Spain has formally regulated the figure of the independent aggregator, marking a structural shift in how flexibility resources participate in the country’s electricity markets.
Through the approval of the General Regulation on Electricity Supply, Commercialisation and Aggregation, adopted by the Council of Ministers at the proposal of the Ministerio para la Transición Ecológica y el Reto Demográfico (MITECO), Spain transposes key provisions of Directive (EU) 2019/944 into national law.
The reform creates a legal framework for independent aggregators to combine multiple electricity loads, distributed generation assets and energy storage systems to participate in wholesale and balancing markets, providing demand-side response services to the grid.
Under the Royal Decree, independent aggregators can pool consumption, generation or storage capacity and offer flexibility services—particularly in balancing markets—without requiring consumers to terminate their existing supply contracts with retailers.
This means industrial, commercial and residential users can:
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Optimise electricity consumption
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Monetise their flexibility
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Participate directly in electricity markets
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Maintain their current retail supply agreements
MITECO stated that the regulation will “enable demand management services to the power system while reducing consumer electricity bills.”
The independent aggregator is recognised as a new market participant with rights and obligations equivalent to electricity suppliers. These include financial guarantee requirements and adherence to data protection codes of conduct.
Flexibility as a strategic priority
Spain’s electricity system is undergoing rapid transformation due to the growing share of renewable energy, particularly solar PV and wind power. As conventional generation plants are progressively phased out, new flexibility resources are required to maintain real-time supply-demand balance.
According to MITECO, deploying aggregators is “imperative to provide the system with new flexible resources,” especially in a context of accelerating renewable energy integration and grid digitalisation.
Technical stakeholders note that Spain is currently debating the optimal flexibility model needed for its network, referencing experiences in France, Belgium and Portugal where independent aggregation models are already operational.
The transition toward a more decentralised and dynamic electricity system will require coordination between:
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Distribution system operators (DSOs)
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Aggregators
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Electricity retailers
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Industrial and commercial consumers
Only through system-wide interoperability and regulatory clarity, experts argue, can the full flexibility potential of Spain’s grids be unlocked.
The regulation establishes a clear rollout schedule:
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Red Eléctrica, Spain’s transmission system operator (TSO), has two months to design the operational procedure for the aggregation model.
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Comisión Nacional de los Mercados y la Competencia (CNMC), the national energy regulator, has three months to adapt information exchange systems to enable aggregator participation in electricity markets.
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Once these steps are completed, MITECO will publish a ministerial order defining the centralised aggregation model, including settlement correction and compensation mechanisms between aggregators and suppliers.
The regulation comes amid broader market reform discussions. Spain is still awaiting approval from the European Commission to activate its first capacity market mechanism, designed to ensure long-term security of supply.
Initially planned for 2023, the capacity auction remains on hold while Brussels reviews the proposed design. Renewable energy developers expect the first auction to take place between 2027 and 2028.
This delay highlights the regulatory challenges Spain faces in implementing advanced market mechanisms—including both capacity remuneration schemes and independent aggregation frameworks.
The new regulation introduces additional measures to enhance flexibility and competitiveness:
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Consumers may contract two different power capacities within the same year, with adjustments allowed quarterly, monthly, daily or hourly.
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A single consumer may simultaneously contract with multiple retailers.
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Consumers may contract directly with electricity producers or access the wholesale market.
These provisions aim to reduce electricity supply costs and increase industrial competitiveness.
For the renewable energy sector, the measure represents a key enabler for operational integration. Digitally controlled, aggregated demand can absorb variable renewable generation without requiring costly grid overdimensioning.
The regulation signals Spain’s commitment to decentralization, digitalization and market-based flexibility. By enabling independent aggregators to operate alongside suppliers, Spain aligns its regulatory framework with broader European electricity market reforms.
However, the ultimate impact will depend on:
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Technical interoperability
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Transparent settlement mechanisms
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Platform integration
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Willingness of market actors to adopt the new model
If successfully implemented, independent aggregation could become a cornerstone of Spain’s renewable energy expansion strategy, strengthening grid integration, reducing system costs and accelerating investment in renewables and energy storage.
