Map of fires in Spain today, August 20: Las Hurdes maintains the main emergency while Salamanca contains the advance of the fire

In Spain, there is no single provision that alone defines the requirements to declare a state of emergency due to a forest fire in a municipality. This declaration is supported by a set of national regulations (especially Law 17/2015, of the National Civil Protection System, and the Basic Civil Protection Standard, approved by Royal Decree 524/2023) and the special civil protection plans against forest fires of each autonomous community (for example, the INFOCA Plan of Andalusia or INFOMA of the Community of Madrid), which specify levels and procedures.

1. Basic regulatory framework

At the national level, Law 17/2015 establishes the National Civil Protection System and sets out:

• What civil protection emergencies are and the figure of “national interest emergencies”, whose direction corresponds to the Government (art. 29, interpreted by the STC 58/2017).
• The typology of civil protection plans (state plan, autonomous territorial and local plans, special plans for specific risks such as forest fires, and self-protection plans), and that these must foresee the organization and mechanisms for mobilizing resources in emergencies.

The Basic Civil Protection Standard of 2023 (Royal Decree 524/2023) sets the minimum contents of these plans and refers, for forest fires, to the Basic guideline for civil protection emergency planning for forest fires, developed through the specific state plan.

On this basis, the following are approved:

• The State Civil Protection Plan for Forest Fire Emergencies, approved by Resolution of October 31, 2014 (BOE-A-2014-11493), which regulates the organization and action of State resources and support to autonomous communities.
• The special autonomous plans (INFOCA in Andalusia, INFOMA in Madrid, etc.), which include the core part on when and how the emergency is declared in the autonomous and local territory.

2. Material requirements: when the emergency is declared

The special autonomous plans usually distinguish levels or degrees of severity of the forest fire (for example, levels 0, 1, 2, 3 or “potential severity”) associated with the operational situation. Although the exact formulation varies by community, very generally:

• Level 0: fire that can be controlled with ordinary extinguishing means without significant risk to populations, critical infrastructures, or other assets of special value. It may still be an emergency, but with limited operational scope.
• Levels 1 and 2 (or equivalents): when the fire poses or may pose a danger to people or property, requiring civil protection actions (evacuations of settlements, confinements, road closures, infrastructure protection, etc.) and/or the incorporation of extraordinary means outside the ordinary autonomous device.
• Maximum or national interest level: when, due to its intensity, extension, interterritorial impact, or effect on essential services, the Government may declare a national interest emergency (art. 29 Law 17/2015), assuming superior direction and coordination.

In practice, a municipality is considered “in a state of emergency” when the fire:

• Directly affects or threatens its municipal area, requiring protection measures for the population, and
• The autonomous plan is activated at least at a level that already implies civil protection decisions (not just forest extinguishing tasks).

3. Procedural requirements: who and how declares

The formal declaration of the emergency situation and levels corresponds to the authorities defined in the plans:

• In autonomous plans (for example, the Emergency Plan for Forest Fires of Andalusia – INFOCA, approved by Decree 371/2010), the Regional Operational Directorate can declare the severity level of the fire and, therefore, the emergency situation, on its own initiative or at the proposal of advisory bodies.
• At the local level, municipal action plans (integrated into the autonomous plan) usually provide that the mayor declares the municipal emergency and activates the local plan when the fire directly affects the municipality.
• When circumstances of special magnitude concur, the Government of Spain, through the Ministry of the Interior, may declare the national interest emergency, transferring strategic direction to the State (without prejudice to the extinguishing commanders on the ground).

Procedurally, the plans require:

• Technical evaluation of the situation by coordination centers (e.g., CECOP, 112 centers) and extinguishing services.
• Immediate communication to the competent authority so that it issues the declaration of the emergency level and orders the activation of the plan.
• Implementation of the command and coordination organization foreseen in the plan (plan direction, advisory committee, action groups).
• Activation of information protocols to the population and other administrations, as provided by Law 17/2015 and the plans themselves (use of 112, public warnings, etc.).

4. Difference between municipal impact and state declaration

That a municipality is in a state of emergency due to a forest fire does not automatically imply that there is a “zone severely affected by a civil protection emergency” nor a national interest emergency. These figures, also foreseen in Law 17/2015 and development regulations (for example, aid orders such as the Order TES/443/2022), respond to subsequent, broader decisions that assess the overall damage and the need to mobilize state resources and extraordinary measures.

The Junta of Castilla y León has the main responsibility for the prevention, management, and extinguishing of forest fires in its territory. This competence derives from its Statute of Autonomy and is mainly developed through the Law 3/2009, of Forests of Castilla y León, Law 4/2007, of Citizen Protection, the INFOCAL Plan, and the annual prevention, surveillance, and extinguishing plans it approves each year.

1. Basic framework of competencies

The Statute of Autonomy reformed by Organic Law 14/2007 assigns to Castilla y León the normative development and execution in matters of forests, uses, and forest services and environmental and ecosystem protection (art. 71.1.8.º and 71.1.7.º, as stated in the preamble of Law 3/2009, of Forests). On this basis, the Community assumes the organization of its forest policy and defense against fires.

At the national level, the framework is set by Law 43/2003, of Forests, which establishes the responsibility of competent administrations in the prevention, detection, and extinguishing of forest fires, and civil protection regulations (State Civil Protection Plan for Forest Fire Emergencies, published by Resolution of 7/11/2014: State fire plan, and the Basic Civil Protection Standard, approved by Royal Decree 524/2023). These norms set the common rules but leave ordinary management to the autonomous communities.

2. Prevention and planning (autonomous competence)

Law 3/2009, of Forests of Castilla y León develops this framework and, as recalled by specialized press, its article 88 establishes that the Junta will prepare the annual plans for prevention, surveillance, and extinguishing of forest fires, which must contain at least what is required by the basic national legislation (Law 43/2003 of Forests). These annual plans are approved by autonomous order, such as Order MAV/92/2026, of February 9, approving the Annual Plan for Prevention, Surveillance, and Extinguishing of Forest Fires for 2026 (BOCYL 12/02/2026).

Within these competencies, the Junta designs and finances:

• Preventive silvicultural treatments (clearings, pruning, thinning, firebreaks, forest tracks, water points) in the Community's forests, in line with Law 43/2003 and Law 3/2009. The press cites, for example, specific autonomous investments in preventive treatments in several provinces.
• The regulation of fire use and activities during risk periods, through norms such as Order FYM/510/2013 on fire use, and modifications introduced by Decree-law 2/2023, urgent measures on prevention and extinguishing of forest fires (BOCL-h-2023-90163).
• The declaration of high fire risk zones and other forest planning and civil protection figures that condition uses and exploitation.

3. Direction and management of extinguishing

Practice and the regulations place the Junta as responsible for the first response and ordinary direction of forest fire emergencies. The press from the newspaper Demócrata summarizes that the autonomous communities:

• Organize their own fire-fighting device, with forest firefighters, environmental agents, crews, ground and autonomous aerial means.
• Direct the emergency within their territory, unless a higher civil protection level is activated transferring command to the State.

In Castilla y León, this device is structured around the INFOCAL operative (Civil Protection Plan for Forest Fire Emergencies), approved by autonomous decree and developed through annual plans. Within INFOCAL are units such as the Forest Fire Investigation Brigade (BIIF) of the Junta, which collaborates with the Civil Guard in investigating causes, as reported in several news about fires in Zamora.

Law 4/2007, of Citizen Protection of Castilla y León (BOE-A-2007-9097) configures the autonomous civil protection system: the Junta prepares the territorial civil protection plan and special plans (including forest fires), defines risk catalogs and maps, regulates self-protection plans, and sets the sanctioning regime for non-compliance with preventive measures or emergency instructions.

4. Coordination with the State and other administrations

Although ordinary competence is autonomous, the State maintains support means. The press and official notes explain that:

• The Military Emergency Unit (UME) and the BRIF (state reinforcement brigades) deploy when the community requests and through the National Civil Protection System; the Ministry of the Interior coordinates the allocation of state means through CECOD, according to the note “Interior coordinates the allocation of state means...”.
• The Junta can request and provide support to other autonomous communities, as shown by the Xunta de Galicia note on sending means to the fires in León and Madrid at the request of Castilla y León: Xunta note, 07/26/2026.

5. Role of provincial councils and local entities

Provincial councils and municipalities collaborate in prevention (cleaning urban peripheries, paths, accesses) and may have fire stations or own means, but the design of the forest device, the annual planning, and operational command of large fires correspond to the Junta. Various parliamentary debates in the Cortes of Castilla y León (PNL on the “extinguishing and prevention operative of the Junta of Castilla y León”) assume precisely that the autonomous administration must reorganize and strengthen this operative.

In summary, the Junta of Castilla y León holds the main and comprehensive competence over prevention, management, and extinguishing of forest fires in the Community, within the basic framework set by national legislation and in coordination with the State, other communities, provincial councils, and municipalities.

In Spain, all communities operate under the same basic framework (Law of Forests and State Civil Protection Plan for forest fire emergencies, for example State Plan 2014 and its updates), but each organizes its own device. Below is a summary of what Extremadura does and how Andalusia, Castilla y León, Galicia, Catalonia, and the Valencian Community compare.

Extremadura: INFOEX model

• Regulatory framework: Law 5/2004 on prevention and fight against forest fires, amended by Law 4/2017 (BOE-A-2017-6421), and the INFOEX Plan approved by Decree 132/2022 (DOE 132/2022).
• Prevention:
  • PREIFEX Plan and High Risk Zones with specific defense plans.
  • Obligation of prevention plans in forests and peri-urban plans to protect urban centers.
  • Possibility of subsidiary execution of preventive works (cleaning, firebreaks) by the Administration, even free of charge in high-risk zones (art. 38 amended by Law 4/2017).
• Extinguishing:
  • INFOEX device with its own structure and plan revised in 2022; in large fires, up to 17 aerial means (9 planes and 8 helicopters) have been mobilized in a single fire, according to the Junta.
  • Collaboration with UME and state means via State Plan.
• Personnel:
  • Recent reform to convert 138 positions into full annual jobs “so they work all year round” and an approximate 10% increase in staff, as announced by the Junta in 2025.
  • Union criticisms for “structural problems” (retirement planning, PPE, continuous training) and parliamentary requests for more stability and coordination under 112.

Andalusia: INFOCA Plan

• The INFOCA Plan is regulated by Decree 371/2010 (BOJA 192/2010) and subsequent norms; it is one of the largest devices in the country.
• Means and personnel: in the 2024–2025 campaign, the Junta estimates the device at about 4,700 professionals and a budget of €243.34 million (11% more than the previous year), with a notable effort in fleet and fire truck renewal.
• Prevention: specific regulation for prevention and fight against forest fires, mandatory local plans in municipalities in danger zones, and agreements with companies (such as Enresa) for strategic air bases.
• Compared to Extremadura, Andalusia has a more massive and technical device, with large aerial deployment and strong budget, but shares with it the approach of a prolonged campaign, integration with civil protection, and frequent collaboration with UME.

Castilla y León

• Framework: Law 3/2009 of Forests and Decree-law 2/2023 of urgent measures on prevention and extinguishing of fires (BOCL-h-2023-90163), which creates annual plans for prevention, surveillance, and extinguishing covering the entire territory year-round.
• Prevention: Order FYM/478/2012 sets high danger periods (July 1–September 30) and prohibits stubble burning and fire use except very regulated authorizations.
• Extinguishing: specific annual plan (e.g., Order MAV/105/2025 for the 2025 plan) with deployment of brigades, aerial means, and heavy machinery.
• Compared to Extremadura, Castilla y León relies heavily on fine regulation of fire use and very detailed annual plans; the logic of mixed devices (preventive + reinforced summer) is similar.

Galicia: PLADIGA and PEIFOGA

• Plan for prevention and defense against forest fires of Galicia (PLADIGA) and Special Civil Protection Plan against forest fires (PEIFOGA), with a device of more than 7,000 personnel, about 3,000 directly dependent on the Xunta (note 07/03/2024).
• Advanced prevention:
  • Actions planned on about 34,000 ha (firebreaks, auxiliary strips, tracks, prescribed burns).
  • Biomass management agreement in secondary strips with Seaga: €25M annually, adhesion of ~295 municipalities.
  • Technological reinforcement: +30% video surveillance network, up to 177 cameras; AI integration in management and citizen app for alerts (note 05/07/2026).
  • Operation Sentinel with Army patrols for deterrent surveillance.
• Extinguishing: 42 new brigades in maximum risk period, 16 additional bulldozers, reinforcement of ground loading planes, coordination plane, and heavy helicopter.
• Compared to Extremadura, Galicia stands out for the scale of the device and systematic investment in technology, video surveillance, and biomass management around homes.

Catalonia

• The system pivots on the Bombers de la Generalitat, with recent reforms: Decree-law 14/2025 modifies Law 5/1994 to create a support scale with flight operations technicians, active forest prevention teams, and logistics technicians, strengthening capacity in forest fires (BOE-A-2025-16907).
• Another Decree-law (21/2025) adds instruments such as priority protection perimeters and strategic prevention infrastructure projects in the Catalan forest law (BOE-A-2026-561).
• Compared to Extremadura, Catalonia especially reinforces the professionalization and specialization of technical staff and the design of strategic prevention infrastructures in high-risk zones.

Valencian Community

• Autonomous device coordinated by the Agency for Security and Emergency Response, complemented by the Law of Civil Protection and Emergency Management (Law 13/2010).
• Prevention:
  • Deterrent surveillance plan and special summer measures; “Stop al Foc” campaign.
  • More than 1,200 direct personnel in the summer campaign, 56 forest firefighter units, and 45 fire trucks.
  • H901 helicopter for prevention with surveillance and deterrence missions throughout the Community, which can also coordinate extinguishing (note 06/12/2024).
• Extinguishing: 19 autonomous aerial means (9 planes and 10 helicopters) besides the H901; reinforcement of shifts in 112 and participation of fire and police consortia.
• Compared to Extremadura, the Valencian Community is similar in having a robust device but places much emphasis on preventive aerial surveillance and citizen communication (apps, public campaigns).

Comparative conclusion

Overall, Extremadura shares with these communities the basic scheme of forest laws, autonomous civil protection plans, high-risk campaigns, and coordination with MITECO and UME. Its distinctive features are:

• Tradition of integral planning (PREIFEX + INFOEX + peri-urban plans) and intense use of subsidiary preventive execution.
• A device in a process of labor reinforcement (more full shifts and stable staff), but still subject to criticism for lack of structural modernization.

Compared to it, Andalusia and Galicia stand out for scale and resources, Castilla y León for very detailed fire regulation and annual plans, Catalonia for technical specialization and prevention infrastructures, and the Valencian Community for its emphasis on aerial surveillance and citizen participation. All converge, in any case, in the trend toward longer campaigns, more permanent devices, and greater weight of preventive forest management.