COMMISSION STAFF WORKING DOCUMENT Monitoring Road Safety Progress in the EU - Spain Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Report on the Implementation of the EU Road Safety Policy Framework at the Mid-Point
Date: 2026-02-13
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: EU investment, Spain, accident prevention, common transport policy, innovation, road safety, road transport, transport accident, transport infrastructure, transport statistics

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 13.2.2026  SWD(2026) 58 final  COMMISSION STAFF WORKING DOCUMENT Monitoring Road Safety Progress in the EU - Spain Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Report on the Implementation of the EU Road Safety Policy Framework at the Mid-Point {COM(2026) 77 final} - {SWD(2026) 33 final} - {SWD(2026) 34 final} - {SWD(2026) 35 final} - {SWD(2026) 36 final} - {SWD(2026) 37 final} - {SWD(2026) 38 final} - {SWD(2026) 39 final} - {SWD(2026) 40 final} - {SWD(2026) 41 final} - {SWD(2026) 42 final} - {SWD(2026) 43 final} - {SWD(2026) 44 final} - {SWD(2026) 45 final} - {SWD(2026) 46 final} - {SWD(2026) 47 final} - {SWD(2026) 48 final} - {SWD(2026) 49 final} - {SWD(2026) 50 final} - {SWD(2026) 51 final} - {SWD(2026) 52 final} - {SWD(2026) 53 final} - {SWD(2026) 54 final} - {SWD(2026) 55 final} - {SWD(2026) 56 final} - {SWD(2026) 57 final} - {SWD(2026) 59 final}  
 
 
Contents 

1.  Summary ........................................................................................................................ 2 

2.  Road Safety Strategy and Measures .............................................................................. 3 

2.1.  Road Safety Strategy.................................................................................................. 3 

2.2.  Road Safety Governance............................................................................................ 4 

2.3.  Main Safety Issues ..................................................................................................... 4 

2.4.  Road Safety Targets ................................................................................................... 4 

2.5.  Road Safety Measures................................................................................................ 5 

3.  Road Safety Progress ..................................................................................................... 6 

3.1.  Road Safety Outcomes ............................................................................................... 6 

3.2.  Road Safety Performance Indicators ....................................................................... 10 

4.  Monitoring Road Safety Strategy Implementation ...................................................... 11 

4.1. 

Implementation Progress ......................................................................................... 11 

4.2.  Best Practices ........................................................................................................... 14 

4.3.  Gaps ......................................................................................................................... 16 

5.  Conclusions and Recommendations ............................................................................ 17 

1 

 
 
 
 
 
 
 
 
Spain 

1. Summary 

In 2024, Spain  performed  better than  the  EU average  (45), with  37 fatalities per million 
inhabitants. Compared to  2019, an increase of 2% in  road fatalities was  observed.  In 2023, 
9,265 people were seriously injured in road crashes, which is 8% higher than the respective 
figure in 2019.  

Compared to the EU average, Spain shows a relatively high proportion of powered two-wheeler 
fatalities (27%) and fatalities on motorways (19%). In 2019, vulnerable road users (pedestrians, 
cyclists  and  motorcyclists)  exceeded  50%  of  total  fatalities  for  the  first  time  in  the  entire 
historical record. The most frequent causes of crashes were driver distraction and driving under 
the influence of alcohol or drugs.  

Aligned with the proposal of the European Commission, Spain’s Road Safety Strategy 2030 
set targets of halving the numbers of road fatalities and serious injuries by 2030 compared 
to  2019. Also, specific goals  for strategic groups have been defined,  concerning vulnerable 
groups and modes, road users aged more than 64 years old and casualties on urban roads. For 
that  purpose,  four  indicator  scorecards  have  been  established  to  monitor  these  goals,  with 
different ranges of variation for fatal and serious crashes between 2019 and 2030. 

The Road Safety Strategy aims to be the roadmap for the achievement of the targets in 2030, 
while every two years Action Plans with the most relevant road safety  actions are defined. 
Thus, 61 Action Lines divided in 9 Strategic Areas are specified in the Strategy, which provide 
guidance for the specific actions that will be implemented in the successive Action Plans. 

Based on the latest available data, in 2024, Spain is currently not on target to meet the 2030 
targets.  Concerning  the  specific  targets,  only  the  numbers  of  killed  or  seriously  injured 
children (0-14 years old) and van/lorry occupants on interurban roads were below the target 
values for 2023.   

Regarding progress in the implementation of the road safety actions foreseen in the national 
strategy  for  the  period  2021-2024,  there  is  a  smooth  implementation  flow  without  any 
particular gaps being reported. Based on the self-reported assessment, 168 actions have been 
planned for the examined period, with almost half of them being completed (78). 11 actions 
are not yet applicable, 1 action has not started, while the remaining actions are on track. It is 
noted that in all examined road safety areas of the 6 pillars, the starting level in 2021 is assessed 
as  medium.  The  post-crash  care  pillar  is  more  advanced,  with  8  out  of  11  actions  being 
completed. Also, more than half of actions of the pillars Safe Roads and Safe Vehicles have 
been  completed,  followed  by  the  pillars  of  Road  Safety  Management  and  Safe  Road  User 
Behaviour.  

A series of best practices is available for Spain, covering all pillars. Among the best practices, 
legislative changes for the further promotion of automation, incorporation of new ADAS in 
driving  licence  exams,  or  the  transposition  of  EU  directive  concerning  road  infrastructure 
safety management are mentioned. 

Furthermore, focus has been given on road safety in urban areas and vulnerable road users. 

2 

 
 
 
 
 
 
 
 
 
It is highlighted that Spain is one of the first countries that established a 30km/h speed limit on 
urban roads. Also, the motion of biannual meetings of cities for the exchange of good road 
safety practices has been established, while successful examples of inclusion of road safety in 
sustainable urban mobility plans are also available. Additionally, campaigns focused on VRUs, 
new mobility users and speeding have been carried out in order to raise further awareness, and 
specific manuals for the PMD users have been developed.  

A series of good practices concerning powered two-wheelers was reported, which is a target 
group of high interest for Spain. These practices concern training courses on safe riding for 
delivery  motorcycles  and  mopeds,  the  identification  of  road  sections  with  high  motorcycle 
crash rates and the installation of special signage, which is updated on an annual basis, as well 
as the publication of the effectiveness analysis of motorcycle safety systems. 

It  is  also  worth  noting  that  new  technologies  have  been  exploited  for  enforcement  (new 
surveillance  equipment)  and  post-crash  care  (connected  signalling  device  to  replace  the 
warning triangle).  

Progress  in  the  implementation  of  the  foreseen  actions  appears  to  be  mainly  well  on  track, 
however, Spain is making slow progress towards meeting its targets. The possible way forward 
to address this could be by:  

• 

reviewing the degree of implementation of the actions and consider reinforcing the road 
safety measures accordingly, 

•  exploring any other relevant activities. 

2. Road Safety Strategy and Measures 

2.1.  Road Safety Strategy 

The  Road  Safety  Strategy  2030  of  Spain  was  developed  by  the  National  Road  Safety 
Observatory. The Strategy is based on the basic principle of the Safe System, that human error 
shall not have deadly or serious consequences, and acts in a cross-cutting and comprehensive 
manner  on  road  users,  the  infrastructure  and  the  environment,  the  vehicles  and  post-crash 
response  through  legislation,  education  and  training,  monitoring,  technology  and  improved 
data and governance1. 

The  strategy  aims  to  be  a  roadmap  towards  2030,  while  every  two  years  Action  Plans  are 
defined with the most relevant road safety actions that should be undertaken.  

Table 27.1: National road safety strategy  

Timeframe 
Lead Authority 

Link 

Spain 
2021-2030 
Directorate-General for Traffic (DGT) 
https://seguridadvial2030.dgt.es/export/sites/sv2030/.galleries/descargas/Road_
Safety_Strategy_2030_Summary_EN.pdf  

1  National  Road  Safety  Observatory,  2022.  Road  Safety  Strategy  2030  (Summary).  Directorate-General  for 
Traffic, available at:  
https://seguridadvial2030.dgt.es/export/sites/sv2030/.galleries/descargas/Road_Safety_Strategy_2030_Summary
_EN.pdf 

3 

 
 
 
 
 
 
 
 
 
 
2.2.  Road Safety Governance 

The Directorate General for Traffic (DGT) of the Ministry of Interior and the High Road Safety 
Council of Spain are responsible for the formulation of the national road safety strategy. 
The High Road Safety Council is comprised by ministries and national authorities, the regional 
governments of autonomous communities, local entities, as well as public and private actors. 

The Directorate General for Traffic of the Ministry of Interior is responsible for the monitoring 
of road safety developments in the country. 

2.3.  Main Safety Issues 

Based on the analysis of road safety developments of the period 2009-2019 by the National 
Road Safety Observatory, the following main safety issues have been identified for Spain2: 

•  The majority of fatalities in road crashes were recorded on interurban roads (70%).  
o  Most fatalities were recorded on single carriageway roads (77% of all fatalities on 

interurban roads). 

•  Vulnerable road users (pedestrians, cyclists and motorcyclists) exceeded 50% of all 

road fatalities for the first time in the entire historical record.  
o  82% of all fatalities on urban roads were vulnerable road users. 

• 

In 2019, motorcycle users accounted for 24% of the total number of road fatalities, 
even though motorcycles constituted only 10% of the total vehicle fleet.  
o  43% of them died on urban roads and 57% on interurban roads. 

•  People over 64 years of age accounted for 28% of the road deaths in 2019, even though 

they represent 19% of the population. 

•  The most frequent causes of crashes were driver distraction and driving under the 

influence of alcohol or drugs.  

Additional critical road safety factors are mentioned in the Spanish Road Safety Strategy. 

2.4.  Road Safety Targets 

Aligned with the proposals of the United Nations and the European Commission, the following 
targets have been set in the National Road Safety Strategy 2030 of Spain: 

•  By 2030, a 50% reduction in fatalities compared to 2019 (1,755). 
•  By 2030, a 50% reduction in serious injuries compared to the 2019 baseline (8,613, 

according to police records). 

2  National  Road  Safety  Observatory,  2022.  Road  Safety  Strategy  2030  (Summary).  Directorate-General  for 
Traffic, available at:  
https://seguridadvial2030.dgt.es/export/sites/sv2030/.galleries/descargas/Road_Safety_Strategy_2030_Summary
_EN.pdf 

4 

 
 
 
 
 
 
 
 
 
 
 
 
 
Specific goals for strategic groups have been also set: 

•  Vulnerable groups and modes, keeping shares: 

o  Not above 50%, regarding fatalities. 
o  Not above 60%, regarding fatalities or serious injuries. 

•  People over 64, keeping shares: 

o  Not above 30%, regarding fatalities 
o  Not above 20%, regarding fatalities or serious injuries. 

•  Urban roads, keeping shares: 

o  Not above 30%, regarding fatalities 
o  Not above 50%, regarding fatalities or serious injuries. 

For that purpose, four indicator scorecards have been defined to monitor the goals above, 
with different ranges of variation for fatal and serious crashes between 2019 and 2030. 

Table 27.2: Indicator scorecard for mode of travel 

Interurban roads 

Urban roads 

Fatalities or  
serious injuries 

Pedestrians 

Bicycles 

Personal light electric vehicles* 

Motorcycles/mopeds 

Cars  

Vans and lorries 

Buses 

* PLEV data for 2020 

2019 

339 

372 

5 

1,667 

2,575 

476 

6 

Reduction range in 
2030 

50% 

10-50% 

- 

40-50% 

50-65% 

50-55% 

<5 

2019 

1,730 

354 

100 

1,999 

504 

50 

33 

Reduction range in 
2030 

50% 

15-50% 

- 

50% 

50-70% 

50-65% 

<5 

Table 27.3: Indicator scorecard for age 

Fatalities or serious 
injuries 

0-14 years old 

15-24 years old 

25-64 years old 

>64 years old 

Interurban roads 

Urban roads 

2019 

Reduction range in 2030 

2019 

Reduction range in 2030 

125 

715 

3,803 

858 

50-65% 

50-60% 

50% 

35-50% 

197 

680 

2,843 

1,057 

50-70% 

50-60% 

50% 

40-50% 

2.5.  Road Safety Measures 

In the Spanish Road Safety Strategy for the decade 2021-2030, 9 major strategic Areas are 
defined, as shown in the table below. Each of these nine strategic Areas develops its field of 
action. In total, 61 Action Lines are specified in the strategy, which provide guidance for the 
specific actions that will be implemented in the successive Action Plans.  

5 

 
 
 
 
 
 
  
 
 
 
 
Table 27.4: Road safety areas and number of action lines 

Areas 
1.  Trained and competent individuals 
2.  Zero tolerance to risk behaviours 
3.  Safe cities 
4.  Safe roads 
5.  Safe and connected vehicles 
6.  Effective and fair response to accidents 
7.  Data and knowledge for risk-based management 
8.  Safe administrations, companies and organisations 
9.  Integrated policies and international cooperation 
Total 

3.  Road Safety Progress 

3.1.  Road Safety Outcomes 

Action Lines 
8 
7 
7 
7 
8 
4 
7 
7 
6 
61 

In Spain, 1,785 people were killed in 2024 and 9,265 people were seriously injured in road 
crashes in 2023. Based on data for 2024, Spain ranked 10th in terms of the lowest numbers of 
road fatalities in the EU. In fact, 37 road fatalities per million inhabitants were recorded that 
year, which is below the EU average (45).  

Between  2019  and  2024,  the  number  of  fatalities  increased  by  2%  while  the  number  of 
serious injuries increased by 8% between 2019 and 2023.  

Figure 27.1 Mortality rates by country, 2024  

Sources: CARE database on road crashes; population data from Eurostat (online data code demo_pjan). 

Thus,  in  2023,  Spain  is  currently  not  on  track  to  meet  the  2030  targets  of  halving  the 
numbers of fatalities and serious injuries. More specifically, the observed number of fatalities 
was about 31% higher than the target value in 2024. Similarly, the observed number of serious 
injuries was 32% higher (2,218 serious injuries) than the target value in 2023. 

6 

 
 
 
 
 
 
 
 
 
 
Figure 26.2 Road fatalities and target 2030  
(Source CARE database)3 

Figure 26.3 Serious road injuries and target 2030  
(Source: CARE database)4  

Concerning the remaining specific targets, data on fatalities and serious injuries per transport 
mode and age group are available for 2023. Only killed or seriously injured children aged 

3 It is noted that the global COVID-19 pandemic had an impact on the CARE data for 2020 and 2021 for many 
European countries. Traffic volumes dropped sharply during the pandemic due to traffic restrictions, which was 
associated with a significant drop in road traffic crashes and fatalities. 

7 

 
 
 
 
 
 
 
  
 
 
0-14 years old on interurban roads and killed or seriously injured occupants of vans and 
lorries  on  interurban  roads  are  below  the  target  values  for  this  year.  For  the  remaining 
targets  the differences between observed and target  values for 2023 vary between 18% and 
55%.  

Table 27.5: Monitoring of indicators by mode of travel on interurban roads, 2023 

Fatalities or  
serious injuries 

Pedestrians 

Bicycles 

Personal light electric vehicles* 

Motorcycles/mopeds 

Cars  

Vans and lorries 

Buses 

2019 
(Baseline) 

339 

372 

5 

1,667 

2,575 

476 

6 

Target 2023 

Observed 2023 

Difference* 

277 

304-335 

- 

1,364-1,425 

1,966-2,107 

381-389 

<5 

303 

411 

- 

1,822 

2,610 

341 

26 

+26 

+76 

- 

+397 

+503 

-40 

+21 

* Difference of observed value from the upper limit of targeted values 

Table 27.6: Monitoring of indicators by mode of travel on urban roads, 2023 

Fatalities or  
serious injuries 

Pedestrians 

Bicycles 

Personal light electric vehicles* 

Motorcycles/mopeds 

Cars  

Vans and lorries 

Buses 

2019 
(Baseline) 

1,730 

354 

100 

1,999 

504 

50 

33 

Target 2023 

Observed 2023 

Difference* 

1,415 

290-335 

- 

1,636 

376-412 

38 

22 

1,792 

438 

- 

2,141 

514 

59 

52 

+377 

+103 

- 

+505 

+102 

+21 

+30 

* Difference of observed value from the upper limit of targeted values 

Table 27.7: Monitoring of indicators by age on interurban roads, 2023 

Fatalities or serious 
injuries 

2019 
(Baseline) 

Target 2023 

Observed 
2023 

Difference* 

0-14 years old 

15-24 years old 

25-64 years old 

125 

715 

3,803 

95-102 

559-585 

3,112 

>64 years old 

858 
* Difference of observed value from the upper limit of targeted values 

702-749 

96 

754 

3,870 

882 

-6 

+169 

+758 

+133 

8 

 
 
 
 
 
 
 
 
 
 
 
Table 27.8: Monitoring of indicators by age on urban roads, 2023 

Fatalities or serious 
injuries 

2019 
(Baseline) 

Target 2023 

Observed 
2023 

Difference* 

0-14 years old 

15-24 years old 

25-64 years old 

197 

680 

2,843 

147-161 

532-556 

2,326 

>64 years old 
* Difference of observed value from the upper limit of targeted values 

865-903 

1,057 

211 

786 

3,213 

1,151 

+50 

+230 

+887 

+248 

Compared  to  the  EU  average,  the  distribution  of  fatalities  in  Spain  shows  a  relatively  high 
proportion of powered two-wheelers and fatalities on motorways4. In fact, 19% of fatalities 
were recorded on motorways in 2023 and 27% of fatalities were motorcycle or moped riders. 

Additionally, an overview of the evolution of road fatalities and serious injuries for the years 
2019 and 2023 (year with the latest available detailed crash data) is provided below for specific 
types of roads, crashes and road users. Compared to 2019, the number of killed cyclists and 
passenger cars occupants in road crashes increased by 10%, while the total number of fatalities 
increased by 3% over the same period. A positive change was observed only for pedestrian 
fatalities, with a 7% decrease being recorded. Also, the number of fatalities on motorways and 
inside urban areas remained stable. 

Table 27.9: Evolution of road fatalities, 2019-2023 

Fatalities 

Total road fatalities 

Inside urban areas 

Outside urban areas 

Motorways 

Single vehicle crashes 

Multi vehicle crashes 

Car occupants 

PTW riders 

Cyclists 

Pedestrians 

2019 

1,755 

519 

896 

340 

595 

807 

641 

466 

80 

381 

2023 

1,806 

518 

943 

345 

618 

884 

703 

485 

90 

353 

%  
in 2023 

% change 
2019-2023 

- 

29% 

52% 

19% 

34% 

49% 

39% 

27% 

5% 

20% 

+3% 

0% 

+5% 

+1% 

+4% 

+10% 

+10% 

+4% 

+13% 

-7% 

Regarding serious injuries, the highest increases during the period 2019-2023 were recorded 
among cyclists (17%) and seriously injured road users inside urban areas (14%), while the total 
number of serious injuries increased by 8%. Only the number of seriously injured people in 
crashes  outside  urban  areas  (on  non-motorways)  and  the  number  of  seriously  injured  car 
occupants  showed a slight  decrease of 1% over this period. It  is  noted that  in  contrast  with 
pedestrian fatalities, the number of seriously injured pedestrians increased by 3%.  

4  European  Commission  (2023),  Country  Profile  Spain.  Road  Safety  Observatory.  Brussels,  European 
Commission, Directorate General for Transport. 

9 

 
 
 
 
 
 
 
 
 
 
Table 27.10: Evolution of serious injuries, 2019-2023 

Serious Injuries 

Total serious injuries 

Inside urban areas 

Outside urban areas 

Motorways 

Single vehicle crashes 

Multi vehicle crashes 

Car occupants 

PTW riders 

Cyclists 

Pedestrians 

2019 

8,613 

4,310 

3,399 

904 

2,550 

4,413 

2,438 

3,200 

646 

1,688 

2023 

9,265 

4,920 

3,381 

964 

2,773 

4,797 

2,421 

3,478 

759 

1,742 

%  
in 2023 

% change 
2019-2023 

- 

53% 

36% 

10% 

30% 

52% 

26% 

38% 

8% 

19% 

+8% 

+14% 

-1% 

+7% 

+9% 

+9% 

-1% 

+9% 

+17% 

+3% 

3.2.  Road Safety Performance Indicators 

Performance indicators are suggested to be used for the monitoring of road safety performance 
in the Road Safety Strategy 2030, without any specific target having been set. In 2022, the use 
rates of seatbelts  and helmet  in Spain  were higher than the EU average. However, the self-
reported drink-driving rate was higher than the EU average. Also, the Spanish passenger car 
fleet is somewhat older than the EU average. 

Table 27.11: Road Safety Performance Indicators, 2022 – 2025 (Source: ERSO, Country 
Profiles) 

Speeding5 
% of passenger cars travelling within speed limits a 

Motorways 
Rural Roads 
Urban Roads 

Seat belt & CRS use rates (%) a*,b 

Front 
Rear 
Child restraint systems (roadside observations) 
Child restraint systems (in-vehicle inspections) 

Helmet use rates (%) a 

PTW driver 
PTW passenger 
Cyclist 

DUI of Alcoholc 
(self-reported) 

Spain 

EU 

2022 

2025 

2022 

2025 

50.8 
42.6 
51.0 

95.9 
92.8 
36.4 
51.1 

99.4 
96.2 
52.6 

64.0 
39.0 
66.0 

98.6 
98.3 
90.5 
/ 

98.4 
97.0 
51.3 

- 
- 
- 

93.1 
75.3 
67.0 
- 

97.0 
94.4 
37.8 

- 
- 
- 

92.4 
69.9 
83.3 
- 

97.6 
97.0 
34.5 

5 An EU average is not available for speeding, due to different legal speed limits among countries, which does not 
allow for a straightforward comparison.  

10 

 
 
 
 
 
 
 
 
% of car drivers who have driven at least once in the 
last 30 days over the legal limit 

Driver Distraction a 

% of drivers not using hand-held mobile 
device/phone while driving 

Vehicle Safety 

Spain 

2022 

2025 

17.2 

- 

EU 

2025 

11.8 

2022 

11.8 

90.9 

96.4 

94.8 

94.5 

% of new passenger cars rated with 4 EuroNCAP 
stars and above a 
Average age of passenger car fleet (years)d 

84.0 

13.9 

83.0 

14.2 

83.6 

12.3 

82.7 

12.5 

Sources: a Baseline and Trendline projects, b ETSC (2022), c ESRA3 project (2024), d ACEA (2024, 2025), Notes: 
*2025 data only for weekdays 

4. Monitoring Road Safety Strategy Implementation 

4.1.  Implementation Progress 

Road Safety Management 

Spain starts from a medium level in all road safety areas related to Road Safety Management.  

Table 27.12: Self-reported assessment of implementation progress of measures related to road 
safety management 

B1 

Road Safety Management 

1 

2 

3 

4 

5 

National road safety authority 

National road safety budget 

Road safety legislation 

National road safety observatory 

Other 

Baseline 
Assessment (2021) 

Progress 
(2021-2024) 

medium 

medium 

medium 

medium 

medium 

on track 

on track 

on track 

on track 

on track 

During the period 2021-2024, some progress has been made in the implementation of the road 
safety actions related to all areas, with 45% of road safety actions having been completed.  

More  specifically,  concerning  the  national  road  safety  authority,  out  of  the  16  planned 
actions, 7 have been completed and 9 are on track. Regarding the establishment of a national 
road safety budget, 3 actions have been planned, of which 1 has been completed and two are 
on track. 

Also, 8 actions related to road safety legislation have been planned, of which 5 have been 
completed and 3 are on track. Additionally, half of the planned road safety actions (8) regarding 
the operation of the national road safety observatory have been completed, while 7 actions 
are on track and 1 is not planned to start in this period. 

8 further actions  related to the pillar of road  safety management have been planned in 
Spain, of which 3 have been completed, 3 are on track,1 has not started and 1 is not scheduled 

11 

 
 
 
 
 
 
 
 
 
 
 
 
for this period.  

Safe Road User Behaviour 

In relation to the pillar of Safe Road User Behaviour, Spain starts from a medium level in 
2021. In total, 65 road safety actions have been planned for this pillar and up to 2024, 40% of 
the actions have been completed.  

Table 27.13: Self-reported assessment of implementation progress of measures related to road 
user behaviour 

B2 

Safe Road User Behaviour 

1 

2 

3 

4 

5 

6 

7 

Enforcement 

Education 

New drivers training 

Communication campaigns 

Measures for vulnerable road users 

Measures for professional drivers 

Other 

Baseline 
Assessment (2021) 

Progress 
(2021-2024) 

medium 

medium 

medium 

medium 

medium 

medium 

medium 

on track 

on track 

on track 

on track 

on track 

on track 

on track 

Regarding enforcement, out of the 12 planned actions only 1 has been completed, while the 
remaining 11 are on track. Also, concerning the area of education, out of the 11 planned road 
safety actions, 4 have been completed and 3 are on track, while 4 are not scheduled for this 
period. 

More  progress  has  been  made  in  the  training  of  novice  drivers,  with  8  out  of  13  actions 
completed and 5 being on track. Additionally, 3 actions related to road safety campaigns are 
foreseen for this period, with 2 of them completed and 1 on track.  

Furthermore, 6 actions have been planned in relation to the vulnerable road users, of which 
2 have been completed and 4 are on track. Another set of 6 actions have been considered for 
professional drivers, with 2 completed and 1 on track. The remaining 3 were not planned to 
start in this term. 

14 additional road safety actions have been planned in the Spanish road safety strategy for the 
examined  period.  Half  of  them  have  been  completed,  5  are  on  track  and  2  are  planned  for 
another period. 

Safe Speeds 

Regarding the Safe Speeds pillar, Spain starts from a medium level in all related road safety 
areas. All actions related to the update of speed limits have been completed, while the actions 
of the remaining road safety areas are on track. It is noted that all actions related to the pillar 
of safe speeds are already included in the remaining pillars.  

12 

 
 
 
 
 
 
 
 
 
 
 
 
Table 27.14: Self-reported assessment of implementation progress of measures related to safe 
speeds 

B3 

Safe Speeds 

1 

2 

3 

4 

5 

Update of speed limits 

Enforcing speed limits 

Campaigns on speeding 

Monitoring speeding 

Other 

Safe Roads 

Baseline 
Assessment (2021) 

medium 

medium 

medium 

medium 

medium 

Progress 
(2021-2024) 

completed 

on track 

on track 

on track 

on track 

Regarding the Safe Roads pillar, based on the self-reported assessment, baseline is assessed as 
medium. In total, half of all actions planned for this pillar have been completed by 2024.  

More specifically, for City mobility & safety plans and Urban infrastructure for VRUs, all 
actions (5 and 1 respectively) have been completed.  

Concerning  the  safety  area  of  rural  roads  safety  interventions,  and  motorways  safety 
management, all measures are on track. These actions, however, are already included in other 
road safety areas, so no further information is provided here.  

Also, for the road safety area of road design standards, 5 actions have been planned, of which 
2 are completed and 3 are on track. Similarly, related to road safety audits and inspections, 
7 actions have been planned, of which 2 have been completed and 5 are on track.  

Table 27.15: Self-reported assessment of implementation progress of measures related to safe 
roads 

B4 

Safe Roads 

1 

2 

3 

4 

5 

6 

7 

City mobility & safety plans 

Urban infrastructure for VRUs 

Rural roads safety interventions 

Motorways safety management 

Road design standards 

Road safety audit and inspection 

Other 

Baseline 
Assessment (2021) 

medium 

medium 

medium 

medium 

medium 

medium 

medium 

Progress 
(2021-2024) 

completed 

completed 

on track 

on track 

on track 

on track 

on track 

6 further actions related to the pillar of Safe Roads have been planned in Spain, of which 2 
have been completed and 4 are on track.  

Safe Vehicles 

In relation to the pillar of Safe Vehicles, Spain starts from a medium level in all related areas. 
In total, up to 2024, 17 actions have been planned, with 9 of them being completed.  

13 

 
 
 
 
 
 
 
 
 
 
Table 27.16: Self-reported assessment of implementation progress of measures related to safe 
vehicles 

B5 

Safe Vehicles 

1 

2 

3 

4 

5 

Fleet renewal 

Promotion of ADAS 

Technical vehicle inspection 

Automation preparation 

Other 

Baseline 
Assessment (2021) 

Progress 
(2021-2024) 

medium 

medium 

medium 

medium 

medium 

on track 

on track 

on track 

completed 

on track 

The implementation of actions related to the area of the  automation preparation has been 
completed. For the examined period, 1 action had been planned and has been completed, which 
concerns the authorisation of on-road tests or research trials with automated vehicles.  

The  implementation  of  actions  related  to  fleet  renewal  are  on  track,  with  1  action  being 
completed  and  1  being  on  track.  Also,  the  promotion  of  Advanced  Driver  Assistance 
Systems (ADAS) has progressed well, with 4 out of 6 planned actions completed and 2 being 
on track.  

Regarding the technical vehicle inspections, 2 out of 3 planned actions have been completed 
and 1 is on track.  

5 further actions related to the pillar of safe vehicles have been planned in Spain, of which 
2 have been completed and 3 are on track.  

Post Crash Care 

Regarding the Post-Crash Care pillar, Spain also starts from a medium level in 2021 in both 
key road safety areas. More progress has been made than in the remaining pillars, with 8 out 
of 11 post-crash actions already completed. 

More  specifically,  7  actions  have  been  planned  for  the  reduction  of  EMS  reaction  time,  of 
which 6 are completed and 1 is on track. Also, out of 4 actions related to the support of injured 
people, half of them have been completed and half are on track.  

Table 27.17: Self-reported assessment of implementation progress of measures related to post 
crash care 

Baseline 
Assessment (2021) 

medium 

medium 

Progress 
(2021-2024) 

on track 

on track 

B6 

Post Crash Care 

1 

2 

Reduce EMS reaction time 

Support people injured 

4.2.  Best Practices 

A series of best practices is available for Spain: 

14 

 
 
 
 
 
 
 
 
 
 
 
Road Safety Management: 

•  Meeting of cities for road safety: The Government in coordination with the Spanish 
Federation of Municipalities and Provinces organise a Meeting of Cities to exchange 
good practices on road safety on a more or less biannual basis. This motion started in 
2008. The last meeting was held in 2022, with main topic road safety and sustainable 
mobility. 

•  Estimation of the value of statistical life and injury: Update of estimates of the Value 
of a Statistical Life (VoSL) and the Value of Preventing a Fatality (VPF) in the context 
of traffic crashes, updating also the methodology applied in 2011 for the first time. 
•  Open  Statistical  Data:  The  Directorate  General  for  Traffic  (DGT)  provides  openly 
statistical traffic and road safety data, and related publications and press releases. 
•  Including road safety criteria in public purchases: The use of public tendering as an 
instrument to improve road safety and support safe and sustainable mobility is pursued. 
Related guides and application examples are available.  

Safe Road User Behaviour: 

•  Application of new technologies to enforcement: New surveillance equipment is used 

to detect traffic violations and high-risk sections. 

•  Including  road  safety  education  in  school  curriculum:  educational  resources  and 
programs facilitating the teaching-learning process of road safety contents and values 
have been introduced in preschool and primary education.  

•  Incorporation of new ADAS in driving exams: This instruction sets out the driving 
assistance systems that may be used during the aptitude and behavioural control tests, 
as well as the qualification criteria to be applied where appropriate. 

•  “Information pills” for new mobility users: Campaign video with basic rules and tips 

for safe travel for new mobility users. 

•  Road  sections  with  high  motorcycle  crash  rates:  New  signage  is  introduced  for 
marking  100 road sections with  high  motorcycle crash rates. A vertical  sign  will be 
placed  at  the  beginning  of  the  identified  section  and  will  report  the  number  of 
motorcyclists involved in road crashes (killed and injured) in the last 5 years. Data on 
the signs will be updated each year.  

•  Courses on safe driving for motorcycle and moped riders: A training course that is 
included  in  the  catalogue  of  training  needs  of  the  State  Public  Employment  Service 
(SEPE), aiming to improve the driving techniques of urban delivery motorcycles and 
mopeds  to  prevent  and  anticipate  risky  situations,  adopting  good  practices  both  in 
driving and in relation to equipment.  

Safe Speeds: 

•  Campaign 'A 30 hay más vida': A campaign on the road safety benefits of 30km/h 

speed limit on urban roads. 

•  National campaign on speeding: The Association of Spinal Cord Injuries and Severe 
Physical Disabilities (ASPAYM) collaborates with the Directorate General for Traffic 
(DGT)  to  raise  awareness  among  drivers  about  the  serious  risk  of  driving  without 
respecting the speed limits. 

•  Report on KPIs: KPIs collected in the Baseline project are published by the National 

Road Safety Observatory and used for monitoring road safety performance.  

•  Cities at 30 km/h: The new speed limit of 30 km/h on streets with one lane in each 
direction was established by a modification of the General Traffic Regulations in 2020. 

15 

 
 
 
 
 
Many municipalities have already made 30 km/h the default speed limit on many of 
their streets, becoming part of “CITIES 30”.  

Safe Roads: 

•  Recommendations  for  road  safety  inclusion  in  Urban  Plans:  A  guide  for  the 
introduction of road safety criteria in the drafting of sustainable urban mobility plans 
was published by the National Road Safety Observatory in 2022.  

•  Road conditioning near pedestrian crossings 
•  Design solutions based on the Safe System: The DGT promotes a safe infrastructure 
capable of compensating when human error occurs, thereby avoiding serious crashes 
and  continuing  the  drastic  reduction  in  crashes  on  Spanish  roads.  A  series  of 
publications is available to serve as a reference and guide for actions in the field of safe 
infrastructure and sustainable mobility, and which are included in a collection called 
"Building a Safe System". 

•  2+1 roads design recommendations 
•  Transposition of Directive (EU) 2019/1936: The Government updates the regulations 
on road infrastructure safety management for the State Road Network, by transposing 
the  Directive  (EU)  2019/1936  of  the  European  Parliament  and  of  the  Council  of  23 
October 2019 into Spanish law.  

•  Intelligent Transportation Systems (ITS) Plan 

Safe Vehicles: 

•  Analysis of the effectiveness motorcycle safety systems: A technical report on the 
analysis of the effectiveness of active and passive safety systems for motorbikes and 
those to be added to rider's equipment.  

•  Regulation  on  road  tests  of  automated  driving  vehicles:  This  regulation  was 
published in 2022, aiming at regulating the granting of special authorisations for the 
performance of on-road research tests and trials with automated vehicles. 

•  Manual of technical characteristics of PMD: A manual of technical characteristics 
personal mobility devices, as well as basic regulations have been published by DGT. 

Post-crash Care: 

•  V16  connected  signalling  device:  The  V16  device,  a  small  yellow  beacon  that  is 
equipped with connectivity, is intended to replace the traditional warning triangles. The 
connected V16 will be the only legal hazard warning device from 1 January 2026.  
•  Update  of  the  actuarial  bases  for  personal  injuries  assessment:  The  order 
ETD/949/2022 updates the actuarial technical bases supporting the calculations of the 
system  for  the  assessment  of  damages  caused  to  persons  in  road  crashes,  which  is 
included in the annex of the Law on Civil Liability and Insurance of Motor Vehicles in 
Circulation. 

4.3.  Gaps 

This  section  is  based  on  the  self-assessment  provided  by  the  country.  Since  Spain  did  not 
provide any information on gaps, this section is left intentionally empty.   

16 

 
 
 
 
 
 
 
5.  Conclusions and Recommendations 

In  Spain’s  national  road  safety  strategy  for  the  decade  2021-2030,  targets  of  halving  the 
numbers of road fatalities and serious injuries in 2030 compared to 2019 have been set. 
Also,  specific  goals  for  strategic  groups  have  been  set,  concerning  vulnerable  groups  and 
modes, people  aged more than 64 years old  and  casualties on urban  roads. The road safety 
strategy includes 61 Action Lines divided in 9 Strategic Areas, which provide guidance for the 
specific actions that will be implemented in the successive Action Plans. 

In 2024, Spain ranked 10th in terms of lowest fatality rates per population. Compared to 
the EU average, Spain shows a relatively high proportion of powered two-wheeler fatalities 
(27%) and fatalities occurred on motorways (19%). An increase of 2% in road fatalities was 
recorded compared to 2019 although between 2023 and 2024 there was a reduction of 1%. The 
number of serious injuries increased by 8% between 2019 and 2023. Only pedestrian fatalities 
decreased  (by  7%)  while  the  number  of  fatalities  on  motorways  and  inside  urban  areas 
remained stable over the same period. 

Thus, Spain is making slow progress towards achieving the 2030 targets. Concerning the 
specific  targets,  only  killed  or  seriously  injured  children  aged  0-14  years  old  and  killed  or 
seriously injured occupants of vans and lorries on interurban roads are below the target values 
in 2023. For the remaining targets, substantial differences between observed and target values 
are observed, varying between 18% and 55%. 

Regarding progress in the implementation of the road safety actions foreseen in the national 
strategy  for  the  period  2021-2024,  there  is  a  smooth  implementation  flow  without  any 
particular gaps being reported based on the self-reported assessment. 168 actions have been 
planned for the examined period, with almost half of them being completed.  

Finally, despite that the implementation progress of the foreseen actions appears mainly well 
on track, the overall road safety performance (number of fatalities and serious injuries) is 
currently not on track to meet the targets set for this period. The possible way forward to 
address this could be by:  

• 

reviewing the degree of implementation of the actions and consider reinforcing the road 
safety measures accordingly,  

•  exploring any other relevant activities. 

17