On the other hand, I personally see this as part of a policy of appeasement and am now waiting for some huge 'donations/low interest loans' to come out to Spain from the USA/MPAA/RIAA/etc.
I'm not Spanish but I have seen the culture of copying and sharing and using pirated software that exists in Spain. A penalty like this may shut down a file locker or two, or may even take down a few torrent sites, but it will do nothing to deter file sharing in general - what's more ridiculous is that the proposal clearly states that it's in line with the people's culture to generally share software/music/movies/games/etc.
Given that it's such a half assed effort it could only be a response to pressure from the US, a response tuned to not raise too many eyebrows in Spain but at the same time unlock some bonuses/favors from the US govt.
Ultimately I think this has come as subsequent pressure and a fallout from the whole Rojadirecta debacle a few years ago.[1] (those guys basically sued the US government for seizing their domain... AND WON[2]!)
1 - http://torrentfreak.com/tag/rojadirecta/
2 - http://torrentfreak.com/u-s-returns-seized-domains-to-stream...