27 injured in Altea after a casing from the fireworks of the Castell de l’Olla deviated and fell on the audience

In the Valencian Community, safety devices in large-scale pyrotechnic events (mascletaes, castles, cordàs, etc.) are governed by a combination of state regulations, focused on the Pyrotechnic Articles Regulation, and regional regulations on public shows and civil protection. At the state level, Royal Decree 989/2015 requires, for certain explosive material contents, specific safety plans and the involvement of accredited experts. At the regional level, Law 14/2010 imposes strict conditions on safety, capacity, structural solidity of installations, and fire prevention in any public gathering event. With the available information, clear obligations for organizers and municipalities can be identified, although exact distances and other technical parameters are specified in the authorization on a case-by-case basis.

Basic applicable regulatory framework

State regulations

• Regulation of pyrotechnic articles and cartridges, approved by Royal Decree 989/2015: regulates professional pyrotechnic shows and includes ITC number 8, related to shows with devices operated by experts. Text in the Official State Gazette of the Pyrotechnic Regulation.
• ITC 8 requires, for shows with a certain net explosive content (NEC), a responsible declaration from the organizer and, when the content is greater than 50 kg and less than or equal to 100 kg, the submission of a safety plan, as cited in the regulation itself.
• Additional safety modifications are included in Order PJC/342/2025, which updates ITC 11 on surveillance and protection in installations and transport: Order PJC/342/2025.
• Organic Law 4/2015, on the protection of citizen security, sets the general framework for administrative control of activities affecting public order: OL 4/2015.

Valencian regional regulations

• Law 14/2010, on public shows, recreational activities, and public establishments, which regulates public gathering shows in the Valencian Community: Law 14/2010.
• Law 13/2010, on Civil Protection and Emergency Management, which establishes the general framework for planning collective emergencies: Law 13/2010.
• For events in or near forest areas, Decree 148/2018 is relevant, which modifies fire safety rules against forest fires in festive-recreational uses of fire: Decree 148/2018.

Safety requirements in the Pyrotechnic Regulation

The state Regulation entails several key requirements for large-scale shows:

• The show must be directed by experts with a license (ITC 8 and technical specification 8.01), with mandatory training that includes “safety zone for spectator protection and launch zone”, “prohibitions in the launch zone” and “inspections after the show”.
• The organizer must designate a person in charge of the organizing entity (with contact details) responsible before the authority.
• For NEC contents greater than 50 kg and less than or equal to 100 kg, a safety plan must be submitted according to section 5 of ITC 8, and declare having the rest of the documentation required by section 3 (authorization, notifications, etc.).
• Notifications and authorizations to the Government Delegation are foreseen, with minimum deadlines (a 10-day advance notice is indicated in the table associated with ITC 8 for certain cases).

This safety plan is the instrument where, for each event, the fencing and access controls, the delimitation of launch and public zones, the extinguishing means, and evacuation measures are specified. The regulation refers to the technical content of ITC 8, but in the available excerpts numerical distances are not detailed, which depend on the type of devices and the NEC load.

Obligations according to Law 14/2010 of the Valencian Community

Law 14/2010 establishes that all public shows and recreational activities must meet “the necessary conditions of safety, healthiness, and hygiene” for the public, workers, and property, and explicitly includes:

• Safety of the attending public and participants.
• Structural solidity and proper functioning of installations.
• Conditions and guarantees of electrical installations, especially in public gathering venues.
• Fire prevention and protection and other risks, “facilitating accessibility of external aid means”.

The same law provides that the opening license (or equivalent authorization) must include, among others, the maximum capacity and the “conditions and requirements considered essential depending on the type of establishment”. For establishments with a capacity greater than 1,000 people, the submission to the municipality of a technical project prepared by competent personnel is required, which serves as the basis for setting reinforced safety measures.

Responsibilities of organizers and municipalities

Organizers

• Hire pyrotechnic companies and accredited experts, with a license according to ITC 8.
• Prepare and provide, when applicable according to the NEC load, a safety plan defining launch and public zones, fencing, signage, access control, and extinguishing means.
• Submit the responsible declaration and the documentation required by the Pyrotechnic Regulation and Law 14/2010.

Municipalities

• Grant the opening license or authorization for the show, setting the maximum capacity and essential safety conditions.
• Verify, according to Law 14/2010, the continuous compliance with safety conditions, being able to inspect and sanction.
• Coordinate with the Government Delegation and civil protection services for emergency management, within the framework of Law 13/2010.

In short, the regulations combine state technical requirements (experts, safety plans, ITC 8) with a regional framework that obliges to guarantee structural safety, capacity control, emergency accessibility, and fire prevention, without explicit mention in the consulted sources of specific distances or detailed design of each device, which are set case by case in projects and authorizations.

The mayor of Altea, like any mayor in the Valencian Community, is the main municipal authority in public safety during large events but acts within a highly regulated framework: the State retains exclusive competence in public safety, the Generalitat sets the regime for civil protection, shows, and coordination of local police, and the City Council executes and organizes the device within the municipal area. The mayor directs the Local Police, can issue decrees and adopt exceptional measures in the face of serious risks, and plays a key role in licenses, control of compliance with safety conditions, and emergency management. However, in events with large attendance or impact on public order, planning is coordinated with the Government Subdelegation and the Generalitat through civil protection plans and security boards.

Basic framework: Law on Local Regime Bases

Law 7/1985, Regulating the Bases of Local Regime establishes the core competencies of the mayor. The article on the Mayor's powers, according to the legal text itself, states that the mayor:

• Directs the municipal government and administration and represents the City Council (Law 7/1985).
• Exercises the headship of the Municipal Police, that is, commands and organizes the Local Police.
• Can issue decrees, a key tool to regulate traffic restrictions, schedules, uses of public space, or coexistence rules during festivals and events.
• Is empowered to personally adopt, under their responsibility, in case of catastrophe, public misfortunes, or serious risk thereof, the necessary and appropriate measures, giving immediate notice to the Plenary. This clause applies to emergencies arising from large gatherings if they generate a serious risk to the population.
• Can sanction infractions of municipal ordinances, including those on coexistence and use of public space.

The Plenary and the Local Government Board do not replace these functions but approve ordinances, budgets, and general plans, while the operational execution of the security device falls on the Mayor's Office and the Local Police.

Citizen security and sanctioning power

Citizen security is a state competence but is executed concurrently. Organic Law 2/1986 on Security Forces and Corps recognizes municipalities' competencies in security in public places and urban traffic management, and assigns Local Police functions of surveillance on urban roads, protection of property and local authorities, and collaboration with State Security Forces and Corps (OL 2/1986).

Organic Law 4/2015 on the protection of citizen security allows mayors to impose sanctions for infractions committed in municipal public spaces or affecting local property, when they have competence over the matter according to specific legislation (OL 4/2015). This is relevant for massive street drinking parties, disturbances in squares, or failure to comply with access restrictions during events.

Civil protection and emergency management

In emergencies, State Law 17/2015 of the National Civil Protection System and Law 13/2010 of Civil Protection and Emergency Management of the Valencian Community combine (Law 17/2015, Law 13/2010 CV). These laws configure:

• The obligation for local entities to have civil protection services and municipal plans and integrate into regional planning.
• The coordinated intervention of state, regional, and local resources, with the Generalitat exercising unified command in regional emergencies and the State in emergencies of national interest.
• The competence of mayors to resolve sanctioning procedures in the civil protection field, according to applicable legislation (the sanctioning competence of mayors is expressly mentioned in the state law).

In a large event in Altea (patron saint festivals, massive concerts, sports events), the mayor is the local civil protection authority, approves or activates the municipal emergency plan, orders the deployment of municipal resources, and coordinates with the Generalitat and the Government Subdelegation when necessary.

Public shows and the role of the City Council

Law 14/2010 on public shows, recreational activities, and public establishments of the Valencian Community establishes that the safety of people and property is the essential principle of sector regulation (Law 14/2010). Although normative competence lies with the Generalitat, municipalities:

• Grant licenses or process responsible declarations for shows and activities.
• Verify compliance with safety conditions (capacities, emergency exits, self-protection plans, etc.).
• Can suspend or condition activities that do not guarantee safety.

Operationally, these competencies are exercised under the political direction of the mayor, who can order inspections, reinforce Local Police and Civil Protection controls, and, in risk situations, suspend or modify the event's development.

Coordination with Local Police, Generalitat, and State

Law 17/2017 on coordination of local police in the Valencian Community regulates the regional framework of the Local Police (Law 17/2017), respecting municipal autonomy and the competencies of local authorities in Local Police matters. The mayor of Altea is, therefore, the one who sets the operational priorities of the force in each large event.

At the same time, Organic Law 2/1986 emphasizes cooperation and coordination among all police forces and the need for organic coordination mechanisms between administrations. In practice, for events of some magnitude, the following are used:

• Local Security Boards, where the City Council, Civil Guard/National Police, and, if applicable, Generalitat coordinate.
• Specific traffic plans, access controls, and joint devices, in which the mayor participates as the highest local authority.

Functional summary for large events in Altea

In summary, during large events the mayor of Altea:

• Acts as head of the Local Police and local civil protection authority, directing the municipal device.
• Issues decrees and orders to regulate traffic, schedules, use of public space, and conditions of celebration.
• Activates or applies emergency plans and can adopt exceptional measures in the face of serious risk, informing the Plenary.
• Coordinates with Generalitat and State through security boards and civil protection plans.
• Exercises, when appropriate, sanctioning power in citizen security, shows, and civil protection, according to the cited laws.

Cited normative references

Among others, the following are relevant: Law 7/1985, Law 11/1999, Law 40/2015, Law 30/2007, Law 7/2007, Law 34/1998, RDLeg 5/2015, Law 7/2011 CV, Law 13/2010 CV, Law 14/2010 CV, Law 7/2019 CV, Law 17/2017 CV, Law 4/2017 CV, Law 21/2017 CV, Law 27/2018, TR LOTUP CV, Law 5/2022 CV, Law 8/2022 CV, OL 2/1986, OL 4/2010, OL 9/2015, OL 4/2015, Law 17/2015, Decree 169/2010, as well as other resolutions and rulings linked in the Official State Gazette.

In Spain, the use of fireworks in public shows is heavily regulated by state pyrotechnic and citizen security regulations, complemented by regional rules and municipal ordinances. The central piece is the Regulation of pyrotechnic articles and cartridges, which defines product categories, labeling requirements, and who can use them. For public shows, this regulation requires prior authorization or notification, safety plans, mandatory insurance, minimum distances to the public and buildings, and the involvement of licensed companies and “experts.” On this basis, autonomous communities and municipalities add specific rules on schedules, prohibitions in urban centers, or conditions in local festivals.

1. Basic state framework

The key regulation is Royal Decree 989/2015, which approves the Regulation of pyrotechnic articles and cartridges, transposing Directive 2013/29/EU and regulating manufacturing, marketing, storage, transport, and use of pyrotechnic devices, including public shows. It can be fully consulted in the Official State Gazette: Regulation of pyrotechnic articles.

This regulation replaced the previous Royal Decree 563/2010, which remains partially in force in residual aspects: RD 563/2010. It has received partial modifications and developments, among others:

• Royal Decree 1335/2012, which completed and modified the previous regulation: RD 1335/2012.
• Order PRE/647/2014, on essential safety requirements for pyrotechnic devices (ITC 2): Order PRE/647/2014.
• Order PJC/342/2025, updating ITC 11 on citizen security in pyrotechnic installations and transport: Order PJC/342/2025.

In parallel, the Explosives Regulation, approved by Royal Decree 130/2017, applies to other civil explosives but is cited regarding safety and coordination with pyrotechnics: Explosives Regulation.

From the sanctioning and public order perspective, Organic Law 4/2015, on the protection of citizen security, applies, allowing authorities to limit, suspend, or sanction activities that put people or infrastructure at risk: Organic Law 4/2015.

2. Pyrotechnic shows: authorizations, responsible parties, and safety

The technical core on shows is in Complementary Technical Instruction (ITC) No. 8 of the Regulation of pyrotechnic articles. This ITC specifically regulates “pyrotechnic shows performed by experts” with articles of categories F1, F2, F3, F4, T1, P1, T2, P2, and homemade devices without CE marking.

2.1. Authorization and notification

• Shows with experts whose total net explosive content (NEC) is greater than 10 kg and ≤ 100 kg require prior notification to the Government Delegation, at least 10 working days in advance.
• If the NEC is greater than 100 kg, an express authorization from the Government Delegation is needed, with application at least 15 working days before, and reports from the Industry Area and the Arms and Explosives Intervention of the Civil Guard.

The application or notification must be accompanied, among other documents, by:

• Safety plan (and emergency plan if NEC > 100 kg).
• Identification of the organizing entity and the expert company (authorized workshop, storage capacity, list of devices, firing sequences, personnel with their licenses).
• Plans with safety distances and delimitation of the launch zone and safety zones.
• Financial guarantee of the organizer: at least €500 per kilogram of regulated material and a minimum of €188,722.
• Civil liability insurance of the expert company: minimum €754,764.

2.2. Key figures and qualifications

ITC 8 defines:

• Organizing entity: responsible before the Administration and the public for the show and the delimitation of safety zones.
• Expert company: holder of the preparation and assembly workshop, responsible for assembly and firing.
• Expert: personnel with an expert license, who assembles, handles, and fires the devices.
• Apprentice: with an apprentice license, can only assemble and handle under supervision, without firing.

The Technical Specifications 8.01, 8.02, 8.03, and 8.04 of the regulation itself regulate training requirements, expert and apprentice licenses, and training entities. Minimum training is required (at least 25 hours for the apprentice), practice in several shows, and psychophysical accreditation.

2.3. Safety distances and protected zones

ITC 8 imposes a defined launch zone and safety zones for the public and buildings, with minimum distances set in tables according to caliber and type of device (ground fire, aerial, Roman candles, volcanoes, flyers, aquatic shows). For example, specific distances are set for aerial shells depending on the mortar caliber; for smaller calibers, a coefficient of 0.50 applies for the public and 0.20 for buildings.

Additionally:

• It is prohibited to exceed a launch angle of 30º relative to the vertical (except some aquatic shots without public in that direction).
• Hospitals, residences, police centers, emergency centers, critical infrastructures, or schools during activity cannot be located within certain safety bands.
• The Civil Guard or police can interrupt the show if authorization is missing, safety conditions are breached, the public invades safety zones, or operators lack licenses.

3. Classification of articles and use by experts

The regulation establishes categories of pyrotechnic devices, with mandatory labeling indicating category, minimum age, safety distance, and, in F4, T2, and P2, that they are for exclusive use by experts. Only these licensed experts can use:

• F4 (high-risk fireworks intended for professionals).
• T2 (high-risk stage articles, e.g., in theaters or concerts).
• P2 (other professional-use pyrotechnic articles).

The regulation also specifically regulates the use of P2 and T2 outside shows, requiring notification or authorization to the Government Delegation depending on total NEC, as detailed in ITC 8.

4. Regional and municipal competencies

On this state basis, autonomous communities can develop aspects related to public shows, civil protection, and emergencies, and municipalities regulate by ordinances issues such as:

• Permitted schedules and days for pyrotechnic firing.
• Zones where use is prohibited or restricted (historic centers, proximity to hospitals, residences, protected areas).
• Noise levels, animal protection, and post-event public space cleaning.

These sub-state rules cannot lower the minimum requirements of the state Regulation but can make them stricter (for example, requiring more distance, more insurance, or limiting uses in certain festivals). No further information is available in the consulted sources about specific regional or municipal rules.