Some ayuntamientos may use it as a money making scheme but it's the actual inconsistency that is the bugbear.
We have a shed (well, a brick outhouse really) with ceramic tiles that kept cracking every time the wind got up. We were about to replace it with the ready made plastic stuff that looks like ceramics and were told we'd need a license.
Went to the town hall and they looked at my husband as if he was stupid. No, no license.
When we had the bath removed (the thing was so big the water was going cold by the time it filled) and a walk in shower fitted, again the chap at the town hall said once the door is closed, you can do what you want.
Yet just up in the next council area, a chap got done for, like johnzx says, retiling his kitchen without permission and was even told he'd need permission to paint his bedroom a different colour.
Pretty sure a lot of things are made up on the spot or it becomes expat rumour control. Currently a couple up the road are having a spat because one wants to erect a gazebo. Now, I could understand it if this were a permanent, wooden or concrete edifice but, no, it's just one ot these metal ones that can be taken down if necessary. Nope, big argument going on in that community so we've been told.
We had a chap who'd made an agreement with the builders that all gardens and pathways had to be paved with a certain type of brick and this was put in the community statutes (He, of course, doing the work). To be honest, the work was rubbish with no proper base and the stuff started sinking or having weeds coming up through the surface. One chap had his ripped up and replaced with proper tiling and a proper concrete base with expansion and contraction zones. After about half a dozen owners had done the same thing, it was agreed at a meeting that this was acceptable (might have had a riot if they'd made people take it up). Must admit it does look a lot better.
And satellite dishes? It amazes me in this day and age that some people still object to satellite dishes. We don't have huge high rise flats (highest is 2 storeys, ground and upper) so there's no plethora of dishes hanging off the side but had to have 3 meetings to get it agreed we could have dishes. And don't even mention the aircon outside units. Thought there'd be fisticuffs over that.