Spanish Foreign Policy Implementation and US Bilateral Relations
Actors in Spanish Foreign Policy Enforcement
Spanish foreign policy (FP) is shaped and implemented by a broad set of actors operating within a legal and institutional framework that requires coordination and loyalty. The key actors include:
- The Prime Minister: Leads the overall policy direction.
- The Minister of Foreign Affairs (MFA): Manages day-to-day execution and interministerial coordination.
- The Undersecretary (within the MFA): Manages internal operations and appoints diplomats.
- General Directorates: Oversee relations by region or topic (e.g., European affairs, trade, multilateralism, and development cooperation).
- The Cabinet of the Minister: Supports high-level decision-making and liaises with other ministries.
Spain’s Diplomatic Presence Abroad
Spain is represented abroad through embassies, permanent missions (such as in Brussels and New York), and consulates. The ambassador, as head of mission, coordinates all personnel abroad—including technical officers from other ministries—to ensure a unified foreign presence. Spain also utilizes delegates who represent the country in specific multilateral forums (e.g., climate change, Law of the Sea), and non-resident ambassadors for thematic areas.
Coordination Challenges and Other Ministries
Other ministries (e.g., Economy, Culture, Defense) may conduct external actions but must inform and coordinate with the MFA to avoid contradictions. Tensions sometimes arise when these ministries act independently, risking duplication or misalignment.
The Role of Autonomous Communities (ACs)
Autonomous Communities have a legally recognized role in external action, especially in development cooperation, cultural promotion, and EU affairs. They can open offices abroad, particularly in Brussels, but cannot represent Spain or sign treaties. These offices must coordinate with embassies, and in some cases (such as Valencia), they are located within Spanish diplomatic premises.
Parliamentary Oversight and Civil Society
Parliament plays a growing oversight role. Although it does not direct foreign policy, it authorizes military deployments, ratifies treaties, questions the government, and engages in parliamentary diplomacy. Spanish Members of Parliament (MPs) participate in international assemblies and observation missions, further projecting Spain’s global presence.
Finally, civil society, think tanks, and public diplomacy platforms (e.g., Casa América, Casa Asia, Fundación España–EEUU) contribute to the formulation and promotion of Spanish Foreign Policy. The Marca España brand, restructured under Sánchez into the Global Spain Secretariat, uses personalities like Rafael Nadal to promote Spain’s international image.
Spanish Foreign Policy Towards the USA
Spain–US relations have evolved through several phases, transitioning from Cold War dependence to a strategic, multidimensional partnership.
The Franco Regime and Cold War Dependence (1953)
During the Franco regime, the 1953 agreements allowed the US to establish military bases in Spain, granting Franco geopolitical legitimacy in exchange for strategic cooperation. At the time, the relationship was focused mainly on military security and was heavily asymmetrical, with the US acting as the dominant power.
Transition to Democracy and NATO Membership
After the transition to democracy, Spain redefined the relationship. The 1979 bilateral treaty expanded cooperation into economic, educational, and scientific areas. During the 1980s, under Felipe González, Spain joined NATO (1982), despite previous opposition. González later held a referendum to legitimize this decision, solidifying Spain’s position within the Western security bloc. The relationship became more balanced, with Spain participating in international missions and modernizing its army with NATO support.
The Aznar Era and the Iraq War Alignment (1996–2004)
In the Aznar era, Spain aligned closely with George W. Bush, supporting the Iraq War. Aznar sought to reposition Spain as an Atlantic power, independent from France and Germany. This “special relationship” damaged Spain’s image in Europe and generated significant public backlash, especially after the 2004 Atocha attacks.
Zapatero’s Multilateralism and Cooling Ties (2004–2011)
Under Zapatero, Spain distanced itself from the US, emphasizing multilateralism, peacebuilding, and development cooperation. His government launched the Alliance of Civilizations with Turkey to foster intercultural dialogue. Relations with the US cooled significantly during this period.
Rajoy and Economic Focus
During Rajoy’s term, the focus shifted primarily to economic recovery. Diplomacy was weakened due to embassy closures and budget cuts. Spain still benefited significantly from US investments (the US became the second-largest investor in Spain), especially in technology, services, and industry.
The Sánchez Administration and Transatlantic Renewal (2018–Present)
Sánchez restored strong ties, particularly under Joe Biden. Spain hosted the NATO Madrid Summit (2022) and reaffirmed its commitment to transatlanticism, support for Ukraine, and a stronger European defense policy. Although relations with Donald Trump were more distant, Spain’s position in NATO and its military cooperation with the US remained stable. Politically and diplomatically, Spain has shown commitment to both Atlantic and European multilateralism.