The new Andalusian government, formed by the PP and Vox alliance, has withdrawn all regional funding for Low Emission Zones (Zonas de Bajas Emisiones, ZBE). The move affects cities’ ability to implement or maintain these anti-pollution areas. Under Article 14.3 of Spain’s Climate Change and Energy Transition Law, municipalities with more than 50,000 residents must establish a ZBE. The law sets the national obligation but gives municipalities discretion over a zone’s perimeter and operating hours. Municipalities also set exemptions and enforcement rules, so a formally established zone does not necessarily impose uniform restrictions or active fines. The statutory requirement remains in place even when regional authorities withhold funding.
The latest audit by the Cámara de Cuentas found that only seven of the thirty Andalusian municipalities legally obliged to operate a ZBE had a functioning one. The others either lacked technical projects, faced delays or had seen their plans stall. The new coalition agreement explicitly states that the Junta de Andalucía will not promote, finance, subsidize or incentivize the creation or expansion of ZBEs with its own funds. In municipalities where Vox is part of the local government, restrictions on ZBEs have already been tightened or the zones rendered ineffective.
Research led by Habtamu Beshir of University College London and published in the Journal of Economic Behavior and Organization points to potential benefits from these zones. The study, focused on London, found that ZBEs and Ultra Low Emission Zones (ULEZ) reduce harmful pollutants such as nitrogen dioxide and particulate matter. It also found measurable improvements in public health and economic savings. The study documented an 18.5% drop in sick leave, a 6.8% reduction in general health issues and a 10.2% decrease in respiratory illnesses, alongside impressive savings for local administrations.
Despite these findings, implementation of ZBEs in Andalusia remains limited. The Cámara de Cuentas lists several major cities, including Granada, Huelva, Cádiz, Marbella and Jerez de la Frontera, as failing to meet legal requirements. Some municipalities have received public funding for technical planning, but actual deployment lags behind. In many cases, insufficient staff, contractor delays, legal challenges or ongoing revisions of urban mobility plans have been cited as reasons for the lack of progress, alongside financial constraints.
In Málaga, Vox representatives have publicly called for the abolition of the ZBE, arguing that it unjustifiably restricts freedom of movement and economic activity. In October 2025, Antonio Alcázar, Vox’s spokesperson on Málaga City Council, called for the zone’s cancellation and said it “did not respond to environmental criteria, but to the City Council’s revenue-raising lead.” The zone also faced a court challenge. In May 2026, the High Court of Justice of Andalusia annulled Málaga’s ordinance, finding unequal treatment between vehicles belonging to residents registered in the city and those belonging to people living elsewhere. It also found that the economic reports in the approval process lacked sufficient detail.
Following the ruling, Málaga’s municipal government said it would return approximately €1.38 million collected in ZBE fines and suspend unpaid penalties. The decision covers penalties already paid and those still outstanding. Enforcement under the annulled structure remains suspended while the city considers a legally compliant replacement. Antonio Luna, Vox’s representative in Málaga’s provincial institution, said the party would monitor the process and called for residents to receive every euro collected. The case shows how municipal discretion over zone design and enforcement remains bounded by legal requirements, including equal treatment and adequate economic documentation.
The Cámara de Cuentas has identified widespread deficiencies even in cities where ZBEs are operational, such as Córdoba and Sevilla. Projects often lack proper technical documentation or clear objectives. Some also lack effective monitoring systems. The audit reported that none of the ten established ZBEs met the legal deadline for implementation or enforced penalties for violations, undermining their deterrent effect. Málaga’s subsequent court ruling and the suspension of fines also show how legal challenges can disrupt enforcement after a zone has been put in place.
The Andalusian case is not isolated. Similar political dynamics have played out in other regions, including Valencia, where the PP and Vox coalition has pushed through controversial reforms affecting social aid and tax policy. For more on these developments, see the analysis of recent legislative changes in Valencia's new social aid and tax rules.
Low Emission Zones are a basic tool in European urban policy to combat air pollution and improve public health. The World Health Organization estimates that air pollution causes 4.2 million premature deaths globally each year. In Spain, the national obligation applies to municipalities with more than 50,000 residents, but practical restrictions and enforcement vary by municipality. The Andalusian dispute highlights how national legal duties interact with local decisions on zone design, regional funding choices and judicial review. Without regional support, municipalities may find it harder to meet their obligations. Málaga’s case shows that a replacement regime must also satisfy procedural and equality requirements. The statutory structure is set out in Article 14.3 of Law 7/2021.
