Body admits that pensions will need "reforms" after the Government's criticisms of the PP for questioning their sustainability

As of October 16, 2026, there is no comprehensive reform of the public pension system at an advanced parliamentary stage. The key is the dissolution of the Cortes on October 6: pending bills and proposals expired, while the preparation of new regulations by the Government and already approved measures must be distinguished from that parliamentary processing.

The main parliamentary projects have expired

• Revaluation of pensions for 2026. The bill stemming from Royal Decree-Law 3/2026, of February 3, expired on October 6. It was previously in the Committee on Labor, Social Economy, Inclusion, Social Security, and Migrations, with successive extensions of the amendment deadline. Therefore, it should no longer be described as an initiative currently in committee. Its purpose was mainly the annual update of benefits, not a comprehensive system reform. See the parliamentary text and the originating royal decree-law.
• Compatibility of retirement and work. The project derived from Royal Decree-Law 11/2024, of December 23, also expired on October 6. The expiration affects the project that allowed modification through amendments; it does not equate to repealing previously approved measures. The official information on its validation explains its scope regarding active and partial retirement.
• Early retirement with 40 years of contributions. On September 22, the Congress agreed to begin processing a proposal to eliminate certain penalties and allow the recalculation of already recognized pensions. It had only passed the consideration stage: the decision to start legislative debate on the text. Since it was still pending when the Chambers were dissolved, it expired; it did not create an enforceable right. This distinction is allowed by the Congress note.

What remains in preparation and what has already ended

The future law on standardization in Social Security matters and improvement of its management remains at a stage prior to Parliament. In a response published on October 5, the Government indicated that it was drafting the preliminary bill and analyzing its contents. It also pointed out the need to initially discuss the measures in social dialogue and within the framework of the Toledo Pact. Therefore, it was not at the amendment stage nor pending parliamentary vote (official response).

In contrast, the modification regarding alternative mutual societies and access to the public system did complete its parliamentary course: the Congress announced its definitive approval on July 23. It should not be presented as a reform still pending in committee or in the Senate (definitive approval).

The role of the Toledo Pact

The work on reviewing its recommendations constitutes a way of evaluation and seeking agreements, not a law in itself. The review proposed hearings on demography, intergenerational solidarity, poverty, gender gap, and labor market, according to Demócrata. There is no record in the consulted sources that this review has culminated in new approved recommendations.

In short, there is no general reform waiting only for its final approval. There are expired initiatives that would need to be presented again, a preliminary bill still in preparation, and partial reforms already approved. Confusing these three situations would lead to attributing parliamentary advances that currently do not exist.

The First Vice President who is also Minister of Economy holds two distinct responsibilities: the functions entrusted by the President of the Government and the powers inherent to the economic department. The vice presidency does not automatically make him the hierarchical superior of all ministers nor does it grant him the general direction of the Government, which corresponds to the President.

1. Functions as First Vice President

The basic rule is in Article 3 of the Law 50/1997, of the Government: vice presidents are responsible for "the exercise of the functions entrusted to them by the President." The same article establishes that whoever assumes a ministerial department will also have the status of minister.

Therefore, there is no closed legal catalog of economic powers associated with the title of First Vice President. Their coordination, monitoring, or representation tasks must derive from a presidential mandate or a specific normative attribution. The Royal Decree 830/2023, in the consulted wording, reproduces this referral to functions entrusted by the president.

Article 2 of the Government Law reserves to the president the direction of government action and coordination of its members, without prejudice to the direct competence and responsibility of each minister. He is also responsible for resolving conflicts of attribution between ministries and issuing instructions to their holders.

2. General functions as minister

Article 4 of the Government Law attributes to the head of Economy the same general powers as to other ministers, within his scope:

• Develop government action in accordance with the agreements of the Council of Ministers and presidential guidelines.
• Exercise regulatory power in matters pertaining to the department.
• Exercise the powers attributed by laws and organizational and operational rules.
• Endorse, when appropriate, the acts of the king related to matters within his competence.

These powers do not allow unilateral substitution of the Council of Ministers: Article 5 reserves to this body, among other decisions, the approval of bills, the General State Budget bill, and royal decree-laws.

3. Specific powers of the economic area

Article 1 of Royal Decree 410/2024, on the structure of the Ministry of Economy, Commerce, and Business, assigns him the "proposal, coordination, and execution of the Government's policy in economic matters." This mission includes:

• Economic reforms: improving competitiveness and trade, supporting companies, and raising the economy's potential growth.
• Trade and internationalization: directing the commercial policy of business internationalization and supervising investments and foreign transactions.
• International economic relations: maintaining dialogue with the European Union and international economic and financial organizations, coordinating with Foreign Affairs in international relations within its scope.
• European funds: coordinating and monitoring plans and programs financed by the European Union within the ministry's competencies, including financial measures and instruments of the Recovery Plan.

4. Coordination with other departments

Article 1.3 of Royal Decree 410/2024 places the presidency of the Government Delegated Commission for Economic Affairs in Economy. Its task is to guarantee coordination and coherence of ministerial policies with economic policy criteria: this is collegiate coordination, not an absorption of other ministers' powers.

In short, to identify a specific action, one must distinguish its basis: presidential mandate, ministerial competence, or function within a delegated commission. Holding both the vice presidency and economic portfolio does not eliminate this legal separation.

A reform of the pension system must be approved through a norm with the rank of law when it modifies existing legal provisions. If processed as an ordinary law, the rule is a simple majority in the Congress: more votes in favor than against. A reinforced majority is not required solely due to the economic or social importance of the reform.

1. Choosing the appropriate normative instrument

It is necessary to distinguish between modifying pension legislation and reforming the Constitution. For an ordinary legislative reform, the law approval procedure is followed. An absolute majority is only required if the content falls within a matter reserved for an organic law; in that case, it must be reached in a final vote on the entire text.

Therefore, the convenience of a broad political agreement should not be confused with the legally necessary majority. Nor does a non-legislative motion serve to modify pensions: it expresses a parliamentary request or position but does not change the legislation.

2. Presenting a valid initiative

The reform can start as a government bill, approved by the Council of Ministers and sent to Congress, or as a private member's bill presented by authorized subjects. These include parliamentary groups, deputies, the Senate, and autonomous assemblies; there is also popular initiative within its requirements and limits.

The Board of the Congress must qualify and admit the initiative. In private member's bills, the consideration stage is the parliamentary decision to begin processing; it does not yet equate to approving the reform.

3. Completing parliamentary processing

The procedure allows presenting amendments, i.e., proposals for modification. In bills, a debate on the entirety may be held when such amendments are presented. Then the articles are examined and the report of the corresponding committee is prepared.

Approval normally corresponds to the Plenary, although a committee can definitively approve a law when acting with full legislative competence and the procedure allows it. The Plenary can recover that decision. For an ordinary law, abstentions do not count as votes against: what matters is that favorable votes exceed negative ones.

4. Respecting budgetary conditions

A pension reform may increase expenditure or affect public revenues. Article 134.6 of the Constitution requires the Government's consent to process bills or amendments that imply an increase in credits or a decrease in budget revenues. This condition must be specifically examined, not presumed because it concerns pensions.

5. Completing the Senate's intervention

The text approved by Congress goes to the Senate, which can accept it, introduce amendments, or veto it. If it proposes modifications, Congress decides by simple majority which to incorporate. If it issues a veto, Congress can override it by absolute majority or, after two months from its imposition, by simple majority. Therefore, the Senate's rejection does not necessarily constitute a definitive block.

6. Respecting the Constitution and publishing the law

The reform must comply with the Constitution: obtaining sufficient votes does not remedy unconstitutional content. The law can be challenged before the Constitutional Court by legitimized subjects, including fifty deputies or fifty senators.

Finally, it requires royal sanction and promulgation and publication in the BOE. It will come into force when its text provides or, failing that, twenty days after publication.