This is like suggesting the policy of the United States is set by "just a panel of less than 10 judges" and not the Federal government. Not only is SCOTUS part of the US government, it may actually be the most powerful part of the Federal government
judges are giving orders based on the law/policy of the country. so if a judge gives a bad order, then the cause is a bad policy/law, and the fix is not to replace the judge, but to change the law.
And it wasn't a Spanish government policy, but rather a single judge's order.