With 91% of municipal votes counted, the centre-right Popular Party (PP) had almost a 10-percentage point lead, the interior ministry said.
Prime Minister Jose Luis Rodriguez Zapatero conceded defeat but ruled out early general elections.
Voting took place amid mass protests against high unemployment and the government's handling of the economy.
Young demonstrators holding sit-ins in Madrid and other cities said rallies would continue for another week.
Mr Zapatero said three years of economic crisis had taken their toll."
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