Toledo Spain

Toledo (Spain) is a historic city, declared a World Heritage Site, located in a unique setting, which explains why it receives a large number of visitors each year. Its historical significance stems from the fact that it has been inhabited since the Bronze Age and, over the centuries, has been home to various cultures—Romans, Jews, Muslims, and Christians—that have left a profound mark on its heritage. In addition, it was the imperial capital during the time of Charles V and maintained that status until the reign of Philip II, when the capital was definitively established in Madrid.

These factors are complemented by its proximity to Madrid (just 70 km) and its strategic location along the routes of those traveling from the capital to Andalusian cities such as Seville, Córdoba, or Granada. All this means that Toledo receives, according to statistics, around three million tourists per year.

In recent times, as in many other historic cities, a sense of tourist saturation has emerged in the old town, accompanied by complaints, especially from residents of this area. However, here a first point arises that should be considered: much of the protests, as well as the management measures adopted, have focused almost exclusively on organized tourism and groups. The total number of visitors has not increased significantly; what has changed is the way people travel. More and more travel is done individually and less in organized groups. If the total number of tourists is similar and the groups are smaller, one might ask: why are restrictions primarily aimed at organized tourism? Moreover, organized tourism is the one that generates the most revenue for the city, as almost all visitors come with local tourist guides, visit monuments, and make purchases.

On the other hand, Toledo has a type of tourism that is largely only bothersome if one is predisposed to feeling bothered. Most visitors leave the city after six in the evening in winter or eight in summer, as only a small percentage stay overnight. After these hours, the city is practically in the hands of the residents. Furthermore, high seasons are concentrated in spring and autumn, while the intense heat of summer and the cold of winter cause the tourist flow to decrease significantly for approximately six months.

As in any city, visitors concentrate in the main streets and squares. Those familiar with Toledo know that it is enough to take a parallel street to find much quieter spaces. If there is still a constant sense of annoyance, perhaps the problem is not only tourism but a lack of tolerance toward any use of public space other than one’s own. When we travel, we all want to visit the main streets, squares, and landmarks of the cities we go to—would anyone visiting Venice decide not to see St. Mark’s Square to avoid overcrowding the city? Or is it that when we travel, we want to see the most interesting sites, but if people come to my city, I don’t want them to do the same so they won’t bother me?

Despite everything, complaints exist and have logically led the City Council to take concern and act. Over the past year and a half, the Councilor for Tourism has held meetings with all the relevant sectors: neighborhood associations, business owners, hospitality and restaurant operators, shopkeepers, travel agents, tourism companies, and tourist guide associations. Thanks to this process, the different perspectives were understood, and a draft was prepared and sent to the affected sectors for suggestions and observations.

For the preparation of this draft, existing municipal ordinances were taken into account, although until now they had not been applied to this area. Among them are the Ordinance regulating advertising and signage within the area defined in the Declaration of Toledo as a World Heritage Site, and the Municipal Ordinance on Street Vending.

Finally, in November 2025, the so-called Municipal Ordinance for Coexistence and Sustainable Regulation of Tourist Flows in the City of Toledo was approved, coming into effect on January 1, 2026. This final ordinance was reached after many meetings, discussions, and proposals from all parties, and all sides had to make concessions.

The initial draft was much stricter, and there were aspects we considered very negative for guides. Possible changes and proposals were suggested, and, as in all negotiations, everyone gave a little to reach an agreement. An important point for us was not to limit the maximum number of people per group to 30 because, in some languages, there are not enough guides to meet current demand. If every group had to be split in two, we would have needed twice as many guides in those languages, which would have been impossible, and those visits would have been canceled, diverted to other cities, or conducted without a guide—resulting in lost work for local guides and lost income from monument tickets, restaurants, shops, etc. Even if the number of people per group is limited to 30, buses still arrive with 50 people. They won’t bring half a bus; and since a bus arrives with 50 people, even if divided into two groups, the same 50 people will take almost the same route and occupy the same space in the city. We proposed that groups exceeding 30 people have two options: whenever possible, divide them into two; if not, use wireless headsets so as not to disturb anyone with the sound. In exchange, we accepted that such large groups cannot pass through the narrowest streets.

The main points of this ordinance are as follows:

• Guides are required to wear visible accreditation, which is positive both for professional identification and for combating unlicensed guiding.
• To maintain appropriate acoustic conditions and avoid disturbing residents and visitors, the use of loudspeakers is completely prohibited. It is also mandatory to use individual audio systems when groups exceed 30 people, except for school groups under 16 years old.
• The number of people per group is limited to a maximum of 30, unless wireless audio systems are used, in which case groups of up to 50 are allowed, according to regional regulations.
• Regarding movement through the city, tourist groups must avoid the busiest streets and squares during peak hours, especially during periods of intense commercial or school activity. Some particularly narrow streets are restricted for groups of more than 30 people, although multiple smaller groups or one large group split in two may pass. Basic coexistence rules are emphasized: allowing passage for people with reduced mobility, shopping carts or strollers, not obstructing authorized vehicle traffic, and keeping the city clean. It is also prohibited to block intersections, pedestrian crossings, and access to businesses.
• An existing but little-respected prohibition, especially by those selling guided tours in public spaces, is reiterated: selling and promoting tourist products and services in public spaces is forbidden. Similarly, the use of objects—such as umbrellas or other attention-grabbing items—for commercial purposes is prohibited. These measures will help reduce street tour sales and maintain a more orderly urban space.
• To ensure compliance with the regulations, a sanctioning regime is established defining different types of infractions and penalties.
• As a notable innovation, a Local Tourism Council is created, including the City Council and affected sectors, such as neighborhood, business, and tourist guide associations. This council will, among other functions, evaluate the application of the ordinance and propose possible modifications to improve its effectiveness.

In summary, as an experienced tourist guide, I consider it very positive that an ordinance has finally been approved to help regulate our activity. Some points may seem excessive and imply an assumption of uncivil behavior on the part of guides and visitors, which does not correspond to the usual reality of our work. Nevertheless, this is an important first step that can undoubtedly be adjusted and improved over time.

Measures such as the prohibition of loudspeakers, the requirement of audio systems for large groups, and the elimination of guided tour sales and visually striking objects in public spaces seem particularly positive. All of this will contribute to a more balanced coexistence between tourism and daily life in the city.