Webber, who battled with Button for more than half the race in Valencia, could finish only ninth as the Red Bulls struggled to find any pace on the stop-start street circuit and is now 20.5 points behind Button.
The stage got off to a cautious start around a twisting and frequently narrow circuit and it soon became apparent that the riders, spurred by Horrillo's crash, were on a go-slow in protest at what they perceived to be the dangerous nature of the course.