
1.1 Overview of national measures implementing Article 16 of the Services Directive
The main act transposing the Services Directive into Spanish Law is the horizontal Ley 17/2009, de 23
de noviembre, sobre el libre acceso a las actividades de servicios y su ejercicio (BOE num. 283, de
24.11.2009) - Law 17/2009, of 23 November, on Free Access to Service Activities and its Exercise.
This Law entered into force on 25 December 2009 with the exception of some of its provisions which
entered into force two days after as provided in its Sixth Final Provision.1
Chapter III of Law 17/2009 contains the provisions on freedom to provide services applicable to
providers from other Member States. Article 12 of this Law specifically transposes Article 16 of the
Services Directive in Spain. In addition, sector-specific legislation was adopted at the State (national),
regional (Autonomous Communities) and municipal levels to implement the requirements of the
Services Directive through omnibus laws amending existing sector-specific legislation or through
direct amendments to laws and decrees.
Before providing the overview of the measures implementing Article 16 of the Services Directive in
Spain it is necessary to understand the distribution of competences among the different levels of
Administrations since it directly affects the way in which this Directive is implemented in Spain.
Distribution of competences and competent bodies in Spain concerning the Services Directive
The 1978 Spanish Constitution (CE) organises the Spanish State territory into municipalities,
provinces and autonomous communities and recognises their autonomy to manage their own interests.2
According to Article 2 of the CE, Spain is a nation where nationalities and regions have the right to be
autonomous. The Spanish State is divided into 17 Autonomous Communities3 (Comunidades
Autónomas, hereinafter CC.AA) and two Autonomous Cities (Ceuta y Melilla), each with their own
institutional regime holding executive and legislative powers. In addition, there are 8,115 local
authorities, 38 provincial assemblies (Diputaciones Provinciales), 7 Canary Islands assemblies
(Cabildos Insulares), 4 Balearic Island assemblies (Consells Insulars) and 3 Basque Country
assemblies (Diputaciones Forales) with power to issue regulations.
Based on the principles of autonomy and territorial decentralization, the State (or General
Administration of the State) and the CC.AA hold competences at different levels for different issues.
The distribution of competences between the State and the CC.AA is established by the Constitution.
Article 148 CE establishes the matters for which competence can be attributed to Autonomous
Communities through their Statutes (regional constitutions) and Article 149 establishes those under the
competence of the State. This distribution of powers can be compared to the distribution of powers
between the EU and its Member States.
Overall, certain areas are the exclusive competence of the State (e.g. external relations - as is the case
of the monetary policy or the conservation of biological resources under the Common Fisheries
Policies - Article 3 of the Treaty on the Functioning of the European Union (TFEU)) and other areas
are of the exclusive competence of the CC.AA (e.g. natural protected areas and waters running within
1
The Sixth Final Provision of Law 17/2009 provides that this Law was to enter into force 30 days after from the
day of its publication at the Spanish Official Journal. The date of publication was 24 November 2009. Articles
17.2, 17.3, 17.4, 18 and 19 entered into force on 27 December 2009 according to what is provided by that Sixth
Final Provision.
2
Article 137 CE.
3
País Vasco; Cataluña; Galicia; Andalucía; Principado de Asturias; Cantabria; La Rioja; Murcia; Comunidad
Valenciana; Aragón; Castilla La Mancha; Canarias; Navarra; Extremadura; Comunidad Autónoma de las Islas
Baleares; Comunidad de Madrid; Castilla y León.
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the territory of one single CC.AA). Some areas are subject to shared competence between the State
and the CC.AA (this is the case of the EU Environmental Policy - Article 4 of the TFEU). In such
cases, the State is usually responsible for establishing basic legislation that can be developed by the
CC.AA through further legislation, provided the minimum requirements laid down by the basic
legislation are respected. The legislation developed by a CC.AA then becomes preferential. In other
cases, the CC.AA only have executive powers. Each of the CC.AA has listed in its “Statute of
Autonomy” the responsibilities it has assumed. The Constitution contains a residual clause according
to which any competence on matters not claimed by “Statutes of Autonomy” will fall to the State.
In the case of services, the CE does not contain a single article providing for the distribution of
competences between the State and CC.AA. In addition, it must be recalled that municipal and
provincial bodies operate multiple procedures and rules governing access to, and the exercise of,
service activities. Services fall under the domain of many areas and therefore the determination of
responsibilities or competences will depend on the service activity in question.
According to its first final provision, Law 17/2009 was approved based on Article 149.1.1, 13, and 18
of the CE. This Article provides for the exclusive competence of the Spanish State on:
• 149.1.1: regulation of the basic conditions guaranteeing the equality of all Spaniards in their
exercise of their constitutional rights and duties.
• 149.1.13: the establishment of the basis and the coordination for economic planning.
According to the Spanish constitutional case-law this exclusive competence is based on the
principle of economic unity which is a projection of the unity of the State (Article 2 CE). As a
result, the State is responsible for providing guidelines for economic activity. Nevertheless, this
competence cannot be extended further than what is needed for the implementation of that
principle. This implies that the use of that competence cannot infringe upon the competences that
the CC.AA can exercise in the field of economic planning.4 Those CC.AA having competences
for the development and implementation of the State plans can approve planning and
complementary measures which are coordinated with those from the State. These CC.AA can
also approve within the general guidelines “all those measures that do not contradict the
guidelines but which are complementary, concurrent and neutral”.5 As a result, the CC.AA have
the competence to develop and implement the basis of economic planning established by the
State.
• 149.1.18: the basis of the legal regime of public administrations and of the common
administrative procedure. The State power on common administrative procedures has been
interpreted by the Spanish Constitutional Court (Tribunal Constitucional, hereinafter TC) from a
general perspective making a distinction between common administrative procedures and
rationae materiae procedures. According to this interpretation the State has the power to fix
principles and rules of common administrative procedures found in general laws concerning this
matter. However, this power does not extend to special administrative procedures where it is
necessary to consider the distribution of competences in each substance issue. Therefore, when
“the legislative competence on a matter has been attributed to the Autonomous Community, to
exercise that competence it refers to the Autonomous Community passing the rules on the
administrative procedure which must always respect the procedural rules established by the State
within its competence scope”.6
Other relevant examples in the field of services where the State has exclusive competence are:
• Article 149.1.11 CE: the approval of basic legislation on insurance. According to one
judgment of TC, the provision of uniform rules from which the CC.AA can implement their
competences falls to the State: legislative, regulatory and executive.
4
TC rulings: 103/1989 of 8 June and 220/1992 of 11December.
TC rulings: 14/89 of 26 January, 29/1986 of 20 February and 177/1990 of 26 January.
6
TC rulings: 227/1988 of 29 September and 175/2003 of 30 September.
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• Article 149.1.25 CE: the approval of basic legislation on mining and energy. Meanwhile, the
CC.AA have the competence to develop and implement the basis of mining and energy legislation
established by the State.
On the other hand, according to Article 148 CE, nowadays CC.AA hold exclusive competences within
their territories in fields such as: trade fairs (Article 148.1.12), handicraft (Article 148.1.14), tourism
(Article 148.1.18), social assistance (Article 148.1.20) and health (Article 148.1.21).
Based on the provision contained in Article 149.3 CE, CC.AA of Andalucía, Canarias, Cataluña,
Galicia, Navarra, País Vasco and Comunidad Valenciana assumed full competences in the field of
education through their Statutes. There are also delegated competences when the State transfers
competences which originally are attributed to it to the CC.AA (Article 150.2 CE) through “Organic
laws of transfer or delegation”. This happened in the field of education for the rest of the CC.AA
which did not assume these competences through their Statutes7.
Law 7/1985, of 2 April, Regulating the Basis for the Local Regime8 provides the fields in which
municipalities can hold competences under the condition that they respect the State and CC.AA
legislation:
• Security in public locations.
• Planning of traffic and persons in urban areas.
• Civil protection and fire prevention and extinguishing.
• Urban planning, management, execution and discipline; promotion and management of
households; parks and gardens, asphalt of public urban areas and rural roads and paths
conservation.
• Historical and artistic heritage.
• Environmental protection.
• Supplies, slaughterhouses, fairs, markets and the defence of consumers and users.
• Protection of public health.
• Participation in the management of primary health services.
• Cemeteries and funerary services
• Provision of social services and promotion of social reinsertion.
• Water supply and public lighting; streets and roads cleaning services; waste collection and
treatment services; sewer system and waste water treatment services.
• Public transportation.
• Cultural and sports activities and facilities; entertainment and tourism.
• Participation in education programmes and cooperation with education administration in the
establishment, building and maintenance of public education centres; intervention in the
management bodies and participation in the monitoring of compliance with compulsory
education.
According to Article 84 of Law 7/1985, the local entities can intervene in the citizen’s activities
through different mechanisms. Among them are:
• The issuance of licences before initiating an activity or other acts of preventive control.
Nevertheless, the access and exercise to activities included in Law 17/2009 shall be subject to
the provisions of that Law.9
7
This transfer was operated through Ley Orgánica 9/1992, de 23 de diciembre, sobre transferencia de
competencias a las Comunidades Autónomas.
8
Ley 7/1985, de 2 de abril, Reguladora de las Bases del Régimen Local.
http://noticias.juridicas.com/base_datos/Admin/l7-1985.t6.html
9
Nevertheless, Article 84 bis of Law 7/1985 provides that as a general principle “the exercise of activities shall
not be subject to a licence or any other preventive control mechanism. Nonetheless, those activities that affect
the protection of the environment or of the historical heritage, public order or public health or which involve the
private use or occupation of goods under public domain may be subject to a licence or preventive control under
the condition that they are justified and are proportionate. Article 84 bis was added to this Law by Law 2/2011,
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•
•
Communication or responsible declaration in accordance with the provision in Article 71 bis
of Law 30/1992, of 26 November, on the Legal Regime of Public Administrations and the
Common Administrative Procedure.10
Ex-post control after initiating the activity to verify compliance.
This intervention by local entities is subject to the equal treatment, necessity and proportionality
principles.
Article 21 Decree of 17 June of 1955 approving the Regulation on the Services or Local
Corporations11 provides that urban planning and constructions will be subject to licences. Article 22
provides that the opening of industrial and commercial establishments will be subject to local
proceedings in the terms provided in the basic legislation for the local regime and in Law 19/2009.
As a consequence of the distribution of competences in Spain, the competent bodies for implementing
the Services Directive will be those exercising the competence in the specific field. Nevertheless, most
of the competences for implementation lie with the CC.AA and municipality levels.
From this analysis the complexity surrounding the implementation of the Services Directive in Spain
can be inferred.
Most relevant legislation in the field of services
Transposition at the State level took place through Law 17/2009, of 23 November, on Free Access to
Service Activities and its Exercise. This Law is also known as Umbrella Law (Ley Paraguas) since it
is a horizontal or “umbrella” Law which transposes the general principles of the Directive into Spanish
law. In addition, Ley 25/2009, de 22 de diciembre, de modificación de diversas leyes para su
adaptación a la Ley sobre el libre acceso a las actividades de servicios y su ejercicio (BOE núm. 308,
de 23.12.2009)12- Law 25/2009, of 22 December, amending diverse laws to adapt them to Law
17/2009- also known as the Omnibus Law, adapts the State laws, most of them sectoral, to Law
17/2009 and it also extends the principles of good regulation to sectors not affected by the Services
Directive.13 Two other laws were passed at the Central Government level:
• Ley 1/2010, Ley 1/2010, de 1 de marzo, de reforma de la Ley 7/1996, de 15 de enero, de
Ordenación del Comercio Minorista (BOE num. 53 de 02.03.2010) - Law 1/2010, of 1 March,
amending Law 7/1996, January 15, on Retail Trade.
• Ley 6/2010, de 24 de marzo, de modificación del texto refundido de la Ley de Evaluación de
Impacto Ambiental de proyectos (BOE núm. 73, de 25.03.2010) - Law 6/2010, of 24 March,
Ammending the Consolidated Law on Environmental Impact Assessment.14
In addition to the amendments to national laws, adaptations were necessary at the level of State
regulations.15 118 Royal Decrees (RD) and 21 Ministerial Orders were amended through 51 Royal
of 4 March on Sustainable Economy (Ley 2/2011, de 4 de marzo, de Economía Sostenible:
http://noticias.juridicas.com/base_datos/Admin/l2-2011.t2.html#c1s2)
10
This Article provides what is understood by a communication and by a responsible declaration. Ley 30/1992,
de 26 de noviembre, de Régimen Jurídico de las Administraciones Públicas y del Procedimiento Administrativo
Común http://noticias.juridicas.com/base_datos/Admin/l30-1992.t6.html#a71b
11
Decreto de 17 de junio de 1955, por el que se aprueba el Reglamento de Servicios de las Corporaciones
Locales. http://noticias.juridicas.com/base_datos/Admin/d170655-je.t1.html
12
Some provisions of this Law have been challenged by the Generalitat de Cataluña and the Government of the
Canary Islands at the TC through the Constitutional review procedure.
13
An example is the field of energy. This Law has modified 48 Laws on diverse issues. The affected areas
(number of laws amended): public authorities (3), consumer affairs (1), professional services (3), employment
(4), industrial services and construction (6), energy (3), transport and communications (8), environment and
agriculture (12), healthcare (3), intellectual property (1), other (4).
14
This Law is not in the List of the National Provisions Communicated by Spain.
15
The most heavily affected areas are: industry, energy, health and environment. In this study only laws are
mentioned. Regulation and other legal instruments are not covered.
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Decrees and one Ministerial Order. 24 RD were fully repealed.16 After the Report on the
Transposition of the Services Directive was published nine new RDs were adopted amending or
derogating existing RDs.17
At the Autonomous Communities level, the adaptation took place through amendments to sectoral
laws introduced by Omnibus Laws and/or sector-specific laws. Below is a list of the most relevant
laws adopted by CC.AA to implement the Services Directive:
Andalucía
• Ley 3/2010, de 21 de mayo, por la que se modifican diversas leyes para la transposición en
Andalucía de la Directiva 2006/123/CE (BOE num.151, de 22.06.2010) - Law 3/2010, of 21 May,
amending diverse laws to transpose Directive 2006/123/EC in Andalucía.18
Regulatory adaptation in Andalucía involves amendments to 92 decrees and 27 orders through a range
of amending decrees and orders.19
Aragón
• Decreto Ley 1/2008, de 30 de octubre, del Gobierno de Aragón, de medidas administrativas
urgentes para facilitar la actividad económica en (BOA núm. 181, de 03.11.2008) - Law Decree
1/2008, of 30 October, on urgent administrative measures to facilitate economic activity in
Aragón.
• Decreto-ley 1/2010, de 27 de abril, del Gobierno de Aragón, de modificación de diversas
leyes de la Comunidad Autónoma de Aragón para la transposición de la Directiva 2006/123/CE
(BOA num.86, de 05.05.2010) - Law-Decree 1/2010, of 27 April, of the Government of Aragon
amending diverse laws of the Autonomous Community to tranpose Directive 2006/123/EC.
Regulatory adaptation in this Autonomous Community involves amendments to 43 decrees:20 1 in the
area of public authorities, 2 in the area of agricultural services, 1 in the area of social affairs, 5 in the
area of retail trade, 1 in the area of arts and culture, 3 in the area of industry, 2 in the area of interior
affairs, 5 in the area of environment, 9 in the area of health, 13 in the area of tourism, and 1 in the area
of housing and construction.
Asturias
• Ley 9/2010, de 17 de diciembre, de comercio interior (BOE núm.36, de 11.02.2011) - Law
9/2010, of 17 December, on Commerce.
• Ley 10/2010, de 17 de diciembre, de tercera modificación de la Ley 7/2001, de 22 de junio, de
turismo (BOE núm. 36, de 11.02.2011) - Law 10/2010, of 17 December, amending for a third time
Law 7/2011, of 22 June, on Tourism.
Regulatory adaptation in Asturias involves amendments to 23 decrees and 3 decisions:21 4 orders and 3
decisions in the area of agricultural services, 1 in the area of social affairs, 3 in the area of retail trade,
3 in the area of health, 10 in the area of tourism and 2 in the area of housing and construction.
16
Source: Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
http://ec.europa.eu/internal_market/services/docs/services-dir/implementation/20100429_anexo2_es.pdf
18
Initially it was adopted as Decree-Law 3/2009 which is the act listed in the List of the National Provisions
Communicated by Spain.
19
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
20
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
21
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
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Canarias
• Ley 12/2009, de 16 de diciembre, reguladora de la Licencia Comercial (BOE núm.26, de
30.01.2010) - Law 12/2009, of 16 December, Regulating Commercial Licences22.
• Ley 14/2009, de 30 de diciembre, por la que se modifica la Ley 7/1995, de 6 de abril, de
ordenación del turismo de Canarias(BOE núm.64 de 15/03/2010) - Law 14/2009, of 30
December, amending Law 7/1995, of 6 April, on Tourism of Canarias.
• Ley 8/2010, de 15 de julio, de los Juegos y Apuestas (BOE núm.199, de 17.08.2010) - Law
8/2010, of 15 July, on Games and Gambling.23
• Ley 7/2011, de 5 de abril, de actividades clasificadas y espectáculos públicos y otras medidas
administrativas complementarias (BOC núm. 77, de 15.04.2011) - Law 7/2011, of 5 April, on
classified activities, public shows and other supplementary measures.24
Regulatory adaptation in this Autonomous Community involves amendments and repeals affecting 16
decrees and 6 orders, and the enactment of 4 wholly new decrees:25 1 decree in the area of retail trade,
2 decrees and 2 orders in the area of agricultural services, 1 decree in the area of social affairs, 3
decrees in the area of economy and finance, 1 decree in the area of interior affairs; repeal of 3 decrees
and 2 orders and amendments to 4 decrees in the area of environment; 1 decree and 1 order in the area
of health, and repeal of 1 order and introduction of 5 new decrees in the area of tourism.
Cantabria26
• Ley 1/2010, de 27 de abril, por la que se modifica la Ley 6/2002, de 10 de diciembre, de
Régimen Jurídico del Gobierno y de la Administración de la Comunidad Autónoma de Cantabria
y la Ley 11/2006, de 17 de julio, de Organización y Funcionamiento del Servicio Jurídico (BOE
núm.130, de 28.05.2010) - Law 1/2010, of 27 April, amending Law 6/2002, of 10 December, on
the Legal Regime of the Government and the Administration of the Autonomous Community of
Cantabria and Law 11/2006, of 17 July, on the Organization and Functioning of the Legal
Service.
• Ley 2/2010, de 4 de mayo, para la modificación de la Ley 1/2002, de 26 de febrero, del
Comercio de Cantabria y de otras normas complementarias para su adaptación a la Directiva
2006/123/CE (BOE núm.131, de 29.05.2010) - Law 2/2010, of 4 May, amending Law 1/2002, of
26 February, on Commerce of Cantabria and other supplementing norms for their adaptation to
Directive 2006/123/EC.
• Ley 3/2010, de 20 de mayo, por la que se modifica la Ley 1/2001, de 16 de marzo, de Colegios
Profesionales de Cantabria, para su adaptación a la Ley sobre el libre acceso a las actividades
de servicios y su ejercicio (BOE núm.145, de 15.06.2010) - Law 3/2010, of 20 May, amending
Law 1/2001, of 16 March, on Professional Associations of Cantabria to adapt if to Law 17/2009.
• Ley 11/2010, de 23 de diciembre, de medidas fiscales y de contenido financiero (BOE núm.
25, de 29.01.2011) - Law 11/2010, of 23 December, on fiscal and financial measures.
Regulatory adaptation in Cantabria involves amendments to 14 decrees and 4 orders:27 1 in the area of
retail trade; 1 decree and one order in the area of agricultural services, 2 in the area of housing and
construction, 5 in the area of tourism, 1 in the area of environment, 4 decrees and 4 orders in the area
of health.
22
This Law is not included in the List of the National Provisions Communicated by Spain.
This Law is not included in the List of the National Provisions Communicated by Spain.
24
This Law is not included in the List of the National Provisions Communicated by Spain.
25
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
26
These Laws are not included in the List of the National Provisions Communicated by Spain.
27
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
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Castilla-La Mancha
• Ley 7/2009, de 17 de diciembre, de modificación de diversas leyes para su adaptación a la
Directiva 2006/123/CE (BOE num.256, de 22.10.2010 )- Law 7/2009, of 17 December,
Amending diverse laws to adapt them to Directive 2006/123/EC.
• Ley 2/2010, de 13 de mayo, de Comercio de Castilla-La Mancha (BOE núm. 178, de
23.07.2010) - Law 2/2010, of 13 May, on Commerce of Castilla-La Mancha.
• Ley 7/2011, de 21 de marzo, de Espectáculos Públicos, Actividades Recreativas y
Establecimientos Públicos de Castilla-La Mancha (DOCM. núm 63, de 31.03.2011) - Law
7/2011, of 21 March, on Public Shows, Leisure Activities and Public Establishments of CastillaLa Mancha.28
Regulatory adaptation involves amendments to 19 decrees and 3 orders:29 7 decrees and 1 order in the
area of health, 1 decree in the area of social affairs, 1 decree in the area of industry, 1 decree in the
area of environment, 7 decrees in the area of tourism, and 2 decrees in the area of economy and
finance and 1 order in the area of housing and construction, and 1 order in the area of agriculture.
Castilla y León30
• Ley 14/2010, de 9 de diciembre, de turismo de Castilla y León (BOE núm. 317 de 30.12.2010)
- Law 14/2010, of 9 December, on Tourism of Castilla y León.
• Ley 16/2010, de 20 de diciembre, de Servicios Sociales de Castilla y León (BOCyL núm. 244,
de 21.12.2010) - Law 16/2010, of 20 December, on Social Services of Castilla y León.
Regulatory adaptation involves amendments to 39 decrees and 23 orders.31
Cataluña32
• Ley 11/2009, de 6 de julio, de regulación administrativa de los espectáculos públicos y las
actividades recreativas (BOE núm. 183, de 3.08.2009) - Law 11/2009, of 6 July, on Public
Entertainment.
• Decreto Legislativo 3/2010, de 5 de octubre, para la adecuación de normas con rango de ley
a la Directiva 2006/123/CE, (BOE num. 257 de 23/10/2010) - Legislative Decree, of 5 October, to
adapt laws to Directive 2006/123/EC.
• Ley 3/2010, de 18 de febrero, de prevención y seguridad en materia de incendios en
establecimientos, actividades, infraestructuras y edificios (BOE núm. 89, 13.04.2010) - Law
3/2010, of 18 February, on prevention and safety in the field of fires in establishments, activities,
infrastructures and buildings.
• Ley 26/2010, de 3 de agosto, de régimen jurídico y de procedimiento de las administraciones
públicas de Cataluña (BOE num.203, de 21.08.2010) - Law 26/2010, of 3 August, on the legal
regime and on the procedure of the Catalonian public administrations..
Regulatory adaptation involves amendments to 66 decrees, 28 orders and 3 decisions.33
28
This Law is not in the List of the National Provisions Communicated by Spain.
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
30
These Laws are not included in the List of the National Provisions Communicated by Spain.
31
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
32
These Laws are not included in the List of the National Provisions Communicated by Spain. Cataluña is
currently preparing its omnibus law.
33
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
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Comunidad Valenciana
• Ley 12/2009, de 23 de diciembre, de medidas fiscales, de gestión administrativa y financiera,
y de organización de la Generalitat (BOE núm. 24, de 28.01.2010) - Law 12/2009, of 23
December, on measures of a fiscal, management, administrative and financial character and of
organization of the Generalitat (Government of Autonomous Community of Valencia).
• Ley 14/2010, de 3 de diciembre, de la Generalitat, de Espectáculos Públicos, Actividades
Recreativas y Establecimientos Públicos (DOCV núm. 6414, de 10.12.2010) - Law 14/2010, of 3
December, of the Generalitat (Government of the Autonomous Community of Valencia) on
Public Shows, Leisure Activities and Public Establishments.34
• Ley 3/2011, de 23 de marzo, de comercio de la Comunitat Valenciana (BOE núm. 91 de
16/04/2011) - Law 3/2011, of 23 March, on Commerce of the Valencia Autonomous
Community.35
Regulatory adaptation involves amendments or repeals affecting 27 decrees and 23 orders:36 2 decrees
and 7 orders in the area of agricultural services, 2 decrees and 2 orders in the area of social affairs, 6
decrees and 6 orders in the area of retail trade, 1 decree in the area of sport, 2 decrees and 5 orders in
the area of industry, 1 decree in the area of environment, 2 orders in the area of energy, 8 decrees in
the area of tourism, 4 decrees and 1 order in the health area 1 decree in the area of housing and
construction.
Extremadura37
• Ley 7/2010, de 19 de julio, de modificación de la Ley 3/2002, de 9 de mayo, de Comercio de
la Comunidad Autónoma de Extremadura (BOE núm. 192, de 09.08.2010) - Law 7/2010, of 19
July, amending Law 3/2002, of 9 May, on Commerce of the Autonomous Community of
Extremadura.
• Ley 8/2010, de 19 de julio, de Actividades Feriales de la Comunidad Autónoma de
Extremadura (BOE núm.192, de 09.08.2010) -Law 8/2010, of 19 July, on Trade Fairs of the
Autonomous Community of Extremadura.
• Ley 12/2010, de 16 de noviembre, de impulso al nacimiento y consolidación de empresas en la
Comunidad Autónoma de Extremadura (BOE núm.300, de 10.12.2010) - Law 12/2010, of 16
November, to foster the creation and consolidation of businesses in the Autonomous Community
of Extremadura.
• Ley 2/2011, de 31 de enero, de desarrollo y modernización del turismo de Extremadura (BOE
núm. 42, de 18.02.2011) - Law 2/2011, of 31 January, on the development and modernization of
tourism in Extremadura.
• Ley 3/2011, de 17 de febrero, de modificación parcial de la Ley 2/1999, de 29 de marzo, de
Patrimonio Histórico y Cultural de Extremadura (BOE núm. 57, de 8.03.2011) - Law 3/2011, of
17 February, amending Law 2/1999, of 29 March, on the Historical and Cultural Heritage of
Extremadura.
• Ley 7/2011, de 23 de marzo, de Salud Pública de Extremadura (DOE núm. 59, de 25.03.2011)
- Law 7/2011, of 23 March, on Public Health.
Regulatory adaptation involves amendments to 37 decrees and 1 order:38 10 decrees in the area of
agricultural services, 2 decrees in the area of social affairs, 3 decrees in the area of retail trade, 2
decrees in the area of culture, 7 decrees in the area of education, 1 decree in the area of economy and
finance, 3 decrees and 1 order in the area of health, and 9 decrees in the area of tourism. In addition, a
wholly new decree was issued in the area of arts and culture.
34
This Law is not founded in the List of the National Provisions Communicated by Spain.
This Law is not founded in the List of the National Provisions Communicated by Spain.
36
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
37
These Laws are not included in the List of the National Provisions Communicated by Spain.
38
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
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35
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Galicia
• Ley autonómica 14/2008, de 3 de diciembre, de turismo de Galicia (BOE núm. 64,
16.03.2009) - Autonomic Law 14/2008, of 3 December, on Tourism of Galicia.
• Ley 1/2010, de 11 de febrero, de modificación de diversas leyes de Galicia para
adaptación a la Directiva 2006/123/CE (BOE núm. 86 de 09.04.2010) - Law 1/2010 of
February, amending diverse laws of Galicia to adapt them to Directive 2006/123/EC.39
• Ley 13/2010, de 17 de diciembre, del comercio interior de Galicia (BOE núm. 25
29.01.2011) - Law 13/2010, of 17 December, on Commerce of Galicia.
de
su
11
de
Regulatory adaptation involves amendments to approximately 32 decrees and 13 orders:40 16 decrees
and three orders in the area of tourism, 10 decrees and 1 order in the area of industry, 3 decrees and 4
orders in the area of health, 3 decrees and 3 orders in the area of education, 3 decrees in the area of
retail trade and 2 decrees in the area of consumer affairs, 4 decrees and 2 orders in the area of
agricultural services and 1 decree in the culture area. During the identification phase further
regulations (orders especially) were identified as being within the scope of the Services Directive and
must be adapted in due course.
Islas Baleares
• Ley 8/2009, de 16 de diciembre, de reforma de la Ley 11/2001, de 15 de junio, de ordenación
de la actividad comercial en las Illes Balears para la transposición de la Directiva 2006/123/CE
(BOE núm. 26, de 30.01.2010) - Law 8/2009, of 16 December, amending Law 11/2001, of 15
June, on Retail Trade.
• Ley 12/2010, de 12 de noviembre, de modificación de diversas leyes para la transposición en
las Illes Balears de la Directiva 2006/123/CE (BOE núm.308, de 20.12.2010) - Law 12/2010, of
12 November, amending diverse laws to transpose Directive 2006/123/EC in the Balearic Islands.
The regulatory instruments that are to be modified and/or repealed are:41 2 decrees in social services, 2
decrees and 2 orders in transport, 4 decrees and 1 order in health, 3 decrees in housing and public
works, 7 decrees and 3 orders in industry, 3 decrees and 4 orders in agriculture and fisheries, 2 decrees
in the interior affairs.
La Rioja
• Ley 6/2009, de 15 de diciembre, de Medidas Fiscales y Administrativas para el año 2010
(BOE núm. 14, de 16.01.2010) - Law 6/2009, of 15 December, on Fiscal and Administrative
Measures for 2010.42
• Ley 7/2009, de 22 de diciembre, de Servicios Sociales de La Rioja (BOE núm. 14, de
16.02.2010) - Law 7/2009, of 22 December, on Social Services of La Rioja.
Regulatory adaptation involves amendments to 14 decrees and 1 order:43 1 order and 1 decree in the
area of agricultural services, 1 in the area of social affairs, 1 in the area of retail trade, 3 in the area of
economy and finance, 6 (one being a repeal) in the area of health, 1 in the area of tourism and 1 in the
area of construction.
39
This act is not in the List of the National Provisions Communicated by Spain.
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
41
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
42
This Law is not included in the List of the National Provisions Communicated by Spain.
43
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
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40
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Madrid
• Ley 3/2008, de 29 de diciembre, de Medidas Fiscales y Administrativas (BOE núm. 66, de
18.03.2009) - Law 3/2008, of 29 December, on Fiscal and Administrative Measures.
• Ley 8/2009, de 21 de diciembre, de Medidas Liberalizadoras y de Apoyo a la Empresa
Madrileña (BOE núm. 63 de 13/03/2010) - Law 8/2009, of 21 December, on Measures
Liberalizing and Supporting the Businesses of Madrid.
Regulatory adaptation involves amendments to 50 provisions, many of which are collected in an
Omnibus Decree the preparation of which is now at an advanced stage (the changes relate to 3 decrees
in the area of social services, 1 decree relating to environment, 2 decrees relating to agriculture, 3
relating to retail trade, and 5 decrees in the area of tourism, 2 in health, 2 in youth affairs, 1 in
transport and 1 in recreational activities).44
Murcia
• Ley 12/2009, de 11 de diciembre, por la que se modifican diversas leyes para su adaptación a
la Directiva 2006/123/CE (BOE núm. 40, de 16.02.2011) - Law 12/2009, of 11 December,
amending diverse laws to adapt them to Directive 2006/123/EC.
Regulatory adaptation involves amendments to 19 decrees and 1 order: 1 decree in the area of
agricultural services, 1 decree in the area of social affairs, 2 decrees in the area of sport, 1 decree in the
area of environment, 4 decrees and 1 order in the area of health, 2 decrees in housing and construction
and 8 decrees in the area of tourism.
Navarra
• Ley Foral 15/2009, de 9 de diciembre, de medidas de simplificación administrativa para la
puesta en marcha de actividades empresariales o profesionales (BOE núm. 13, 15.01.2010) - Law
15/2009, of 9 December, on administrative simplification to commence businesses and
professional activities.
• Ley Foral 6/2010, de 6 de abril, de modificación de diversas leyes forales para su adaptación
a la Directiva 2006/123/CE (BOE num. 129 de 27.05.2010) - Law 6/2010, of 6 April, on the
amendment of diverse laws of Navarra to adapt them to Directive 2006/123/EC.
• Ley Foral 7/2010, de 6 de abril, de modificación de la Ley Foral 6/1990, de 2 de julio, de la
Administración Local de Navarra, para su adaptación a la directiva 2006/123/CE (BOE num.
129 de 27.05.2010) – Law 7/2010, of 6 April, amending Law 6/1990, of 2 July, on the municipal
administration of Navarra, to adapt it to Directive 2006/123/EC.
Regulatory adaptation involves amendments to 21 decrees and 2 orders:45 1 in the area of retail trade, 6
in the area of education, 3 in the area of economy and finance, 2 in the area of interior affairs, 1 decree
and 2 orders in the area of health, 7 in the area of tourism and 1 in the area of housing and
construction.
País Vasco
• Ley 7/2008, de 25 de junio, de segunda modificación de la Ley de la Actividad Comercial
(BOPV núm.128, de 07.07.2008) - Law 7/2008, of 25 June, amending for a second time the Law
on Commercial Activity.46
44
Ibid.
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
46
This Law is not included in the List of the National Provisions Communicated by Spain.
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45
Brussels
The Basque Country is working on an Omnibus Law to adapt a series of Basque Laws to the Services
Directive. On 1 March 2011, the Government Council approved the Draft Law which has been sent to
the Basque Parliament.47
Regulatory adaptation involves amendments to 27 decrees and 1 order:48 6 in the area of tourism, 5 in
the area of industry, 2 in the area of environment, 4 in the area of agriculture and 2 in the area of
housing and construction, 1 in the area of interior affairs, 4 (including a repeal) in the area of
healthcare, 1 in the area of social services, 1 order in the area of economy and finance and 2 decrees in
the area of energy.
Local Authorities
Local authorities were called upon to screen their own regulations so as to ascertain the extent of their
compatibility with the Services Directive as to authorisation schemes and requirements that are
prohibited or subject to evaluation under the Directive. A handbook to facilitate the work of local
authorities was elaborated “Manual de Evaluación para las Entidades Locales: Guía orientativa para la
evaluación de la normativa potencialmente afectada por la Directiva 2006/123/CE”. In addition, the
Spanish Federation of Municipalities and Provinces advised local authorities to pass Omnibus
ordinances. Two examples of these are:49
• Ordenanza de Modificación de varias ordenanzas para su adaptación a la Ley 17/2009, de 23
de noviembre, sobre libre acceso a las actividades de servicios y su ejercicio del Municipio de
Vitoria-Gasteiz (BOTHA núm. 88, 6.09.2010) - Ordinance amending diverse ordinances to adapt
them to Law 17/2009 . This was approved on 25 June 2010 (BOTHA núm. 88, 6.09.2010).
• Ordenanza por la que se adaptan al ámbito de la ciudad de Madrid las previsiones contenidas
en la normativa estatal y autonómica de transposición de la Directiva 2006/123/CE (BOAM núm.
6.409, de 8.04.2011) - Ordinance adapting to the scope of the city of Madrid the provisions
contained in the State and Madrid Autonomous Community norms transposing Directive
2006/123/EC. This Ordinance was approved on 30 March 2011.
1.2 Summary of correctness and completeness of implementing measures (Articles
16(1) and (2))
On the basis of the completed Table of Concordance in Annex I of this study, it may be concluded that
the Spanish transposition of Articles 16(1) and (2) of the Services Directive through horizontal Law
17/2009 passed at the State level is correct. As mentioned above, the implementation of the Services
Directive at the CC.AA and municipality levels took place through the adoption and/or amendments of
sector-specific legal instruments. It is important to highlight that provisions in Law 17/2009 apply in
all Spanish territory.
Following the Services Directive, Law 17/2009 also includes definitions. Articles 3.1 and 3.2 of Law
17/2009 define service and service provider. Service is defined as any self-employed economic
activity, normally provided for remuneration, as referred to in Article 50 of the EC Treaty.50 This
definition is a literal transposition of the definition in the Directive. Service provider is defined as any
natural person who is a national of a Member State, or with legal residence in Spain, or any legal
person or entity constituted in accordance with the legislation of a Member State whose registered
office, central administration or principal place of business is within the European Union who offers or
provides a service. This definition partially reflects Article 54 TFEU providing the kind of legal
47
http://www.idluam.es/index.php?option=com_content&view=article&id=3715:directiva-deservicios&catid=165:Pa%C3%ADs%20Vasco&Itemid=31
48
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010).
49
These Ordinances are not included in the List of the National Provisions Communicated by Spain.
50
This Law was published in the Spanish Official Journal a few days before the Lisbon Treaty entered into force.
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person referred to in that article of the Treaty as the definition in the Services Directive refers to it
when it provides “(…)or any legal person as referred to in Article 48 of the Treaty (…)” . Therefore,
the concept of cross-border service provider/provision is in line with the Services Directive.
Law 17/2009 provides for the exact same justification reasons that are found in Article 16 of the
Directive: public policy, public security, public health and environmental protection, to justify the
application of requirements to cross-border service providers. Nevertheless, in Section 1.3 it will be
shown how the sector-specific legislation of some CC.AA would seem to explicitly refer to other
overriding reasons of general interest such as the protection of the historical and cultural heritage in
relation to the freedom to provide cross-border services. The principle of proportionality is also
reflected in line with the Services Directive. Article 12.3 of Law 17/2009 also specifies that
requirements established or maintained on the basis of any of the justifying reasons must be duly
motivated in the legal instruments providing for them.
The prohibited restrictions contained in Article 16(2) of the Directive are correctly copied into Spanish
Law.
It can be concluded that the adoption of Law 17/2009 guarantees the freedom to provide cross-border
services without unjustified restrictions.
None of the Autonomous Communities has adopted a horizontal law but many of them have passed
omnibus laws amending a series of sector laws in addition to sector decrees. Those that have not
approved omnibus laws have enacted specific laws and/or decrees amending sector laws and/or
decrees. Therefore, the transposition of Article 16 has only taken place at the State level applying to all
Spanish territory based on Article 149.1.1, 13, and 18 of the CE.
1.3 The right of Member States to impose certain requirements (Article 16(3))
According to the Handbook on Implementation of the Services Directive, Article 16 “does not, in
principle, require Member States to remove existing requirements but only obliges them to refrain
from applying their own requirements to service providers established in other Member States. Article
16 does not prevent Member States from maintaining their requirements for their national operators”.
In order to identify whether Spain imposes certain requirements on service providers from other
Member States justified for public policy, public security, public health or the protection of the
environment based on Article 16(3) of the Services Directive it is necessary to refer to the sectorspecific legislation at the State and CC.AA level. Article 12.3 of the Spanish horizontal law provides
that a cross-border service may be subject to compliance with the requirements determined by the
applicable sectoral legislation. Law 17/2009 produced an automatic derogation from provisions of
equal or inferior hierarchical level that conflict with its provisions. This means that legislation in force
contrary to it does not apply. In addition, taking into consideration that this Law was adopted in
accordance with the exclusive competences of the State to develop basic legislation in the fields it
covers (see Section 1.1 above), the CC.AA must respect its provisions when adopting new legal
instruments to transpose the Services Directive into their legal systems. As a result Article 12.3
prevails over conflicting provisions (see Section 1.4 for details on prevalence of this Article over
conflicting provisions).
This Section gives examples of requirements imposed in certain service sectors since the number of
legal instruments adopted in Spain at the three administrative levels amounts to over one thousand,
making an in-depth analysis of every single provision in force impracticable. Before starting this
analysis it is important to mention that the trend in the sector-specific legislation in force before the
Services Directive was adopted was not to mention cross-border services. Not all instruments have
been amended or derogated yet. The new instruments adopted include specific provisions for crossborder services in line with the Services Directive. Thus, the provisions which are still in force and
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that have not been subject to amendments apply to all service providers, national and cross-border.
Nevertheless, in principle, Article 12.3 of the Spanish horizontal law prevails.
Some examples of the new instruments including specific provisions for cross-border services are:
State level
• Royal Decree 560/2010, of 7 May, amending diverse regulations on industrial safety to adapt
them to Law 17/2009, and Law 25/200951
• Royal Decree 369/2010, of 26 March, modifying the Regulation on Private Driving Schools52.
CC.AA level
• Decree 13/2010, of 11 February, regulating the access to and exercise of the profession of
tourist guide in Canarias53
• Law Decree 3/2009, of 23 December, on Measures to Foster Service Activities in Castilla y
León54
• Legislative Decree of Cataluña, of 5 October, to adapt laws to Directive 2006/123/EC.55
It is important to highlight that the horizontal Law has introduced new, less restrictive regulation
alternatives such as ex-post communications or responsible declarations as alternatives to
authorisations.
Archaeological Activities
The Omnibus Law of Andalucía amended Article 53 of Law 14/2007, of 26 November, on the
Historical Heritage of Andalucía. This article requires an authorization from the Consejeria (regional
ministry) holding the competence in the field of Historical Heritage to carry out archaeological
activities. This Law does not provide the justification as to why an authorization is required to carry
out this activity. It could be understood that the reason to require this authorization lies in the public
policy objective of protection of the historical heritage.
Law 3/2011, of 17 February, amending Law 2/1999, of 29 March, on the Historical and Cultural
Heritage of Extremadura modified Article 53. This Article requires an authorization to carry out
archaeological activities from the Consejería competent in the field of culture. According to its
preamble, this authorization is justified for protection of the historical and cultural heritage. In view of
51
Real Decreto 560/2010, de 7 de mayo, por el que se modifican diversas normas reglamentarias en materia de
seguridad industrial para adecuarlas a la Ley 17/2009, de 23 de noviembre, sobre el libre acceso a las actividades
de servicios y su ejercicio, y a la Ley 25/2009, de 22 de diciembre, de modificación de diversas leyes para su
adaptación a la Ley sobre el libre acceso a las actividades de servicios y su ejercicio.
http://www.boe.es/aeboe/consultas/bases_datos/doc.php?id=BOE-A-2010-8190
52
Real Decreto 369/2010, de 26 de marzo, por el que se modifica el Reglamento de las Escuelas Particulares de
Conductores, aprobado por el Real Decreto 1295/2003, de 17 de octubre; el Reglamento General de Vehículos,
aprobado por el Real Decreto 2822/1998, de 23 de diciembre; y el Real Decreto 2100/1976, de 10 de agosto,
sobre fabricación, importación, venta y utilización de piezas, elementos o conjuntos para reparación de
automóviles, para adaptar su contenido a la Ley 17/2009, de 23 de noviembre, sobre el libre acceso a las
actividades de servicios y su ejercicio y a la Ley 25/2009, de 22 de diciembre, de modificación de diversas leyes
para su adaptación a la Ley sobre el libre acceso a las actividades de servicios y su ejercicio (BOE núm. 75, de
27.03.2010) http://www.boe.es/aeboe/consultas/bases_datos/doc.php?id=BOE-A-2010-5038
53
Decreto 13/2010, de 11 de febrero, por el que se regula el acceso y el ejercicio de la profesión de guía de
turismo (BOC núm. 38, de 24.02.2010) http://www.gobiernodecanarias.org/boc/2010/038/001.html
54
Decreto-ley 3/2009, de 23 de diciembre, de Medidas de Impulso de las Actividades de Servicios en Castilla y
Leónhttp://www.boe.es/boe/dias/2010/12/30/pdfs/BOE-A-2010-20073.pdf
55
Decreto Legislativo 3/2010, de 5 de octubre, para la adecuación de normas con rango de ley a la Directiva
2006/123/CE, del Parlamento y del Consejo, de 12 de diciembre de 2006, relativa a los servicios en el mercado
interior (BOE num. 257 de 23/10/2010)- http://www.boe.es/boe/dias/2010/10/23/pdfs/BOE-A-2010-16139.pdf
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the justification explicitly invoked in the legal text, the compatibility of this requirement with Articles
16(1) and (3) of the Services Directive could merit further analysis.
Energy
Article 2 d) of Orden de 9 de diciembre de 1987, de la Conselleria de Industria, Comercio y Turismo,
sobre mantenimiento de subestaciones eléctricas y centros de transformación (Order of 9 December
of 1987, of the Ministry of Industry Commerce and Tourism of Valencia on maintenance of electric
substations and transformation centres56) requires to have an establishment with telephone and a
vehicle. This requirement cannot be justified by any of the overriding reasons of general interest
provided by Article 16 of the Services Directive.
Public Shows and Entertainment Activities
Law 7/2011, of 21 March, on Public Shows and Entertainment Activities in Castilla-La Mancha
establishes the obligation to obtain an authorization for the development of public shows and
entertainment activities requiring the use of portable or removable structures or installations for public
safety, civil protection, environmental and urban environment protection reasons. For the same
reasons an authorization is required when those activities are carried out in public domain areas or in
buildings of historical value. In this last case, the reason invoked by the authorities seems to be the
protection of the cultural and historical heritage of Castilla-La Mancha. Authorisations for the use of
public domain may well be justified by overriding reasons of general interest and by the need to
ensure equal access to that domain by all service providers, wherever they are established. However,
the invocation of cultural and historical heritage to justify the application of requirements to crossborder service providers seems contrary to Article 16 of the Services Directive.
There are other pieces of legislation at the State and CC.AA levels establishing requirements based on
the justifications provided by Article 16(3) of the Directive. Therefore, Spain has made use of the
exceptions provided in the Services Directive making the provision of services subject to certain
requirements applicable to Spanish service providers and service providers established in other EU
Member States. However, some of the justifications provided by some CC.AA do not seem to be in
line with the justifications allowed by the Directive.
Tourism
A series of CC.AA Decrees require tourist guides to hold a professional identity card. This
requirement is analysed in detail in Part Two of this Report.
The Article 16(2) requirements that have been maintained in sector-specific legislation will be focused
upon in more detail in Part Two of this Report.
1.4 Hierarchical status of the implementing measures
The State, the CC.AA and municipalities hold executive and legislative powers.
In accordance with Article 1.1 of the Spanish Civil Code, the sources of law include: law (legal acts),
customs, and general principles. In addition, the rules derived from international treaties are legally
binding in Spain once the treaties have been published in the Official Journal. Court judgments
complete the legal system by providing interpretation of the three main sources of law.
56
http://www.docv.gva.es/datos/1987/12/30/pdf/1987_810261.pdf
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The main law in the hierarchy of the Spanish normative system is the CE. Nevertheless, the principle
of primacy of EU law must be taken into consideration in case a Spanish source of law is contrary to
EU law provisions. In such a case the latter prevails.
Legal Acts are defined as the norms published in the official journals that contain normative mandates
issued by the bodies holding legislative power, in accordance with the 1978 CE. These bodies are the
General Chambers (the Spanish Senate and Parliament) as well as the Legislative Assemblies from the
Autonomous Communities.
The CE distinguishes between two kinds of Legal Acts:
• Leyes Orgánicas (Organic Laws) are those that develop fundamental rights and public
freedoms (human rights), approve the Estatutos (Constitutions) of the Autonomous
Communities and the general electoral regime, as well as those matters which require such a
Law as provided in the CE itself.
• Leyes Ordinarias (Ordinary Laws) are the rest of the legal acts.
The CE provides the Government with the faculty to pass norms with the status of legal acts if there is
an extraordinary and urgent need.57 In this case, it is required that the Parliament discusses and votes
on the Government act designated as Law Decree within thirty days.
The principle of hierarchy of norms provided in Article 9.3 of the CE applies not only to the sources of
law in general but also to each particular source. The supreme law is the CE. All the laws and
normative provisions are subject to the CE. Ordinary Laws, Legislative Decrees and Law Decrees are
below the organic laws. Between State and CC.AA laws there should be no hierarchy problems since
the latter must cover areas under their competence or whose competence has been transferred to them.
In Spain, public administrations hold regulatory faculty which allows them to pass norms with a
regulatory status. These norms are subordinate to legal acts and take the form of regulations, decrees
or instructions. The regulatory acts must respect the provisions contained in legal acts provided by
the State or by the CC.AA.
The Royal Decrees are legally binding acts having a regulatory status issued by the executive power
(Government) in accordance with the provisions of the Constitution. A Royal Decree requires the
approval of the President of the Government or of the Council of Ministries. Royal Decrees follow the
legal acts in the Spanish legal hierarchy and precede the Ministerial Orders, which can be approved by
Ministries.
The CC.AA also have regulatory faculty in the areas under their competence or whose competence has
been transferred to them.
The other kinds of norms are municipal ordinances, which have a regulatory status and must respect
legal acts. Municipal ordinances must be passed by the municipal assembly (pleno municipal).
The horizontal Law 17/2009 was approved on the basis of Articles 149.1.1, 13 and 18 of the CE.
These three provisions grant the State exclusive competence to regulate the basic conditions
guaranteeing equality of all Spaniards, to establish the basis and the coordination for economic
planning and basis of the legal regime of public administrations and of the common administrative
procedure respectively. Thus, legislation and regulations passed by CC.AA and municipalities must
always respect the provisions in this law.
The repealing provision in Law 17/2009 repeals all provisions of equal or inferior hierarchical level
that conflict with its provisions. This repealing provision is based on the legal principle lex posterior
derogat priori (the later law repeals the previous one).This means that any law or regulation
57
Article 86 CE.
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previously in force adopted by the State or the CC.AA was automatically repealed. This is known as
tacit derogation.
The repealing provision, however, provided that provisions in force when Law 17/2009 entered into
force which might be incompatible with its second and third chapters (on freedom of establishment
and on freedom to provide cross-border services respectively), Article 17.1 of chapter IV (which
provided the obligation for Public Administrations to review procedures applicable to establishment
and provision of services to foster its simplification) and Articles 24 and 25 (on commercial
communications of regulated professions and multidisciplinary activities respectively) would remain
in force until expressly repealed. It also provided that in any case those incompatible provisions would
be repealed on 27 December 2009.
The fact that Law 17/2009 prevails involves Article 12, which establishes the freedom to provide
services in Spanish territory by service providers from other Member States and takes precedence over
CC.AA laws and regulations and municipal ordinances denying this freedom to a service provider
from another Member State. Thus, if a service provider established in another Member State wants to
provide a service in a CC.AA and the competent authority of that CC.AA subjects him or her to
requirements not justified by the overriding reasons of general interest listed in Articles 16(1) and (3)
of the Services Directive, that citizen can contest this on the basis of Article 12 of Law 17/2009. One
specific case could be an EU citizen who is interested in providing active tourism services in The fact
that that EU citizen has to submit an administrative appeal under the administrative review procedure
which can obtain no answer or an unsatisfactory answer which could lead to the submission of a
judicial review represents a burden to an EU citizen. Therefore, even though Law 17/2009 prevails in
the whole territory of Spain the presence of requirements not in line with the Services Directives in
CC.AA legislation could create a barrier to the proper implementation of the Services Directive.
As a direct consequence of the repealing provision, an administrative authority can disapply directly
legislation contrary to Article 12.3.
In addition to the tacit repeal of provisions of equal or inferior hierarchical level conflicting with
provisions of Law 17/2009, it is important to emphasise that new legal instruments to be adopted by
the State, CC.AA or municipalities to transpose the Services Directive must be in line with Law
17/2009. This is a consequence of this Law having been passed according to the exclusive
competences of the State to develop basic legislation in the fields it covers (see Section 1.1 above).
It is important to highlight that according to Law 29/1998, of 13 July, on the Administrative Judicial
Procedure,58 the administrative judicial procedure is only available against provisions of a general
character and administrative acts which put an end to the administrative procedure.59 This implies that
the administrative judicial procedure is only available against normative instruments below Laws.
These provisions of a general character are those approved by the Executive when exercising its power
to dictate regulations. Thus, only regulatory provisions can be subject to a direct or indirect
administrative judicial procedure, never laws or provisions with force of law. Nevertheless, Article 1.1
extends this jurisdictional control to legislative decrees when they exceed the limits of the delegation.
This means that regulatory provisions that are contrary to Article 12 of Law 17/2009 can be
challenged before an Administrative Court by any citizen.
In the case of a legal provision, if a CC.AA adopts a Law contrary to the horizontal legislation, that
Law shall not apply as it must respect the distribution of competences between the State and the
CC.AA. Nevertheless, in such a case an unconstitutionality appeal before the TC would be promoted.
58
Ley 29/1998, de 13 de julio, reguladora de la Jurisdicción Contencioso-Administrativa.
http://noticias.juridicas.com/base_datos/Admin/l29-1998.t3.html
59
Articles 1.1. and 25 of Law 29/1998.
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According to Organic Law 2/1979, of 3 October, of the Constitutional Court60 the unconstitutionality
appeal can be submitted by the President of the Government, the Ombudsman, fifty members of the
Spanish Parliament or fifty members of the Senate. These parties can exercise this action within three
months from the official publication of the legal act containing provisions contrary to the
Constitution.61 In addition to the unconstitutionality appeal, any judge or Court can submit an
unconstitutionality question to the TC when a Law applicable to the case it is analysing and on whose
validity the judgment depends may be contrary to the CE. It is not possible to provide estimates on the
length of these procedures. It may however be pointed out that the Spanish Courts including the TC
take very long to reach a judgment.
60
Ley Orgánica 2/1979, de 3 de octubre, del Tribunal Constitucional
http://noticias.juridicas.com/base_datos/Admin/lo2-1979.t2.html
61
Article 33 of that Organic Law provides for a period of nine months if certain conditions are met.
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2. Practical implementation
2.1 The application of the transposing measures by national authorities and courts
As regards preparatory works, a work programme was elaborated for the implementation of the
Services Directive in Spain. The Delegate Committee of the Government for Economic Affairs
(Comisión Delegada del Gobierno para Asuntos Económicos, CDGAE) created a Working Group
comprising the Ministry of Economy and Finance and all the other Central Government ministries
(competent authorities); the Working Group was entrusted with preparing the Work Programme to
prepare the transposition of the Services Directive by 28 December 2009 and to identify the main
actions to be undertaken by the various Central Government ministries, including, in the areas within
their specific remits, appropriate cooperation with regional and local authorities. The Working Group
met on four occasions and, on 26 July 2007, submitted to the CDGAE a Work Programme which
thereafter governed the transposition process up to December 2009.
The Work Programme was divided into four major lines of action: Coordination and cooperation with
the public authorities involved; incorporation of the Services Directive into internal Spanish law;
introduction of the point of single contact; and establishment of the Internal Market Information
system.
To foster coordination and cooperation among the three levels of government a simultaneous scheme
of sector-specific collaboration, enlisting the sectoral conferences62 and other, more active supporting
bodies, such as meetings of Directors General and other groups of technical specialists, in addition to
horizontal or general coordination was set up. A Technical Group was created comprising partners of
the various Central Government Ministries, the Autonomous Communities and the FEMP.
A training plan was also established. The Ministry of Economy and Finance provided technical
training actions at the request of 11 Autonomous Communities (Andalucía, Aragón, Community of
Madrid, Balearic Islands, Canary Islands, Castilla y León, Galicia, Basque Country, Asturias,
Catalonia and Valencian Community) and 4 Central Government Ministries (Ministry of Education,
Ministry of Industry, Tourism and Trade, Ministry of the Presidency, and Ministry of Environment).
In addition to these general training and dissemination events, specific training courses in the trade
area were taught by the Directorate General for Trade Policy of the Ministry of Industry, Tourism and
Trade at 11 Autonomous Communities (Andalucía, Aragón, Community of Madrid, Balearic Islands,
Canary Islands, Castilla y León, Castilla La Mancha, Navarra, Basque Country, Catalonia and
Valencian Community) and the FEMP. Contributions were made to disseminate the Services Directive
and its implementing measures in a range of different fora, primarily hosted by business associations,
professional bodies and Chambers of Commerce. The Ministries of Territorial Policy, and of Industry,
Tourism and Commerce also organized training activities.
As regards existing case-law, it was not possible to identify any relevant jurisprudence from the
Spanish Courts on the implementation of the Services Directive or the national implementation
measures. This can be explained by the fact that the horizontal legislation was only adopted at the end
of 2009.
Nevertheless, in addition to three appeals to some provisions of Law 17/2009 submitted by CC.AA of
Cataluña63 and Canarias64 and by the State65 to the TC, a series of relevant cases are under review at
62
These conferences are comprised of the heads of each area from the State and CC.AA. For example the
Sectorial Conference of Industry is comprised of the Spanish Minister of Industry and the Consejeros de
Industria (the Ministers of Industry) from all the CC.AA.
63
This conflict of competence was submitted by the Generalitat de Cataluña against Royal Decree 199/2010, of
26 February, regulating ambulant commerce (BOE núm. 178, of 23.07.2010).
64
STC 18/2011, of 3 March 2011 (BOE núm. 75 de 29.03.2011).
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administrative courts under the judicial review procedure available to challenge regulatory
instruments. In particular, these cases were brought by professional associations against Royal Decree
1000 /2010, of 5 August, on professional boards’ certification66 (visado colegial). RD 1000/2010
introduced an important modification to the previous obligation to obtain certification to many works
carried out by professionals such as engineers or architects. This certification (visado) was issued by
professional boards and it was imposed by the statutes of professional associations and bodies. Article
13 of Law 2/1974 by the amendment operated by the Omnibus State Law now limits the obligation to
obtain that certification to very few cases: when a client, including public administration, so requires
or when the government so requires by RD. However, this requirement can only operate if that
certification has a direct relationship between the professional work and the potential effect on
physical integrity and safety of people and if the certification is the most proportionate control
measure. Therefore, that requirement will be in line with the provision of the Services Directive. RD
1000/2010 provides the projects subject to that certification. In addition, its Article 7 provides for the
freedom of services provided by professionals from other EU Member States. This article establishes
that in order to obtain a professional board certification the professional from another Member State
must show its communication in accordance with the legislation on recognition of professional
qualifications to prove its identity and verify the authorship of the work subject to certification.
The cases are pending but in the course of the judicial procedure, the professional associations
requested the adoption of provisional measures. Among the requested provisional measures was a
request not to apply Article 7 of that RD whilst the court procedure was pending. This would have
meant that the professionals from other Member States would have been subject to requirements
contrary to the Services Directive. However, in all these cases the Spanish Supreme Court denied the
provisional measures requested by the plaintiffs.67 Thus, Article 7 of RD 1000/2010 is still in force.
Finally, it is worth noting that the Third Additional Provision of the Umbrella Law established the
Committee for the Improvement of the Regulation on Service Activities (Comité para la mejora de la
regulación de las actividades de servicios) to facilitate the participation of public administrations in
the transposition of Directive 2006/123/EC. This Committee is a committee for multilateral
cooperation which is comprised of representatives of the General Administration of the State, CC.AA,
Autonomous Cities and municipalities. The aims of this Committee were specified in the Institutional
Agreement for its establishment of 19 July 2010:68
a) the adoption of criteria to improve the economic environment through the implementation of
the good regulation principles avoiding the introduction of unjustified or disproportionate
restrictions to the functioning of markets.
b) Cooperation to improve the regulation on service activities
c) The follow-up and coordination of actions taken by the administrations to correctly transpose
Directive 2006/123/EC.
65
This conflict of competence was submitted by the Government of Spain against article 2 (1) (2.2) (5) (10.
1.2.3.) and from 3 to 9 of Law 1/2010, of 11 February amending diverse laws of Galicia to adapt them to
Directive 2006/123/EC (DOG núm. 248, of 28.12.2010). On 12 April 2011, the TC agreed to cease the
suspension of a series of Articles of that Law in the unconstitutionality appeal núm. 8260-2010, (DOG num. 90
of 10.05.2011).
66
This RD was approved following the Third Transitional Provision in the Omnibus State Law which provided a
term of fourth months after its entry into force for the Government to adopt a RD establishing which certification
issued by professional boards should be compulsory in accordance with Article 13 of Law 2/1974, of 13
February on Professional Associations.
67
Vid. Auto Tribunal Supremo of 2/12/2010 in the procedure number 466/2010.
68
Its programme of work is found at http://www.meh.es/esES/Areas%20Tematicas/Internacional/Union%20Europea/Documents/10-1214%20CMR%20programa%20de%20trabajo.pdf
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2.2 Gaps and deficiencies in implementation
At the moment, the process for the implementation of the Services Directive is ongoing as mentioned
in the first section of this study. It is difficult at this point to carry out an exhaustive evaluation of the
implementation of Article 16 of the Services Directive in Spain due to the novelty of the measures
adopted. Nevertheless, as already mentioned in Section 1.4, some implementation gaps were identified
at CC.AA level. This will cause problems in practice as prohibited burdens are applied to cross-border
service providers.
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3. Conclusions
The main act transposing the Services Directive into Spanish Law is the horizontal Law 17/2009, of
23 November, on Free Access to Service Activities and its Exercise. This Law applies in all Spanish
territory. Article 12 of this Law specifically transposes Article 16 of the Services Directive in Spain. In
addition, sector-specific legislation was adopted at the State (national), regional (Autonomous
Communities) and municipal levels to implement the requirements of the Services Directive through
omnibus laws amending existing sector-specific legislation or through direct amendments to laws,
decrees and orders.
In the case of services, the CE does not contain a single article providing for the distribution of
competences between the State and CC.AA. In addition, it must be recalled that municipal and
provincial bodies operate multiple procedures and rules governing access to, and the exercise of,
service activities. Services fall under the domain of many areas and therefore the determination of
responsibilities or competences will depend on the service activity in question. The Spanish
transposition of Articles 16(1) and (2) of the Services Directive through horizontal Law 17/2009
passed at the State level is correct. Law 17/2009 guarantees the freedom to provide cross-border
services without unjustified restrictions. The CC.AA have not adopted horizontal laws at all.
According to Article 12.3 of the Spanish horizontal law a cross-border service may be subject to
compliance with the requirements determined by the applicable sector legislation. The provisions
which are still in force and that have not been subject to amendments apply to all service providers national and cross-border. Nevertheless, in principle, Article 12.3 of the Spanish horizontal law shall
prevail. This means that no cross-border services can be subject to the requirements listed in Article
16(2) of the Services Directive unless it is justified by the overriding reasons of public interest
provided by Article 16(3) of the Directive. Some of the sector-specific legislation analysed shows the
existence of some requirements not justified by those overriding reasons of public interest:
authorisations to carry out archaeological activities; having an establishment with telephone and a
vehicle to the activity of maintenance of electric substations and transformation centres and holding a
professional identity card to provide cross-border services by tourist agents.
The horizontal Law 17/2009 was approved on the basis of Articles 149.1.1, 13 and 18 of the CE.
These three provisions grant the State exclusive competence to regulate the basic conditions
guaranteeing equality of all Spaniards, to establish the basis and the coordination for economic
planning and basis of the legal regime of public administrations and of the common administrative
procedure respectively. Thus, legislation and regulations passed by CC.AA and municipalities must
always respect the provisions in this law.
The repealing provision in Law 17/2009 repeals automatically all provisions of equal or inferior
hierarchical level that conflict with its provisions. This means that legislation in force contrary to it
does not apply. In addition, taking into consideration that this Law has been passed according to the
exclusive competences of the State to develop basic legislation on the fields it covers, the CC.AA must
respect its provisions when adopting new legal instruments to transpose the Services Directive into
their legal systems. As a result Article 12.3 prevails over previous and new conflicting provisions.
The fact that Law 17/2009 prevails involves Article 12, which establishes the freedom to provide
services in Spanish territory by service providers from other Member States and takes precedence over
CC.AA laws and regulations and municipal ordinances denying this freedom to a service provider
from another Member State. Nevertheless, the persistence of reasons not in line with the Services
Directive in CC.AA legislation could create a barrier to the proper implementation of the Services
Directive.
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ANNEX I
Table of concordance (Articles 16(1) and 16(2))
Articles 16(1) and 16(2)
Article 16(1)
Member States shall not make access to or
exercise of a service activity in their
territory subject to compliance with any
requirements which do not respect the
following principles:
(a) non-discrimination: the requirement
may be neither directly nor indirectly
discriminatory with regard to nationality or,
in the case of legal persons, with regard to
the Member State in which they are
established;
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National
provision (legal
ref. & art.)
Text of national provision (in
language of Member State)
Translation into English of national
provision
Compliance
assessment
L 17/2009, Art.
12.1
1. Los prestadores establecidos en
cualquier otro Estado miembro
podrán prestar servicios en territorio
español en régimen de libre
prestación sin más limitaciones que
las establecidas de acuerdo con lo
previsto en esta Ley.
1. Services providers established in any
other Member State shall be able to
provide services in Spanish territory
under a free provision regime without
more limitations than those established
in accordance with the provisions of
this Law.
Yes
L 17/2009, Art.
12.3. first
sentence
3.
Excepcionalmente,
podrá
supeditarse el acceso de estos
prestadores a una actividad de
servicios o su ejercicio temporal en
territorio español al cumplimiento de
los requisitos que en cada caso
determine la legislación sectorial
aplicable, únicamente cuando estén
justificados por razones de orden
público, de seguridad pública, de
salud pública o de protección del
medio ambiente; y sean, de
conformidad con el artículo 5 de esta
Ley,
proporcionados
y
no
discriminatorios
y
de
forma
suficientemente motivada.
3. Exceptionally, the access of these
providers to an activity of services or its
temporary exercise in the Spanish
territory can be subject to compliance
with the requirements determined by
the applicable sector legislation in each
specific case and only when those
requirements are justified for reasons
related to public policy, public security,
public health or to environmental
protection and in addition these
requirements are, in accordance with
article 5 of this Law, proportionate and
non-discriminatory and are duly
motivated.
L 17/2009, Art.
5.a)
La normativa reguladora del acceso a
una actividad de servicios o del
ejercicio de la misma no podrá
imponer a los prestadores un régimen
de
autorización,
salvo
excepcionalmente y siempre que
concurran las siguientes condiciones,
que
habrán
de
motivarse
suficientemente en la Ley que
establezca dicho régimen.
The legislation regulating access to a
service activity or to its exercise cannot
impose on providers an authorization
regime unless and exceptionally the
following conditions concur and they
are sufficiently motivated in the Law
establishing such a regime:
a) Non discrimination: the authorization
regime does not result directly or
indirectly discriminatory with regard to
Comments/Problems
The Spanish transposition reflects
provision in Article 16(1)(a) correctly.
the
The principle of non-discrimination is
transposed indirectly through a reference in
Article 12.3 of the Spanish Law to nondiscrimination as provided in its Article 5.
Although Article 5 of this Law refers to
authorization regimes it must be understood
that non-discrimination will have the same
meaning provided in Article 12.3.
National Report for Spain, May, 2011
(b) necessity: the requirement must be
justified for reasons of public policy, public
security, public health or the protection of
the environment;
L 17/2009, Art.
12.3. first
sentence
(c) proportionality: the requirement must be
suitable for attaining the objective pursued,
and must not go beyond what is necessary
to attain that objective.
L 17/2009, Art.
5.c) first
sentence
Article 16(2)
Member States may not restrict the freedom
to provide services in the case of a provider
established in another Member State by
imposing
any
of
the
following
requirements:
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L 17/2009, Art.
12.2.a)
nationality or the establishment is found
or not in the territory of the competent
authority or in the case of legal persons,
with regard to the place where the
domicile is found.
a) No discriminación: que el régimen
de
autorización
no
resulte
discriminatorio
ni
directa
ni
indirectamente en función de la
nacionalidad
o
de
que
el
establecimiento se encuentre o no en
el territorio de la autoridad
competente o, por lo que se refiere a
sociedades, por razón del lugar de
ubicación del domicilio social;
3.
Excepcionalmente,
podrá
supeditarse el acceso de estos
prestadores a una actividad de
servicios o su ejercicio temporal en
territorio español al cumplimiento de
los requisitos que en cada caso
determine la legislación sectorial
aplicable, únicamente cuando estén
justificados por razones de orden
público, de seguridad pública, de
salud pública o de protección del
medio ambiente; y sean, de
conformidad con el artículo 5 de esta
Ley,
proporcionados
y
no
discriminatorios
y
de
forma
suficientemente motivada.
Proporcionalidad: que dicho régimen
sea el instrumento más adecuado para
garantizar la consecución del objetivo
que se persigue porque no existen
otras medidas menos restrictivas que
permitan obtener el mismo resultado,
en particular cuando un control a
posteriori se produjese demasiado
tarde para ser realmente eficaz.
3. Exceptionally, the access of these
providers to an activity of services or its
temporary exercise in the Spanish
territory can be subject to compliance
with the requirements determined by
the applicable sector legislation in each
specific case and only when those
requirements are justified for reasons
related to public policy, public security,
public health or to environmental
protection and in addition these
requirements are, in accordance with
article 5 of this Law, proportionate and
non-discriminatory and are duly
motivated.
Yes
Proportionality: such a regime must be
the most suitable instrument for
attaining the objective pursued because
there are no other less restrictive
measures to attain that objective, in
particular when a posteriori control will
take place too late to be effective.
Yes
The principle of proportionality is transposed
indirectly through a reference in Article 12.3
of the Spanish Law to non-discrimination as
provided in its Article 5.
2. En ningún caso, el ejercicio de una
actividad de servicios por estos
prestadores en territorio español
podrá ser restringido mediante:
a) La obligación de que el prestador
esté establecido en el territorio
2. In no case can the exercise of a
service activity carried out for those
providers in Spanish territory be
restricted through:
a) the obligation that the provider be
established in the Spanish territory.
Yes
The transposition is correct.
The transposition is correct.
The Spanish transposition reflects the four
overriding reasons listed by the Services
Directive as comprising the principle of
necessity.
National Report for Spain, May, 2011
(a) an obligation on the provider to have an
establishment in their territory;
(b) an obligation on the provider to obtain
an authorization from their competent
authorities including entry in a register or
registration with a professional body or
association in their territory, except where
provided for in this Directive or other
instruments of Community law;
(c) a ban on the provider setting up a certain
form or type of infrastructure in their
territory, including an office or chambers,
which the provider needs in order to supply
the services in question;
español
L 17/2009, Art.
12.2.b)
b) La obligación de que el prestador
obtenga una autorización concedida
por autoridades españolas, o deba
inscribirse en un registro o en un
colegio o asociación profesional
españoles.
b) The obligation on the provider to
obtain an authorization from the
Spanish authorities or entry in a register
or registration with a professional body
or association of Spaniards.
No
The Spanish transposition does not contain
the exception related to unless it is provided
in a Directive or other instruments of EU
Law.
L 17/2009, Art.
12.2.c)
c) La prohibición de que el prestador
se procure en el territorio nacional
cierta forma o tipo de infraestructura,
incluida una oficina o un gabinete,
necesaria para llevar a cabo las
correspondientes prestaciones.
d) Exigencias que impidan o limiten
la prestación de servicios como
trabajador autónomo
c) A ban on the provider setting up a
certain form or type of infrastructure in
the national territory, including an
office or chamber which the provider
needs in order to supply the services in
question.
d) Requirements which prevent or
restrict service provision by the selfemployed
Yes
The transposition is correct
Yes
e) La obligación de que el prestador
obtenga de las autoridades españolas
un documento de identificación
específico
f) La exigencia de requisitos sobre el
uso de determinados equipos y
material que formen parte integrante
de la prestación del servicio, salvo
por motivos de salud y seguridad en
el trabajo.
g) Las restricciones contempladas en
el artículo 16 de esta Ley.
e) The obligation on the provider to
obtain from Spanish authorities a
specific identity document.
Yes
The transposition is correct. The Spanish
transposition reflects the obligation contained
in the Directive without referring to the
application of contractual arrangements
between the provider and the recipient.
However, the provision in the Spanish
transposition guarantees that the application
of these arrangements is not allowed under
Spanish law.
The transposition is correct
f) Requirements, except for those
necessary for health and safety at work
reasons, for the use of determined
equipment and material which are an
integral part of the service provided.
Yes
The transposition is correct
g) Restrictions provided in article 16 of
this Law
Yes
Article 16 of L 17/2009 reflects in an almost
literal manner Article 19 of the Services
Directive.
(d) the application of specific contractual
arrangements between the provider and the
recipient which prevent or restrict service
provision by the self-employed;
L 17/2009, Art.
12.2.d)
(e) an obligation on the provider to possess
an identity document issued by its
competent authorities specific to the
exercise of a service activity;
(f) requirements, except for those necessary
for health and safety at work, which affect
the use of equipment and material which
are an integral part of the service provided;
L 17/2009, Art.
12.2.e)
(g) restrictions on the freedom to provide
the services referred to in Article 19.
L 17/2009, Art.
12.2. g)
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L 17/2009, Art.
12.2.f)
National Report for Spain, May, 2011
ANNEX II
List of national legislation
National Level
Ley 6/2010, de 24 de marzo, de modificación del texto refundido de la Ley de Evaluación de Impacto
Ambiental de proyectos, aprobado por el Real Decreto Legislativo 1/2008, de 11 de enero (BOE num.
73, de 25.03.2010)
http://www.boe.es/boe/dias/2010/03/25/pdfs/BOE-A-2010-4908.pdf
Ley 1/2010, de 1 de marzo, de reforma de la Ley 7/1996, de 15 de enero, de Ordenación del Comercio
Minorista- Law 1/2010, of 1 March, amending Law 7/1996, January 15, on Retail Trade (BOE num.53
de 02.03.2010)
http://www.boe.es/boe/dias/2010/03/02/pdfs/BOE-A-2010-3365.pdf
Ley 25/2009, de 22 de diciembre, de modificación de diversas leyes para su adaptación a la Ley sobre
el libre acceso a las actividades de servicios y su ejercicio (BOE núm. 308, de 23.12.2009)- Law
25/2009, of 22 December, Amending diverse laws to adopt them to Law 17/2009
http://www.boe.es/boe/dias/2009/12/23/pdfs/BOE-A-2009-20725.pdf
Ley 17/2009, de 23 de noviembre, sobre el libre acceso a las actividades de servicios y su ejercicio
(BOE núm. 283, de 24.11.2009)- Law 17/2009, of 23 November, on the freedom to access to services
activities and its exercise (BOE num. 283 of 24.11.2009).
http://www.boe.es/boe/dias/2009/11/24/pdfs/BOE-A-2009-18731.pdf
Autonomous Community Level
ANDALUCÍA
Ley 3/2010, de 21 de mayo, por la que se modifican diversas leyes para la transposición en Andalucía
de la Directiva 2006/123/CE, de 12 de diciembre de 2006, del Parlamento Europeo y del Consejo,
relativa a los servicios en el Mercado Interior (BOE num.151, de 22.06.2010)
http://www.boe.es/boe/dias/2010/06/22/pdfs/BOE-A-2010-9887.pdf
ARAGON
Decreto-ley 1/2010, de 27 de abril, del Gobierno de Aragón, de modificación de diversas leyes de la
Comunidad Autónoma de Aragón para la transposición de la Directiva 2006/123/CEE del Parlamento
Europeo y del Consejo, de 12 de diciembre de 2006, relativa a los servicios en el mercado interior
(BOA num.86, de 05.05.2010)
http://www.boe.es/ccaa/boa/2010/086/d11433-11462.pdf
Decreto Ley 1/2008, de 30 de octubre, del Gobierno de Aragón, de medidas administrativas urgentes
para facilitar la actividad económica en (BOA núm. 181, de 03.11.2008).
http://www.boe.es/ccaa/boa/2008/181/d22854-22857.pdf
ASTURIAS
Ley 10/2010, de 17 de diciembre, de tercera modificación de la Ley 7/2001, de 22 de junio, de turismo
(BOE núm. 36, de 11.02.2011).
http://www.boe.es/boe/dias/2011/02/11/pdfs/BOE-A-2011-2622.pdf
Ley 9/2010, de 17 de diciembre, de comercio interior (BOE núm.36, de 11.02.2011)
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http://www.boe.es/boe/dias/2011/02/11/pdfs/BOE-A-2011-2621.pdf
CANARIAS
Ley 7/2011, de 5 de abril, de actividades clasificadas y espectáculos públicos y otras medidas
administrativas complementarias (BOC núm. 77, de 15.04.2011)
http://www.gobcan.es/boc/2011/077/001.html
Ley 8/2010, de 15 de julio, de los Juegos y Apuestas (BOE núm.199, de 17.08.2010).
http://www.boe.es/boe/dias/2010/08/17/pdfs/BOE-A-2010-13203.pdf
Ley 14/2009, de 30 de diciembre, por la que se modifica la Ley 7/1995, de 6 de abril, de ordenación
del turismo de Canarias (BOE núm.64 de 15/03/2010).
http://www.boe.es/boe/dias/2010/03/15/pdfs/BOE-A-2010-4222.pdf
Ley 12/2009, de 16 de diciembre, reguladora de la Licencia Comercial (BOE núm.26, de 30.01.2010)
http://www.boe.es/boe/dias/2010/01/30/pdfs/BOE-A-2010-1398.pdf
CANTABRIA
Ley 11/2010, de 23 de diciembre, de medidas fiscales y de contenido financiero (BOE núm. 25, de
29.01.2011)
http://www.boe.es/boe/dias/2011/01/29/pdfs/BOE-A-2011-1651.pdf
Ley 3/2010, de 20 de mayo, por la que se modifica la Ley 1/2001, de 16 de marzo, de Colegios
Profesionales de Cantabria, para su adaptación a la Ley sobre el libre acceso a las actividades de
servicios y su ejercicio (BOE núm.145, de 15.06.2010)
http://www.boe.es/boe/dias/2010/06/15/pdfs/BOE-A-2010-9422.pdf
Ley 2/2010, de 4 de mayo, para la modificación de la Ley 1/2002, de 26 de febrero, del Comercio de
Cantabria y de otras normas complementarias para su adaptación a la Directiva 2006/123/CE, del
Parlamento Europeo y del Consejo, de 12 de diciembre de 2006, relativa a los Servicios en el Mercado
Interior (BOE núm.131, de 29.05.2010)
http://www.boe.es/boe/dias/2010/05/29/pdfs/BOE-A-2010-8555.pdf
Ley 1/2010, de 27 de abril, por la que se modifica la Ley 6/2002, de 10 de diciembre, de Régimen
Jurídico del Gobierno y de la Administración de la Comunidad Autónoma de Cantabria y la Ley
11/2006, de 17 de julio, de Organización y Funcionamiento del Servicio Jurídico (BOE núm.130, de
28.05.2010)
http://www.boe.es/boe/dias/2010/05/28/pdfs/BOE-A-2010-8506.pdf
CASTILLA-LA MANCHA
Ley 7/2011, de 21 de marzo, de Espectáculos Públicos, Actividades Recreativas y Establecimientos
Públicos de Castilla-La Mancha (DOCM. núm 63, de 31.03.2011)
http://www.derecho.com/l/docm/7-2011-21-marzo-espectaculos-publicos-actividades-recreativasestablecimientos-publicos-castilla-mancha-%5B2011-4889%5D/impresion.html
Ley 2/2010, de 13 de mayo, de comercio de Castilla-La Mancha (BOE núm. 178, de 23.07.2010).
http://www.boe.es/boe/dias/2010/07/23/pdfs/BOE-A-2010-11731.pdf
Ley 7/2009, de 17 de diciembre, de modificación de diversas leyes para su adaptación a la Directiva
2006/123/CE, de 12 de diciembre, del Parlamento Europeo y del Consejo, relativa a los Servicios en el
Mercado Interior (BOE num.256, de 22.10.2010)
http://www.boe.es/boe/dias/2010/10/22/pdfs/BOE-A-2010-16093.pdf
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CASTILLA Y LEÓN
Ley 16/2010, de 20 de diciembre, de Servicios Sociales de Castilla y León (BOCyL núm. 244, de
21.12.2010)
http://bocyl.jcyl.es/boletines/2010/12/21/pdf/BOCYL-D-21122010-1.pdf
Ley 14/2010, de 9 de diciembre, de turismo de Castilla y León (BOE núm. 317 de 30.12.2010).
http://www.boe.es/boe/dias/2010/12/30/pdfs/BOE-A-2010-20073.pdf
CATALUÑA
Decreto Legislativo 3/2010, de 5 de octubre, para la adecuación de normas con rango de ley a la
Directiva 2006/123/CE, del Parlamento y del Consejo, de 12 de diciembre de 2006, relativa a los
servicios en el mercado interior (BOE num. 257 de 23.10.2010).
http://www.boe.es/boe/dias/2010/10/23/pdfs/BOE-A-2010-16139.pdf
Ley 26/2010, de 3 de agosto, de régimen jurídico y de procedimiento de las administraciones públicas
de Cataluña (BOE num.203, de 21.08.2010)
http://www.boe.es/boe/dias/2010/08/21/pdfs/BOE-A-2010-13313.pdf
Ley 3/2010, de 18 de febrero, de prevención y seguridad en materia de incendios en establecimientos,
actividades, infraestructuras y edificios (BOE núm. 89, 13.04.2010)
http://www.boe.es/boe/dias/2010/04/13/pdfs/BOE-A-2010-5882.pdf
Ley 11/2009, de 6 de julio, de regulación administrativa de los espectáculos públicos y las actividades
recreativas (BOE núm. 183, de 3.08.2009)
http://www.boe.es/boe/dias/2009/08/03/pdfs/BOE-A-2009-12856.pdf
COMUNIDAD DE VALENCIA
Ley 3/2011, de 23 de marzo, de comercio de la Comunitat Valenciana (BOE núm. 91 de 16/04/2011)
http://www.boe.es/boe/dias/2011/04/16/pdfs/BOE-A-2011-6875.pdf
Ley 14/2010, de 3 de diciembre, de la Generalitat, de Espectáculos Públicos, Actividades Recreativas
y Establecimientos Públicos (DOCV núm. 6414, de 10.12.2010)
http://www.docv.gva.es/datos/2010/12/10/pdf/2010_13297.pdf
Ley 12/2009, de 23 de diciembre, de medidas fiscales, de gestión administrativa y financiera, y de
organización de la Generalitat (BOE núm.24, de 28.01.2010).
http://www.boe.es/boe/dias/2010/01/28/pdfs/BOE-A-2010-1279.pdf
EXTREMADURA
Ley 7/2011, de 23 de marzo, de Salud Pública de Extremadura (DOE núm. 59, de 25.03.2011).
http://www.spapex.es/pdf/ley_salud_publica_extremadura_2011.pdf
Ley 3/2011, de 17 de febrero, de modificación parcial de la Ley 2/1999, de 29 de marzo, de
Patrimonio Histórico y Cultural de Extremadura (BOE núm. 57, de 8.03.2011).
http://www.boe.es/boe/dias/2011/03/08/pdfs/BOE-A-2011-4298.pdf
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Ley 2/2011, de 31 de enero, de desarrollo y modernización del turismo de Extremadura (BOE núm.
42, de 18.02.2011)
http://www.boe.es/boe/dias/2011/02/18/pdfs/BOE-A-2011-3179.pdf
Ley 12/2010, de 16 de noviembre, de impulso al nacimiento y consolidación de empresas en la
Comunidad Autónoma de Extremadura (BOE núm.300, de 10.12.2010)
http://www.boe.es/boe/dias/2010/12/10/pdfs/BOE-A-2010-19049.pdf
Ley 8/2010, de 19 de julio, de Actividades Feriales de la Comunidad Autónoma de Extremadura (BOE
núm.192, de 09.08.2010).
http://www.boe.es/boe/dias/2010/08/09/pdfs/BOE-A-2010-12769.pdf
Ley 7/2010, de 19 de julio, de modificación de la Ley 3/2002, de 9 de mayo, de Comercio de la
Comunidad Autónoma de Extremadura (BOE núm. 192, de 09.08.2010).
http://www.boe.es/boe/dias/2010/08/09/pdfs/BOE-A-2010-12768.pdf
GALICIA
Ley 13/2010, de 17 de diciembre, del comercio interior de Galicia (BOE núm. 25 de 29.01.2011)
http://www.boe.es/boe/dias/2011/01/29/pdfs/BOE-A-2011-1649.pdf
Ley 1/2010, de 11 de febrero, de modificación de diversas leyes de Galicia para su adaptación a la
Directiva 2006/123/CE, del Parlamento Europeo y del Consejo, de 12 de diciembre de 2006, relativa a
los servicios en el mercado interior (BOE núm. 86 de 09.04.2010)
http://www.boe.es/boe/dias/2010/04/09/pdfs/BOE-A-2010-5665.pdf
Ley autonómica 14/2008, de 3 de diciembre, de turismo de Galicia (BOE núm. 64, de 16.03.2009).
http://www.boe.es/boe/dias/2009/03/16/pdfs/BOE-A-2009-4367.pdf
ISLAS BALEARES
Ley 12/2010, de 12 de noviembre, de modificación de diversas leyes para la transposición en las Illes
Balears de la Directiva 2006/123/CE, de 12 de diciembre, del Parlamento Europeo y del Consejo,
relativa a los servicios en el mercado interior (BOE núm.308, de 20.12.2010).
http://www.boe.es/boe/dias/2010/12/20/pdfs/BOE-A-2010-19487.pdf
Ley 8/2009, de 16 de diciembre, de reforma de la Ley 11/2001, de 15 de junio, de ordenación de la
actividad comercial en las Illes Balears para la transposición de la Directiva 2006/123/CE del
Parlamento Europeo y del Consejo, de 12 de diciembre de 2006, relativa a los servicios en el mercado
interior (BOE núm. 26, de 30.01.2010).
http://www.boe.es/boe/dias/2010/01/30/pdfs/BOE-A-2010-1400.pdf
LA RIOJA
Ley 7/2009, de 22 de diciembre, de Servicios Sociales de La Rioja (BOE núm. 14, de 16.02.2010)
http://www.boe.es/boe/dias/2010/01/16/pdfs/BOE-A-2010-658.pdf
Ley 6/2009, de 15 de diciembre, de Medidas Fiscales y Administrativas para el año 2010(BOE núm.
14, de 16.01.2010)
http://www.boe.es/boe/dias/2010/01/16/pdfs/BOE-A-2010-657.pdf
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MADRID
Ley 8/2009, de 21 de diciembre, de Medidas Liberalizadoras y de Apoyo a la Empresa Madrileña
(BOE núm. 63 de 13/03/2010)
http://www.boe.es/boe/dias/2010/03/13/pdfs/BOE-A-2010-4181.pdf
Ley 3/2008, de 29 de diciembre, de Medidas Fiscales y Administrativas (BOE núm. 66, de
18.03.2009)
http://www.boe.es/boe/dias/2009/03/18/pdfs/BOE-A-2009-4514.pdf
MURCIA
Ley 12/2009, de 11 de diciembre, por la que se modifican diversas leyes para su adaptación a la
Directiva 2006/123/CE, del Parlamento Europeo y del Consejo, de 12 de diciembre de 2006, relativa a
los servicios en el mercado interior (BOE núm. 40, de 16.02.2011).
http://www.boe.es/boe/dias/2011/02/16/pdfs/BOE-A-2011-3015.pdf
NAVARRA
Ley Foral 7/2010, de 6 de abril, de modificación de la Ley Foral 6/1990, de 2 de julio, de la
Administración Local de Navarra, para su adaptación a la directiva 2006/123/CE, relativa a los
servicios en el mercado interior (BOE num. 129 de 27/05/2010)
http://www.boe.es/boe/dias/2010/05/27/pdfs/BOE-A-2010-8423.pdf
Ley Foral 6/2010, de 6 de abril, de modificación de diversas leyes forales para su adaptación a la
Directiva 2006/123/CE, relativa a los servicios en el mercado interior.Comunidad Foral de Navarra
(BOE 129 de 27/05/2010)
http://www.boe.es/boe/dias/2010/05/27/pdfs/BOE-A-2010-8422.pdf
Ley Foral 15/2009, de 9 de diciembre, de medidas de simplificación administrativa para la puesta en
marcha de actividades empresariales o profesionales (BOE núm. 13, 15.01.2010)
http://www.boe.es/boe/dias/2010/01/15/pdfs/BOE-A-2010-596.pdf
PAIS VASCO
Ley 7/2008, de 25 de junio, de segunda modificación de la Ley de la Actividad Comercial (BOPV
núm.128, de 07.07.2008)
http://www.boe.es/aeboe/consultas/bases_datos/doc.php?id=BOPV-p-2008-90011
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ANNEX III
Sources of information
Web Ministerio de Economía (Ministry of Economy)
http://www.meh.es/esES/Areas%20Tematicas/Internacional/Union%20Europea/Paginas/Aplicacion%20Directiva%20Servic
ios%20Espana.aspx
Informe sobre la transposición de la Directiva Servicios en España (28.04.2010) y Anexo (Report on
the transposition of the Services Directive in Spain).
http://www.meh.es/Documentacion/Publico/PortalVarios/Gesti%C3%B3n%20del%20Portal/10-0429-%20Informe%20final%20DS.pdf
http://www.meh.es/Documentacion/Publico/PortalVarios/Gesti%C3%B3n%20del%20Portal/10-0429%20-Anexo%20informe%20final%20de%20transposici%C3%B3n%20ds.pdf
Directiva de Servicios: Manual de Evaluación para las Entidades Locales (FEMP) ( The Services
Directive: Assessment Handbook for Local Entities, published by Spanish Federation of
Municipalities and Provinces)
http://webnueva.fecam.es/documentos/directiva_servicios/DIRECTIVA_SERVICIOS_Manual_evalua
cion_para_EELL.pdf
Fernández Barjau, B., Fernández Péresz, M. Reformas estructurales en tiempos de crisis. La
aplicación de la Directiva de servicios y el nuevo modelo de regulación, Presupuesto y Gasto Público
59/2010: 143-156, Secretaría General de Presupuestos y Gastos, 2010, Instituto de Estudios Fiscales
http://www.ief.es/documentos/recursos/publicaciones/revistas/presu_gasto_publico/59-09.pdf
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