Spanish Policy towards Morocco (1986-2002); the impact of EC/EU membership Jordi Vaquer i Fanes UMI Number: U615852 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U615852 Published by ProQuest LLC 2014. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 Spanish Policy towards Morocco (1986-2002); the impact of EC/EU membership Jordi Vaquer i Fanes Supervisors: Professor Christopher Hill and Dr Karen Smith London School of Economics and Political Science PhD in International Relations September 2004 Word Count: 107,356 words, including 97,613 in main text and 9,743 in footnotes 1 TH£S£S F S 3 ^ " w Library Bntrsrt uw w y a t Political and Economic Science Spanish policy towards Morocco Abstract m Accession to the European Community in 1986 profoundly changed the ary foreign policy of democratic Spain. Since then the international and regional contexts have changed, new actors have emerged, and the entire formulation ofPolitical sScience of foreign policy has evolved substantially. EC/EU membership has been the framework of this transformation, but it has also often been the very cause of some of the most substantial changes. This thesis analyses the transformation of Spanish foreign policy through a case study of policy towards Morocco, arguably the most complicated bilateral partner for any Spanish democratic government. The thesis uses the concept of Europeanisation, defined as the process of foreign policy change at the national level originated by the adaptation pressures and the new opportunities generated by the European integration process. It focuses on four areas of the policy towards Morocco: fisheries, economic exchanges, immigration and territorial issues. The analysis shows that four themes of Europeanisation have been important, but in an asymmetrical way in each area. Thus, 1) the balance between new instruments and new constraints has been most influential in areas where there is an EC competence, such as fisheries or trade; 2) changes in identity and re-definition of interests have been very relevant in economic and commercial issues and in immigration, but almost non-existent in relation to territorial issues or fisheries; 3) changes in decision-making have been crucial in fisheries, a common policy, but also in immigration, which is still in the hands of member states; and 4) Europeanisation through the domestic context has been witnessed in new policy areas (development co-operation, immigration control) but not in traditional issues (Western Sahara, fisheries). The conclusion explains this variation in the impact in each issue area as the result of several factors: the weight of previous decisions and the historical background, the institutional set-up at European level, the ability of domestic and bureaucratic actors to exploit the new opportunities and the changes in external factors such as the regional context. These findings are helpful both 2 Spanish policy towards Morocco in understanding Spanish policy towards Morocco and in characterising the phenomenon of the Europeanisation of a foreign policy. 3 Spanish policy towards Morocco Contents Summary of contents Introduction Chapter 1: The theoretical starting-point Chapter 2: The Spanish- Moroccan relationship Chapter 3: Fisheries (dis)agreements Chapter 4: Economic and commercial relations Chapter 5: Immigration matters Chapter 6: Territorial and post-colonial disputes Chapter 7: Conclusions. Europeanisation and its limits Sources 4 Spanish policy towards Morocco Table of contents ABSTRACT. ......................................................................................................................2 CONTENTS..................................................................................................... 4 A cknowledgements .......................................................................................................... 9 A bbreviations .....................................................................................................................11 Ta b l e s a n d F ig u r e s ......................................................................................................... 14 Translations ....................................................................................................................... 16 INTRODUCTION........................................................................................................ 17 CHAPTER 1: THE THEORETICAL STARTING-POINT .............................22 1.1 T he n e w c o n t e x t ....................................................................................................... 22 A changing foreign policy environment..................................................22 Foreign policy in a European context..................................................... 27 Internal sources of foreign policy change...............................................32 1.2 The im pact of E C /E U m e m b e r sh ip ....................................................................35 Europeanisation and foreign policy........................................................ 35 The limits of Europeanisation................................................................. 39 1.3 T he r esea r ch a g e n d a ............................................................................................. 45 Theme 1: new constraints and the search for new instruments..............45 Theme 2: identity, interests and preference formation............................47 Theme 3: policy-making.......................................................................... 49 Theme 4: Europeanisation and the domestic context..............................51 1.4 The st u d y of Spa n ish policy to w ar d s M o r o c c o ....................................53 The choice o f the case study.................................................................... 53 Methodology........................................................... 54 1.5 C o n c l u s io n ................................................................................................................... 58 CHAPTER 2: THESPANISH-MOROCCANRELATIONSHIP .................. 60 2.1 The leg a c y of h isto r y ..........................................................................................61 Colonialism and de-colonisation............................................................. 61 5 Spanish policy towards Morocco A troubled neighbourliness: the years o f transition................................ 66 Towards a new approach........................................................................ 69 2.2 A NEW CONTEXT.............................................................................................................72 The western Mediterranean and the Cold War....................................... 73 The northern shore: integration and exclusion....................................... 76 The southern shore: opportunities and tensions..................................... 79 2.3 S pa n ish interest in M o r o c c o : co n tin u ity a n d c h a n g e ......................83 Traditional interests................................................................................ 83 Looking for a buffer of common interests............................................... 86 Morocco, the Maghreb, the Mediterranean............................................ 93 2 .4 C o n c l u s io n s ......................................................................................... 96 CHAPTER 3: FISHERIES (DIS)AGREEMENTS ............................................99 3.1 Th e C o m m o n F isheries P o licy a n d Spa n ish in t e r e s t s ........................ 99 The Common Fisheries Policy.............................................................. 100 Brussels as a location of policy-making................................................ 103 The national arena in Spain.................................................................. 106 3.2 F ish in g in M o r o ccan G r o u n d s ........................................................................110 Fisheries negotiations before accession................................................ 110 Accession to the EC and the first EC/Morocco agreements................. 113 A solution to a major crisis................................................................... 118 The end o f a long story.......................................................................... 122 3.3 Th e im pact of EC m e m b er sh ip ...........................................................................125 The balance sheet .................................................................................. 125 Whose interest?..................................................................................... 129 Multi-level decision making.................................................................. 131 3.4 C o n c l u s io n s .............................................................................................................. 134 CHAPTER 4: ECONOMIC AND COMMERCIAL RELATIONS